A Village Development Plan would be prepared for every identified Gram Panchayat with special focus on enabling every poor household to come out of poverty.

Before the formal plan formulation starts, there has to be systematic environment creation and social mobilisation which will be spearheaded by the MP himself/herself. The Gram Panchayat should also be fully involved. Some of the activities which could be considered are: 

a. Interaction (charcha) with the Gram Sabha, Mahila Sabha, Bal Sabha

b. Interaction (charcha) with occupational groups and local organisations, including youth clubs

c. Organisation of cultural and sports events

d. Wall writings, Shivirs, Padayatras, Nukkad naataks etc

e. Painting and Literary Competitions on how the village could be made a model one.

f. Demonstration of videos of best practices in village development

These activities would result in a broad collective vision of what the village should be like and kindle the enthusiasm of the villagers. There after a two stage participatory planning process is suggested in which the MP plays a lead facilitatory role , along with the Gram Panchayat and the District Collector gives the necessary professional and coordination support.

In the first stage, activities which could be implemented by the people themselves through behavioural and social changes self-help and mutual help, shramdaan, local contributions, and local resources need to be identified. These could include the following: 

a. Having the community, including all elected representatives and government functionaries, take a collective pledge that the community will work towards its economic upliftment in a time bound manner so that no family in the village will languish below poverty line. 

b. Collectively reading out and reaffirming the fundamental rights and fundamental duties of the Indian Constitution.

c. Organising Health camps

d. Organising cleanliness drives

e. Conducting animal health camps

f. Intervention in Anganwadis to improve attendance and quality of service delivery

g. Intervention in local schools improving attendance, enhancing quality of education, improving the quality of mid-day meals etc. in partnership with the PTAs.

h. Planting of trees

i. Revitalizing/organising SHGs

j. Organising Rozgar Diwas under MGNREGA k. Improving Public Distribution System


l. Organisation of grievance redressal camps with the participation of the District Collector and key district level officers particularly relating to civil supplies, social welfare, land revenue etc.

During this stage, as many activities as possible from all the categories, particularly those relating to personal, human, social and environmental development, and good governance should be taken up. Simultaneously, Situation Analysis, which is the first step of the second stage could also be conducted.

Through these activities, the village community would have demonstrated its willingness to undertake the scheme in its fullness, triggering implementation of the next stage.

Thereafter, the second stage of the planning process could continue with the following broad steps:

1. Situation Analysis:

This, which would have been started during the first stage itself, is a two-fold process – both being undertaken at the same time 

i. a baseline survey

which has two purposes; firstly, to identify details of the existing scenario in different areas of development so that improvements could be suitably bench-marked to this. Secondly, to provide basic data on the deficiencies and gaps in infrastructure, amenities and services as well as the potential for future economic and human development. This should preferably be got done through an expert agency. In the alternative, an academic institution or a group of trained experts could be assigned the task. The parameters which could be included in the baseline survey are indicated in the Annexe -II. Additional locally relevant items may be added. 

ii. Participatory Situation Analysis

This should be got done through the local community involving trained facilitators. The training would be arranged by the NIRD & PR. The key participatory techniques which could be used are: 

*Social Map: It is a map, drawn by the local persons, particularly women, depicting households according to different categories, important institutions, physical and social infrastructure and other amenities.

* Resource mapping: This helps understand the natural and physical resources at the command of the village. This is also prepared by the local people and the map would show the following:

  • Land use 
  • Water bodies
  • Irrigation structures 
  • Physical layout of the land –showing slopes, undulations, drainage patterns etc.
The Resource Map would delineate the micro-watersheds and help identify the potential for agricultural development and natural resources management. 

*Needs matrix: This is prepared with the involvement of a cross-section of the local households to rationally assess the collective needs of the village and their priorities.

The data collected through the situation analysis should be captured on a GIS platform.

2. Review of Performance of the First Stage

This will be an exercise led by the MP jointly with the District Collector, the Gram Panchayat, and the community, to critically assess the performance in the first stage – that is, what the village has been able to achieve on its own and what it will definitely be able to complete in a reasonable period of time. Based on this assessment, the village could move to the next step of strategy-setting 

3. Strategy setting: 

Based on the review of the first stage, and data from the baseline survey and the participatory assessments, a select group of stakeholders, officials and experts could suggest the strategies for development and the activities needed to operationalise the strategies. In other words, the schemes and projects required would be outlined. 

4. Identifying the resource envelope:

The resources available need to be mapped. Broadly, they could be classified as follows:

i. Resources of fully tied schemes – centrally sponsored and State- such as IAY, PMGSY etc

ii. Resources which are partially tied and permit flexibility of use like MGNREGS, RKVY, NRLM, NHM, SSA etc.

iii. Resources which are largely untied such as BRGF, MPLADS etc which permit a great deal of flexibility to fill in critical gaps as required. Local Area Development Scheme of MLAs may also be tapped, subject to their consent

iv. Purely untied resources of the Gram Panchayats like own revenue, Central and State Finance Commission grants etc

v. Resources which could be mobilised locally in cash, kind and labour

vi. CSR funds.

The above categories of resources should be used in a convergent and integrated manner to generate maximum synergy. 

In respect of Central Sector/Centrally Sponsored Schemes/programmes, the Ministries/Departments concerned will take appropriate action to make suitable changes in the guidelines to enable priority to be given to the Adarsh Gram

5. Finalisation of needs:

This is best done through a two part process: the first part being consultations with the different stakeholders particularly women SHGs and farmer groups and the second part being the Gram Sabha discussions. In these fora, the summary of the results of the exercises done so far has to be presented in a simple and clear manner and the needs and priorities finalised as normatively and unanimously as possible.

6. Preparation of the draft Village Development Plan (VDP):

A Working Group will be set up by the District Collector consisting of officials and outside professionals/experts to draw up the draft Village Development Plan on the basis of the needs prioritized by the people. The VDP should also include the activities, contributions, and achievements of the first stage. It should state the expected outputs and outcomes along with the timelines.

7. Clearance of the VDP by the Gram Sabha:

The draft VDP will be presented to the Gram Sabha for discussion and clearance.

8. Approval of the VDP:

This will be done by the District level committee headed by the District Collector, in the presence of the MP duly considering his/her comments 

and suggestions. While approving the VDP, the committee will clearly indicate the phasing of different components with specific targets for three months, six months, nine months, one year and beyond.

9. Projectisation and sanctions:

 The components of the approved plan should thereafter be projectised by the departmental officers concerned, who should then get the administrative, financial and technical approvals as may be necessary under the guidelines of the respective scheme. The District Collector will personally coordinate this exercise to make it smooth and time-bound. He will be assisted by the Charge Officer

10. Disclosure and Dissemination:

The details of all the processes and all the components of the approved plan covering the physical and financial aspects and the expected outputs and outcomes should be pro-actively disclosed and disseminated widely. It has to be ensured that the planning process organically emerges from the environment creation and social mobilisation exercise which prepares the ground for this. Also, adequate care should be taken to prevent this from becoming either a routine or technical exercise. 

N.B: The deliverables under the scheme may be classified and reported as immediate (within 3 months), short term (within 6 months), medium term (within 1 year) and long term (beyond 1 year).