Rural Development: A Social Process

“India lives in its villages” - Mahatma Gandhi

Rural Development has given a wide variety of meaning and is at this time, most commonly used
as a pragmatic level, generally connoting a concern for helping rural communities, rural people or
the industry of agriculture. Currently it has become a common practice to invoke this now popular
level to gain attention and even legitimating for research and action programs, with little regard for
any special meaning or emphasis implied by the term. In my opinion , our first wave of ‘Rural
Development’ programmes have for the most part, represented just an extension of emphases and
programs already exiting, as well as implementation of some new projects.

Traditionally Rural Development has most commonly been used to refer to agricultural
development in a broad sense or more recently, ‘Human Resources’ (economic development in a
similar sense). Currently it has taken on another strong dimension that of community
development. Clearly in any hinterland the three foci mentioned above interacts and are important
parts of a broader conception of social development of that region. However that the tendency to
narrowly define ‘Rural Development’ in only one of these specific ways impedes a clear
conception of what is entitled in bringing about a broad ,lasting social change towards an
improved state of existence for rural people. Most importantly, such narrow conception tends to
bind us to many consequences of programs beyond those that are deliberately intended. Some of
the unintended results may be of greater significance than the intended.

Rural Development is simply social development (positive change) of the rural sector and
its constituent social units in reference to some desired end state. This implies a macro,
multidimensional perspective-the study of large areas or regions of society in terms of their
constituent concrete and analytical parts and master processes (including political movements and
economic relations). This perspective includes a holistic tendency, a concern with the whole
system and with the complex interaction of its parts, rather than with the narrow, partial, and
often parochial perspective most prevalent in our collective efforts today.
Whatever definitions used, rural development includes at least two basic assumptions
about social reality:
(1) society can be changed for the better
(2) this change can be facilitated through the application of understanding gained
of society’s structure and process by the social sciences.

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 However beyond general agreement on these two points ,divergence among would-be developers
can be expected in terms of what needs to be changed, how it is to be changed and how fast
should change occur and who should have the power to implement change. The apparently
discordant views on answer to these questions are a reflection of the complexity that must be
dealt with when societal development is viewed for what is – a broad process of social change,
having multiple consequences of mixed valence for all parties.
So to say, Rural Development can be defined as the process of deliberate changing
structural patterns within the rural sector of society and between the rural and other sectors of
society, relative to a specified desired end state. Visually the idea can be depicted as follows:

Social Unit (Rural Society) over time

T(1) State T(2) State
Social development = Structural Change
(Initial Unit) (Developed Unit)
Deliberate Action Relative
To
Desired End

Rural development encompasses a range of approaches and activities that aim to improve the
welfare and livelihoods of people living in rural areas. These approaches pay attention to social
issues But now the question arises why there is a need for Rural Development? This is because
History talks about the history of rural deterioration.

The Causes for Rural Deterioration

• Declining of village communities during Muslim and British period.
• Centralized administrative system discouraged the villagers to participate in the community
betterment.
• 18th century Industrial Revolution in England brought fourfold change. Agriculture Scientific
agriculture gave emergence of capitalistic class, eliminating ordinary peasants Transport Connected
the world; emergence of mercantile economy Industry Joint stock companies – heavy machinery
large scale Investments-capital intensive industries destroyed the Village Guilds. Economic
Thought Laissez Faire Policy – encouraged the rich brought may brought may social-economic
grievances. These changes subsequently affected India
1. Decline of urban handicraft and further ruralisation
2. No improvement in agriculture
3. Commercialization of crops and introduction of money economy

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 4. Rising middle class
5. Growing indebtedness of the cultivators and transfer of land
6. Growing population & subdivision of land
Before the advent of Britishers and Industrial revolution, pressure on land was not felt – Indian
handicraft had it own fame & popularity – modern industry, centralized administration destroyed
the self sufficient villages. Gokhale & Ranade pointed out the absurdity of following in India a
policy which may be good enough for England.
Series Famines in Nineteenth Century and efforts made to improve Indian Agriculture 1867
- Famine in North West India 1865 - Famine in Orrisa 1868 - Rajputana 1878 - Haryana 1876 - 78
South India First Famine Commission Second Famine Commission 1890 - Agriculture Conference
1892 - Agriculture Chemist was appointed 1896 - 97 Bombay, Madras 1899 - 1900 Bombay,
Central Province and Berar 1901 - Third Famine Commission 1901 - Inspector General of
Agriculture 1903 - Appointment of Entomologist & Mycologist 1903 - Pusa Agriculture Research
Institute –(Henry Phipps of Chicago donation).So the steps taken by the British Government has
least appropriate for the development of Rural Societies in India.

What is to be developed?
What Rural Development means within a particular social context is dependent upon the nature of
the values and priorities of the people in charge. It is the principal concern to be with development
of a viable cohesive community or individual human potential? Is the economic factor given
precedence over social cohesion or are either ( or both) of these given less value then development
of individual human potential and life satisfaction? The way these prime social values are
structured in a hierarchy of importance will have impact on the nature of the desired end state
specified for the process of rural development. We need to understand clearly and precisely what
the objects of rural development are. This, I think where the rural sociologists can play a key role.
What is the desired end stste of the concrete social units to be involved in the development
process? What kind of structural changes does this imply in the nature of the existing units? What
kind of negative as well as positive changes can be anticipated by alternative programmes of rural
development at the various level of social organisation involved? Perhaps simply making
developers aware of the complex interactions involved and the multiple ramifications of any simple
programme for a particular class of units (individuals, schools, farms, communities) would help.

It should not be forgotten that the broad end of rural development is to improve rural
communities and life chances of the rural people. But we need to improve rural communities and
life chances of the rural people. But, we need to spell out specific ends for particular places and
particular people. Given that the definition of what is going to represent ‘improvement’ is relative

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to some extent,we need to understand our clientel better than we do. Perhaps we need more highly
focused, small intensive studies linked to action programmes.

Approaches to Rural Development

Rural Development approach can be defined as a set of goals, operation process, terminal
objectives and structural arrangements designed to bring out change and development in the lives
of the rural people. Rural development strategy / approaches are also viewed as strategic
interventions:
1. In the rural economy through change in production and pricing, fiscal, monetary and
credit policies.
2. In the rural institutions directed towards the creation of favorable changes in the rural
infrastructure.
3. In the social structure by bringing about change in properly relationship distribution of
rights and privileges by different rural classes.
4. In the power and authority structure at various levels
5. In the cultural matters, in ideas beliefs about nature, man and society.

Rural Development approaches differ in their 1. Objectives 2. Performance priorities 3.

Ideology used by mobilizes support and action 4. Patterns of property rights and I and action 5.
Distribution of the benefits of economic system and growth process. Rural development
approaches also differ in their 1. Programme approaches can be classified based on 2. Assessment
of implementation problems 3. Strategies for optimum programme management

Major Rural Development Approaches in India

1. Rural Reconstruction 2. Community Development 3.Target Sector Emphasis Village Cantered
Movement Based on the principles of voluntary effort Rural Development based on The ideas of
motivation, Self Help, Self Reliance and People’s Participation Intensive Development of a
selected sector or sectors of (economy) activity with emphasis on concentrating in areas of
comparative advantage. Growth with social justice for the weaker sections of the population Spatial
planning concept based on appropriate clustering or dispersal of activities

Highlights of Central Plan 2010-2011

Rural Development

Mahatma Gandhi National Rural Employment Guarantee Scheme

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 - 40100 for providing 100 days of wage employment to each rural household
opting for it.

Swaranjayanti Gram Swarozgar Yojana

- 2984 for establishing micro-enterprises in rural areas through activity clusters

and group approach. At least 50% of the Swarozgaries will be SCs/STs, 40% women and
3% disabled. This also includes Rs.100 crore for Mahila Kisan Sashaktikaran Pariyojana,
a Sub-Component of National Rural Livelihood Mission.

Rural Housing

- 10000 for providing assistance to rural BPL households for construction of

houses (and upgradation of Kutcha houses) under Indira Awaas Yojana.

Pradhan Mantri Gram Sadak Yojana

- 12000 for providing connectivity to eligible unconnected rural habitations

through good all-weather roads.

National Rural Drinking Water Programme

- 9000 for National Rural Drinking Water Programme.

Rural Sanitation

- 1580 for Total Sanitation Campaign.

Against the background of the above debate, the present study takes a specific approach which
depends upon major parameter like the role of communication in rural development.
Communication means language, roadways etc. However, my prime concern is with road
communication.

Pradhan Mantri Gram Sadak Yojana: A Review

The Pradhan Mantri Gram Sadak Yojana (PMGSY) is a Government of India Scheme introduced
in the year 2000-2001 with the objective of providing road connectivity through good all weather
roads to all unconnected rural habitations having population above 1000 by 2003 and all
unconnected habitations having population of 500 and above by end of Tenth Plan period (2007).
Under this programme the approved works are grouped into packages costing more than Rs. 1
crore but less than Rs. 5 crores and executed through tender system. The guidelines stipulate that
district master plans would be prepared. A District Rural Road Plan is prepared for each district
indicating the habitations in each block with the existing status of road connectivity. The scheme
will be fully funded by the Government of India and an allocation of Rs. 750 crores has been

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proposed for the Tenth Plan. Rural roads are the tertiary road system in total road network which
provides accessibility for the rural habitations to market and other facility centres. In India, during
the last five decades, rural roads are being planned and programmed in the context of overall rural
development, and tried to provide all-weather connectivity with some level of achievement. The
long term road development plans for the country provided policy guidelines and priorities for rural
roads, while the funds for rural roads were allocated in the Five Year Plans.

Recently, during the last five years Government of India has undertaken a dedicated
programme known as ‘Pradhan Mantra Gram Sadak Yojana (PMGSY)’ to provide rural
connectivity to all habitations under the Ministry of Rural Development. More recently, Bharat
Nirman, a time bound business plan adopted to provided rural infrastructure during 2005-09, rural
roads have been taken as one of the components and blended with PMGSY programme. It targeted
to provide connectivity to all habitations having population of 1000 and above (500 and above in
hilly, desert and tribal areas) by 2009 and also aimed to upgrade the existing rural roads for overall
network development, which is a more objective approach.

To achieve the targets of Bharat Nirman, 1,46,185 km length of rural roads is proposed to
be constructed to benefit 66,802 unconnected eligible habitations in the country. It is also proposed
to upgrade nearly 1.94 lakh km length of the existing rural roads which are identified as the
through routes of the core network. The total investment on rural connectivity under Bharat
Nirman has been estimated at Rs. 48,000 crore during 2005-2009. Since 11th Five Year Plan
(2007-2011) goes beyond the targeted period of Bharat Nirman, assessment of physical targets and
upgradation requirements, have been estimated based on the experiences of PMGSY.

The financial requirement during the 11th Five Year Plan is estimated based on the
physical targets proposed and an amount of Rs. 79,000 crore is required to fulfill the targets
estimated for new connectivity and upgradation. For new connectivity alone, total amount required
is estimated as Rs. 50,000 crore for construction of 1.65 lakh km length benefiting approximately
78000 habitations. The total estimated amount required for the upgradation of the existing rural
roads of about 1.16 lakh km requires about Rs.29,000 crore during the 11th Five Year Plan period
as per PMGSY norms. In addition, State Governments have to borne for the additional requirement
of upgradation and as well as periodic renewal of about 1.2 lakh km length of core network, which
may be in the order of Rs.25,000 crore. For routine maintenance and periodical renewal of the core
network, an estimated length of 1.4 million km identified from the district rural road plans (DRRP)
needs Rs.1,40,000 million every year during the plan period.

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 In addition, It focused on future planning and engineering issues for providing, multiple
connectivity, intra village road development, performance based design, utilisation of locally
available and waste materials in rural road works, maintenance management aspects, institutional
and capacity building issues, research and development needs and resources mobilization.

THE PROBLEM
Pradhan Mantri Gram Sadak Yojana, a revolutionary step taken by the then NDA government to
wards the rural development in India, as we know seventy percent of the population lives in rural
areas. Hence development of the rural community is the development of the whole country. As a
beginning step, PMGSY proved to be an agent of tremendous improvement in the rural service
provisions. The government plays a critical role in this process during the earlier stage. As we
know our country is a democratic based on Parliamentary system where in each five year the
people vote to elect a party to form a government in the centre? So sometimes it is found that a
particular party ruled/ rules for more than a single term where as some parties for a single term. So
in this case a developmental activity taken by a previous government is hampered by the next
government, either they fully stop that process or sometimes renamed that process in accordance to
their profit. For example, the Swarna Chaturbhuj Yojana, (connecting the four metropolises
through four lane highway) gets hampered with the change of government. So the main problem
here is to see the carryout of the PMGSY by the congress led UPA government.

OBJECTIVES
After independence various governments were formed and various five years plans were taken
place. How ever Transportation networks and service centres remain the main focus of
development. How ever the particular issue in regard to rural structure remained neglected. So in
this context the main objectives of my study are to find out, socio-economic impact of
PMGSY.They are the followings:
 to find out Transportation network and service centres
 to find out Household use of and access to services
 to find out importance of services; and
 to find out economic status of the household
 to find out Dynamics of service provision

METHODOLOGY
Methodology and Research techniques are two distinguishable terns ,while the term ‘technique’ is
used for referring to the primary data collection, the ‘methodology’ denotes to refer to the ‘logic-
in-use’, involved in selecting particular observational techniques, assembling their yielded data and
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relating these data to theoretical positions. The study deals with the relationship between PMGSY
and Rural Development, for this purpose rigorous empirical/ethnographic research of the societal
response to social phenomena, paying special attention to the perception of villagers evolving
around the PMGSY is needed. This study talks about the relationships of ‘parts’ to the ‘whole’,
According to the above research questions and objectives, the methodology of the proposed study
is based on the ethnographic approach. Ethnography is a form of research focusing on the
Sociology of meaning through close field observation of Socio-Cultural phenomena. This demand
of ethnographic research can be possible through two major research techniques: Participant
Observation and Key Informant interviewing.

THE FIELD

Write where u have done your field wotk

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 Pradhan Mantri Gram Sadak Yojana
A
Governmental Perspective

(This Chapter talks about the aspects and objectives for implementing of such a programme by the
)
government of India and its causes for continuation till now.

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Rural Road Connectivity is not only a key component of Rural Development in India; it is also
recognised as an effective Poverty Reduction Programme. Notwithstanding the efforts made, over
the years, at the State and Central levels, through different Programmes, even after five decades of
Independence, about 40% of India's villages do not have proper Road Connectivity. Keeping in
view the fact that Rural Roads are vital to economic growth and to measures for poverty alleviation
in the villages, Government's resolve to provide total Rural Connectivity was indicated in the
Address of the Hon'ble President to the Joint Sitting of Parliament on 25th October, 1999, when a
Programme of construction of All weather roads in the rural areas was announced. The Rural
Roads Programme as a component of the Pradhan Mantri Gramodaya Yojana (PMGY) was
announced by the Finance Minister in his Budget Speech, 2000-2001. The Department of Rural
Development had in January, 2000, set up a National Rural Roads Development Committee under
the chairmanship of Shri Nitin Gadkari to assess the magnitude of the task, the volume of funds
required and to suggest Implementation Strategies as also suitable Agencies for the same. The
Committee submitted its Report in May, 2000. The gist of its recommendations is enclosed at
Annexure-V. In April, 2000, the Union Cabinet decided that 50% of the Diesel Cess would be set
apart for Rural Roads and made available to the Ministry of Rural Development. In December,
2000, Parliament enacted legislation imposing Diesel Cess and earmarking 50% of the Cess to the
Development of Rural Roads. In his Address to the Nation on 15th August, 2000, the Prime
Minister stated:
"For the first time since Independence, the Central Government has devised a well conceived and
time-bound programme for rural roads. This hundred percent Centrally Sponsored Scheme, which
is called the "Prime Minister's Rural Roads Scheme", aims to connect within the next three years,
every village that has a population of more than one thousand, through good all-weather roads. By
2007, every village with a population more than five hundred will be similarly connected."

This Ministry, accordingly, drew up a Programme, the Pradhan Mantri Gram Sadak Yojana
(PMGSY) which envisages an investment of about Rs. 60,000 crores to achieve the objectives
outlined by the Prime Minister. Since the Diesel Cess to be collected over the next seven years is
far less than the requirement, it is proposed to utilize the Cess receipts to leverage further funds,
both from the Market as well as from External Funding Agencies. The Scheme also provides for a
projectised approach and tight monitoring of the performance by the States. The details of the
allocations made to the States/ Union Territories for Rural Roads for 2000-2001 by the Planning
Commission are at Annexure-VI. The Pradhan Mantri Gram Sadak Yojana was launched by the
Honb’le Prime Minister on 25th December 2000. Guidelines of the Programme have been issued to
all the States/UTs on 15th December, 2000. The primary focus of the Programme is on construction

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of new roads. It is proposed to connect about 1 lakh villages in the Availability of Roads Ensures
Prosperity next seven years. Besides, upgradation (to prescribed standards) about 5 lakh Kilometers
of existing roads will be taken up under the Programme, so as to achieve connectivity through a
good All-weather roads. The key elements of the Pradhan Mantri Gram Sadak Yojana are as
follows:
Preparation of Master Plans -
District Rural Roads Plans to be generated, based on block level plans. Project
Implementation Units to be formed to ensure professional and timely completion;
Execution on a Project Mode;
Ensuring Standard Specifications, including adequate cross-drainage works;
Time-bound Execution - completion in 9-12 months;
Penalty clauses for time overruns;
No Escalation permitted;
Strict Quality Control – independent Monitors to inspect works;

The Programme further envisages --

Ready availability of Land for the Roads;
Maintenance of the Roads by Panchayati Raj Institutions;
Encouraging use of locally available materials for construction of roads;
Planting of trees on either side of the roads. Proposals have been received from several
States/UTs and others are expected shortly. Proposals worth about Rs. 658 crores have
been approved by the end of January-2001. It is expected that the entire allocation of
Rs.2500 crores available for this year, will be released to the States well before the end of
the Financial Year. Rural Road for Accelerated Socio-Economic Development

The Pradhan Mantri Gram Sadak Yojana (PMGSY) was launched on 25th December, 2000, and
has now been under implementation for over nine years. It is a 100% Centrally Sponsored Scheme
which primarily aims to provide single all weather road connectivity to over 1.60 lakh eligible
Unconnected Habitations at an estimated investment of about Rs. 60,000 crore. The works are
executed by the State Governments and monitored by the Ministry of Rural Development through
the National Rural Roads Development Agency (NRRDA), set up for the purpose.

Main features of PMGSY

Based on the experience gathered during the first two years of implementation of the PMGSY and
the feedback received from the Field Engineers, States and Public Representatives, the Guidelines

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of PMGSY have recently been revised and issued on 7th January, 2003. The Revised Guidelines
have become effective from 15th January, 2003. The salient features of the PMGSY are as under:

1. Preparation of Rural Roads Plan and Core Network:

All roads under PMGSY are to be prioritised out of the Core Network keeping in view the
priorities as per the Guidelines in respect of population size and giving preference to New
Connectivity.

2. Roads specifications:
Roads are to be built as per the specifications given in Rural Roads Manual published by
the Indian Roads Congress (IRC:SP20:2002). It may be noted that the Rural Roads
Manual allows for a carriageway of 3.0m where traffic intensity is less than 100 motorised
vehicles per day and where the traffic is not likely to increase due to situation, like, dead
end, low Habitation and difficult terrain condition. To ensure economy in respect of link
roads, the carriageway width may be restricted to 3.0m providing rural connectivity
through all weather roads in all such cases with corresponding reduction in roadway width
etc. as per the Rural Roads Manual.

3. District level Programmes:

Once the Core Network is prepared, it is possible to estimate the length of roads required
for New Connectivity as well as Up gradation for every District. The States Allocation will
henceforth be distributed among the Districts giving 80% on the basis of road length
required for providing connectivity to Unconnected Habitations. The District-wise
allocation of funds would also be communicated to the Ministry/NRRDA every year by the
State Government.

4. Scrutiny, Approval and Clearance:

The proposals prepared by the District Panchayats are to be approved by the State level
Standing Committee, whereafter Detailed Project Reports will be prepared for those roads
and scrutinised by the State Technical Agencies (STAs) nominated by the NRRDA
(Annexure- XV). The STAs have been selected from among the Indian Institutes of
Technology, Regional Engineering Colleges and Government Engineering Colleges of
repute. Proposals are to be sent to NRRDA for clearance based on the scrutiny completed
by STAs.

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5. Project clearance and Release of funds:
Projects will be cleared by the Empowered Committee of the Ministry of Rural
Development and 25% of the estimated cost will be released at the time of clearance.
Subsequent releases for all road works will be subject to utilisation of 60% of earlier
released funds as well as completion of 80% of the approved road works upto (but not
including) the year previous to the current year and other standard conditions.

6. Fund management in State:

Each State will identify/create a State level Autonomous Agency to maintain and operate
Bank account to receive project funds. This account will be operated by the District
Programme Implementation Units (DPIUs).

7. Execution: –
No new Agency/Consultants will be created for execution only.

8. Tendering:
The works will be tendered as per Standard Bidding Document being circulated to the
State Governments by NRRDA. Projects will be completed within 9-– 10 months except
in the case of Hill States where upto 18 months is allowed. Cost escalation, if any, due to
changes in design or time-overruns or tender premium will be borne by the State
Governments.

9. Monitoring and Quality: –

Ensuring the quality of the road works shall primarily be the responsibility of the State
Governments/ Union Territory Administrations, who are implementing the Programme. In
addition, District Vigilance and Monitoring Committee set up by the Ministry of Rural
Development will also monitor the progress under the Scheme.

10. Computerisation: –
Internet based software has been developed by C-DAC, Pune and installed along with
hardware in all States and Districts. Training has also been provided to staff. It is expected
that data regarding proposals and projects as well as detailed information regarding
execution of new road works will be regularly entered into data base. Regular updating of
the software (called OMMS) is an essential requirement for continued funding of projects
under PMGSY and failure to do so will affect releases.

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11. Maintenance:
Roads under PMGSY are required to be maintained by the State Governments. State
Governments have to communicate a satisfactory mechanism for the maintenance of rural
roads under PMGSY in order to be able to receive Programme assistance. The Scheme
envisages Performance Guarantee for five years by the Contractor where after the road
may be transferred to Panchayati Raj Institutions for maintenance

National Rural Roads Development Agency (NRRDA)

The National Rural Roads Development Agency (NRRDA), registered under the Societies
Registration Act, 1860 to extend support to the Programme through advice on technical
specifications, project appraisal, appointment of part time Quality Control Monitors, management
of monitoring systems and submission of periodic reports to Ministry of Rural Development,
became functional during the year 2002. A number of Workshops on Maintenance of Rural Roads,
Accounting and Audit System for PMGSY, Quality Control Handbook, Standard Bidding
Document and Core Network were organised by the NRRDA during the year. Details are given at
Annexure-XVI. Further, several studies were sponsored and Manuals, Handbooks and other
publications were brought out by the NRRDA during the year. These included, inter alia, the
Quality Control Handbook, the Quality Control Registers, User Manuals, publications on progress
of works etc.

Release of funds:
Since the Programme is being executed in a Project Mode, the release of funds depends on the
performance of the State in both physical and financial terms. Funds are now released to the States
only when they report completion of at least 80% of the road works of the first year and utilise
60% of funds already released to the State. The Ministry and the National Rural Roads
Development Agency (NRRDA) are regularly reviewing the progress of works. The States,
particularly those with large number of Unconnected Habitations such as Uttar Pradesh, Bihar,
Madhya Pradesh, Jharkhand, West Bengal, Orissa, Chhattisgarh, Rajasthan and Assam, were being
urged to take steps to improve their absorption capacity. It has been impressed upon the States that
they need to critically scrutinise administrative procedure, delegate financial and administrative
powers, strengthen the Programme Implementation Units at the District level, improve quality
consciousness and put in place an effective monitoring mechanism.

Quality of Works:
Under the PMGSY, quality is sought to be ensured through a three-tier Quality control System, in
which the Executing Agency is primarily responsible for maintaining the quality through its

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Executive Engineers, at the Programme Implementation Unit (PIU) level, as well as through an
independent State level Quality Control mechanism, independent of the Field Engineers. In
addition, the National Rural Roads Development Agency (NRRDA), as the third-tier,engages
National Quality Monitors (NQMs) to verify on a systematic randomised basis, the qualityof road
works. NQMs are generally senior retired officials with adequate experience in road construction
programmes. The reports of the NQMs are sent to the State Government for necessary action. Of
the 3378 road works inspected by NQMs between March and December, 2002, 7% have been
categorised ‘very good’, 62% as ‘good’, 25% as ‘average’ and 6% as ‘poor. Steps are being taken
to ensure that any deficiency detected by the monitors is rectified before the State Authorities can
make further payments. Suitable mechanisms in this regard have been built into the On-line
Management & Monitoring System (OMMS) and have been incorporated in the Revised
Guidelines. In order to have an in-built Quality Control System effectively in place, the NRRDA
has developed a Quality Control Handbook and Quality Control Registers which are to be
maintained for all road works. These are being printed and supplied to the State Authorities. It has
been stipulated in the Revised Guidelines that payment shall not be made to the Contractor unless
the tests have been found to be successful. The record of tests shall be computerised on the format
prescribed by the NRRDA. The State Governments/UT Administrations are also expected to put in
place systems to identify and take appropriate action (including blacklisting of contractors in
serious cases) against the Contractors and the Field Engineers who are found negligent in ensuring
the quality of road works. Recurrent adverse reports about quality of road works in a given
District/State might entail suspension of the Programme in that area till the underlying causes of
defective work have been addressed. These measures are expected to lead to construction of good
quality roads under the PMGSY.

External Funding Agencies:

Keeping in view the resource gap for the Programme, Government of India have been taking steps
to arrange additional funds for the Programme. The World Bank and the Asian Development Bank
(ADB) have agreed to fund the Programme commenced from the year 2003-04. This is likely to be
the first in a series of loans for the PMGSY. In the first stage, the States of Madhya Pradesh and
Chhattisgarh are being taken up under the ADB Project. Likewise, the World Bank has also began
funding projects from 2003-04 in the States of Uttar Pradesh, Rajasthan, Jharkhand and Himachal
Pradesh. Discussions are presently under way regarding the size and nature of loans

Accounting System
The Institute of Public Auditors of India (IPAI) submitted their Report on the Accounting and
Audit System for the PMGSY and based on the same, the arrangements for Flow of Funds,

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Procedure for Release and Audit have been suitably amended and incorporated in the Revised
Guidelines of the PMGSY.

Training and Research

The NRRDA has drawn up an elaborate strategy for training of Engineers, contractors and all
other personnel involved with the execution of the PMGSY at the District, State and National
level. These would cover, inter alia, the following aspects :-
* Planning and preparation of Detailed Project Reports (DPRs) including Project Scheduling
* Design of road geometrics, Pavements and Cross-Drainage works
*Construction methods for the road components
* Quality Assurance and Control
* Maintenance of Rural Roads
* On-line Management & Monitoring System
* Management of Social and Environmental Aspect in different stages of Rural Roads
Development

It is proposed to involve the Principal Technical Agencies, State Technical Agencies and retired
Field Engineers for imparting training. The NRRDA has also identified seven Principal Technical
Agencies (PTAs) to act as the Regional Coordinators of the STAs as well as the extended arms of
NRRDA in the pursuit of its objectives. The role and responsibilities of the PTAs include
overseeing the activities of the STAs in the region, carry out random checks of the proposals
scrutinised by STAs, organise orientation/refresher programmes to the STA personnel for proper
scrutiny of project proposals, evaluate specifications, practices and the use of locally available
materials for making the proposals cost effective, formulate design specifications for new and
innovative technologies, advise the PIUs on any region specific issues that may have a bearing on
the design construction and performance of Rural Roads, study the gaps in the existing practices in
Rural Roads construction, to identify area for research and development, to develop course
material for different modules of the Training Programmes at Regional level and act as Resource
Institutions for the training of Field Engineers and the Trainers where necessary. The PTAs are
also to assist the NRRDA in processing the research and development proposals, and identifying
and resolving issues arising out of quality monitoring and quality audit of roads in progress as well
as completed road works. The identified PTAs are the Central Road Research Institute (CRRI);
IIT, Mumbai; Department of Civil Engineering, University of Bangalore; IIT, Kharagpur; IIT
Roorkee, Birla Institute of Technology, Pilani and National Institute of Technology, Warangal.
The National Council for Building Materials (NCCBM) has been asked to supervise the
construction of 200 km. of cement concrete roads as pilot projects in selected States. It has also

16
taken up pilot projects involving use of Modified Bitumen (including Rubber Modified Bitumen)
for wearing courses in all the States under the PMGSY.

On-line Management & Monitoring System

The internet-based On-line Management & Monitoring System has been set up for the PMGSY.
The Centre for Development of Advanced Computing (C-DAC), Pune have prepared the 9
Application Software Modules and these have been released in November, 2002. The PMGSY
website has been launched in November, 2002 and the site can be accessed at www.pmgsy.org .
Details of road works including, inter alia, the name of road works, length of road, cost, name of
Executing Agency and name of contractor are being made available on the PMGSY web site.
Orientation Training for State IT Nodal Officers has been conducted and the Training of Master
Trainers has also been completed in December, 2002. State level Training for personnel from the
Programme Implementation Units (PIUs)/ Districts are being organised. Version 2.0 of the User
Manual has also been developed and published and copies have been made available to the States.
The requisite Hardware has been supplied to the Districts and the States.

17
 PMGSY- AT A GLANCE
Objective
A 100% Centrally sponsored scheme launched with effect from 25th December,2000 to
provide connectivity to all Unconnected Habitations (around 1.60 lakh) with all weather
roads. All Unconnected Habitations with a population of 500 persons (or more) to be
provided connectivity by the end of Tenth Plan Period (2007).

Estimated Expenditure
Rs.60,000 crores

Execution Of Works And Monitoring

Works to be executed by the State Governments. Project proposals are to be based on the
District Rural Roads Plan and identified Core Network.
No new Agency/Consultants to be created for execution only.
Roads are to be built as per the specifications given in Rural Roads Manual published by
the Indian Roads Congress. Ensuring the quality of the Road is primarily the
responsibility of State Governments/Union Territories.
District Monitoring and Vigilance Committee set up by the Ministry of Rural
Development also monitors the Progress under the Scheme.
Maintenance
The responsibility of maintenance of roads is of State Governments. The scheme envisages
performance guarantee for five years by the Contractor; thereafter the roads may be
transferred to Panchayati Raj Institutions for maintenance.

National Rural Roads Development Agency (NRRDA)

Registered under the Societies Registration Act, 1860 to extend support to Programme
through advice on technical specifications, project appraisal, appointment of part
time Quality Control Monitors etc.
Became functional in 2002.

18
 IMPACT ASSESSMENT
OF
PRADHAN MANTRI GRAM SADAK YOJANA
(PMGSY)
(In the States of Assam, Himachal Pradesh, Madhya Pradesh, Mizoram, Orissa, Rajasthan, Uttar
Pradesh, Tamil Nadu & West Bengal, here all the datas are based on governmental reports )

19
Rural road connectivity is a key component of rural development, since it promotes access to
economic and social services thereby generating increased agricultural income and productive
employment opportunities in rural India.

Objectives of the assessment study

• To assess the overall socioeconomic impact on the lives of the rural people as a result of
enhanced rural connectivity provided through the PMGSY, and
• Documenting the improvement or the changes brought about by PMGSY roads in the lives of the
rural poor at the household level and village level.

The specific focus of the study was on the following sectors:

• Agriculture & allied sector
•Employment • Industry
•Health • Education
•Social aspects • Transport
•Urbanization
•Poverty Alleviation.

The above study conducted by the Government of India includes both Primary as well as
Secondary Sources. Primary sources: The perception and responses of the community on selected
indicators were utilized to draw inferences and conclusions regarding benefits accrued for the rural
community due to upgradation / construction of roads. Secondary sources: Data on lengths of the
roads, their connectivity, dates of starting and completing the construction and other details were
collected from the secondary sources.

Key Findings of the Assessment

Impact on Agriculture
• The construction of the PMGSY roads has greatly benefited the farmers. Prior to the construction
of the PMGSY roads, farmers found it difficult to sell agricultural goods in the bigger markets that
are located at a distance from their villages. Due to lack of transport, the farmers had to often
physically carry the baskets of agricultural goods on their heads and could thus transport only a
small amount of agricultural produce to the market. Also, a lot of travel time was lost. Thus, the
whole process was not profitable. However, the construction of the PMGSY roads has resulted in
increased and easier movement of farmers and their produce and has thus increased agricultural
profit.

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PMGSY road connectivity has led to a better transport system during all seasons. Farmers
mentioned that the problem of not being able to access the markets during monsoon has been
solved by the construction of the roads. This impact has been greatly felt in the states of West
Bengal, Himachal Pradesh, Mizoram, Assam etc.

The PMGSY roads had a positive impact on the agricultural infrastructure as habitations are now
using motorized equipments such as tractors, threshing machines for cultivation leading to a more
efficient, time saving and profitable process of cultivation.

The PMGSY roads have made it easier to transport chemical fertilizers, seeds and pesticides.
Increased use of these items was observed in Uttar Pradesh, Himachal Pradesh and West Bengal.

Considerable change in cropping pattern was observed in the States of Himachal Pradesh,
Mizoram and Tamil Nadu, with a switch from food crops to cash crops (such as ginger, jute,
sugarcane, sunflower).

Change in cropping intensity as a result of increased agricultural trade was observed in case of
crops like tomato, cauliflower, amla, harre, behar etc. in the post PMGSY road phase.

An increase in the number of families rearing goats/sheep for commercial purposes was mentioned
by beneficiaries in states of Rajasthan, Himachal Pradesh and Uttar Pradesh. Many families had
bought cycles after the construction of the road to be able to carry dairy products for sale in nearby
towns.

Impact on Employment Generation

After the construction of PMGSY roads, an improvement in the employment situation in terms of
more job opportunities, more avenues for self-employment, etc. were observed. A lot of
housewives mentioned that they have started small scale industries like making pickles, papads,
boris (lentil cakes) murir moa (puffed rice balls) etc.

On-farm employment opportunities have increased due to shift from grains to cash crops and also
multiple cropping, particularly in the states of Tamil Nadu, Madhya Pradesh and Mizoram.

More people are going to nearby towns and villages for odd jobs like selling wood, vegetables,
dairy products and locally made items like pickles, papad etc.

21
Non-farm opportunities like opening of shops, small business, cottage industries has increased in
the States of Himachal Pradesh, Madhya Pradesh, Mizoram, Tamil Nadu and Uttar Pradesh.

Besides, road connectivity has led to expansion of local industries, which in turn has generated
employment opportunities.

Impact on Industry
There has not been much impact in the industrial sector in terms of new small industries as it is too
early to measure change. However, an impact on the existing small industries was observed in
terms of easier access to raw materials, availability of commercial vehicles to transport bulk
product to the markets etc. This has led to economies of scale, particularly in the state of Assam
and Mizoram.

Beneficiaries reported that the pottery and brick making industry of Orissa has benefited from the
PMGSY roads.

Perceived benefit of PMGSY roads was also reported in the cottage industries of Tamil Nadu,
Handloom industry of West Bengal and Agro industry in Assam.

Impact on Health
There has been an overall improvement in access to the health facilities like PHC’s, subcentres
and district hospitals in the States of West Bengal, Uttar Pradesh, Orissa, Tamil Nadu,Himachal
Pradesh and Madhya Pradesh.

Positive impact was observed with regard to increase in accessibility to preventive and curative
health care facilities; better management of infectious diseases and attending to emergencies due to
faster access to health facilities and increase in frequency of visits by health workers.

Improvement in ante-natal and post-natal care thereby decreasing obstetrics emergencies was
observed by beneficiaries in the States of Mizoram, Madhya Pradesh, Orissa, Tamil Nadu, Uttar
Pradesh and West Bengal.

Beneficiaries of the abovementioned states also mentioned that road connectivity and an improved
transport system had enabled families to opt for institutional deliveries in hospitals outside the
village.

22
Beneficiaries reported decrease in infant and child mortality especially in the States of Orissa,
Madhya Pradesh, Himachal Pradesh, Tamil Nadu, Uttar Pradesh and West Bengal. This has been
possible due to easier and faster availability of health care facilities in the post PMGSY road
phase.

Impact on Education Sector

With the construction of PMGSY roads, there has been an improvement in the accessibility to
education facilities. This has resulted in increased school enrolment and school attendance in all
the States.

Beneficiaries reported that the PMGSY road connectivity had led to an increase in the number of
girls going to schools in the States of Assam, Madhya Pradesh, Orissa, Tamil Nadu and West
Bengal. Most parents mentioned that they were now more confident about sending their daughters
to schools unescorted.

Another noteworthy impact has been in terms of regular attendance of the teachers throughout the
year and greater inclination of parents to send boys and girls for higher studies and college
education.

Impact on Social Aspects

The construction of the PMGSY road has led to an increase in frequency of visits by Government
officials. This is likely to result in better implementation of various Government schemes and
programs.

There has been an increase in the visits of grassroot level functionaries like health workers/
Auxilliary Nurse and Midwives (ANMs), Village Level Workers (VLWs) and Village Anganwadi
Worker (VAWs) in the states of Orissa, Himachal Pradesh, Madhya Pradesh and West Bengal.
Beneficiaries also mentioned that with better road connectivity there has been an improvement of
the Post and Telegraph facilities in all the States.

Road connectivity has also enabled a quicker access to police services. This has ensured an
improved law and order situation in some areas.
A notable change as observed was that social network of villagers has widened in all the States.
Marriage alliance radius has increased substantially.

23
The road connectivity has increased the mobility of women as they can now travel alone in buses
and cycles. Many women mentioned that they have taken up small jobs (such as an anganwadi
worker, daily wage labourer etc) in the post road phase.

Impact on Transport Facilities

• The benefits of rural connectivity have been felt most in Mizoram and Rajasthan where PMGSY
roads have made it easier for the beneficiaries to cope with the difficult terrain.

• Beneficiaries in all the States mentioned that there has been an increase in ownership of bicycles
and two wheelers, especially in the States of Assam, Rajasthan, West Bengal and Tamil Nadu.

• Beneficiaries also mentioned that there has been an improvement in the public as well as the
private transport system in all the States under study.

Impact on Urbanization
Trend towards urbanization of an area as an immediate and direct impact of providing rural road
connectivity was observed in course of the study. The study areas have seen some rapid changes
from traditional to modern ways of life. For instance, the phenomenon of neon light attraction has
drawn the villagers to the town entertainments; there has been increased use and ownership of
television and other electrical gadgets.

The states of Mizoram, Tamil Nadu,West Bengal reported conversion of kuchcha houses to pucca
houses.

Beneficiaries in all the States mentioned that the most visible change was in term of sudden
escalation of prices of land adjacent to the PMGSY roads. This had led to an increase in the sale of
land for commercial purposes.

Impact on Poverty Alleviation

A spin-off benefit of PMGSY roads has been on the income level of the habitants benefiting from
these roads. The roads, directly or indirectly have provided opportunities for farm and non-farm
employments as well as self-employment.

With the improvement in farm and non-farm employment opportunities, beneficiaries in all the
states reported increase in their average household income.

24
Progress under rural roads component of Bharat Nirman
Nine States – Assam, Bihar, Chattisgarh, Jharkhand, Madhya Pradesh, Orissa, Rajasthan, Uttar
Pradesh and West Bengal – accounted for around 91% of the new connectivity targets of 2005-09
(53,138 habitations targeted in these States against the total target of 59,461).

THE ORISSA STATE RURAL ROAD AGENCY (OSRRA)

The Orissa State Rural Road Agency” (OSRRA) is an “Agency” registered under the Society
Registration Act 1860 on 19.6.2003. The registered office of the Agency is in the Rural
Development Department, Orissa Secretariat at Bhubaneswar. The area of operation of the Agency
is whole of Orissa State. These Rules and regulations is called the “Rules of The Orissa State Rural
Road Agency”.

Aims & objectives of the Agency:

For implementation of the PMGSY, Govt. of India is releasing funds to the State Govt. As per the
guidelines formulated by Govt. of India for implementation of PMGSY, State Government have
set up a State Level Autonomous Agency i.e. “The Orissa State Rural Road Agency (OSRRA)”,
with a distinct legal status, registered under Registration of Societies Act, 1860, through which the
Ministry of Rural Development is releasing funds to the State for implementation of PMGSY with
the following objectives:

(i) Approve all the project proposals under PMGSY received from the district before they are sent
to Government of India for approval.

(ii) Monitor and review implementation of Pradhan Mantri Gram Sadak Yojana.

(iii) Receive funds from the Govt. of India for implementation of Pradhan Mantri Gram Sadak
Yojana or any other funds relating to rural connectivity

(iv) Select State Bank of India, Bhubaneswar Main Branch for receiving funds on behalf of
OSSRA and maintains Accounts of the Pradhan Mantri Gram Sadak Yojana.

1. Governing Body:
The Governing Body of the The Orissa State Rural Road Agency is constituted as follows:-
(i) Minister, Rural Development. - President
(ii) Chief Secretary, Orissa - Vice-President.
25
(iii) D eve lopment Commissioner, Orissa - Member
(iv) A gr iculture Production Commissioner, Orissa - Member
(v) Pr in cipal Secretary, Finance Department - Member
(vi) Co m missioner-cum-Secretary, P.R. Deptt. - Member
(vii) Commissioner-cum-Secretary, R.D. Deptt. - Member
(viii) Chief Engineer, Rural Works-II - Member
(ix) D ir ector and Addl. Secretary, R.D. Deptt. - Member Secretary

2. Executive Committee:
For smooth implementation of Pradhan Mantri Gram Sadak Yojana (PMGSY), The Orissa State
Rural Road Agency (OSRRA) have constituted an Executive Committee to implement the policy
and decision of the Governing Body and other functions as laid down in the Memorandum of
Association and Rules and Regulations of the OSRRA. Accordingly the Executive Committee of
the Orissa State Rural Road Agency has been constituted having following members.

1. Minister, Rural Development - Chairman

2. Chief Secretary - Vice Chairman
3. Commissioner-cum-Secretary, P.R.Deptt. - Member
4. Commissioner-cum-Secretary, R.D.Deptt. - Member
5. Chief Engineer, RW-II - Member
6. Director, RD & Ex-Officio Addl. Secy., - Member-convener. R. D. Department

3. Membership:
(i) The members shall hold office as ex-officio members.
(ii) The Governing body can co-opt any officer/person to be the Member of the Governing body or
of the Executive Committee of the Agency.

4. Termination of membership:-
The membership of a member of the Agency shall stand terminated when he/she ceases to hold the
office or appointment.

5. Power & Functions of the office bearers:-

(A) President & Vice-President:-
(i) The President will preside over the meeting of the Governing body and Executive
Committee and in his/her absence the Vice-President will preside.

26
 (ii) They will exercise any other power as may be entrusted by the Governing Body.
(B) Member-Secretary:
(i) All executive and financial power of the Agency shall vest on the Member
Secretary,

(ii) He/she shall be responsible for planning; implementation and monitoring the
activities as would be guided and decided by the Agency.

(iii) He/she will exercise and discharge such duties as may be delegated to him by the
resident/Vice-President or the Governing Body of the Agency.

(iv) He/she will be responsible for opening and operating the Bank Accounts of the
Agency.

6. Power & functions of the Agency:-

(A) Governing Body:-
(i) Overall policy guidance and coordination of the programme
implementation at the district level.

(ii) Ensure coordination with various Departments, agencies connected

with implementation of Pradhan Mantri Gram Sadak Yojana.

(iii) Approve and sanction the Annual Plan and the Budget.

(iv) Make, alter and revise Rules and regulations of the Agency.

(v) Co-opt any person to be the Member of the Governing Body and/or
Executive Committee.

(vi) Any other function that would be necessary to achieve the goal of the
Agency.
(B) Executive Committee:-
(i) Implement the policy and decision of the Governing Body.

(ii) Monitor the progress and flow of funds for effective implementation of
the Pradhan Mantri Gram Sadak Yojana in Orissa.

27
 (iii) Issue direction to the implementing Agencies for accelerating the
progress and ensure quality.

(iv) Ensure implementation of the instructions, orders issued by NRRDA

and Ministry of Rural Development with regard to implementation of
PMGSY.

(v) Authorise opening of separate Bank Account in the State level and
release of funds to the Project Implementation Units at the district level in
conformity with the guidelines issued by the Govt., of India. (vi) Review
and monitor proper maintenance of the roads constructed under PMGSY
and can raise/ receive funds for this purpose with the approval of the
Governing Body and State Government.

(vii) Any other function that may be specifically delegated by Governing

Body.
7. Meeting of the Agency:
(i) The Governing Body/ Executive Committee of the Agency shall meet as
often as may be considered necessary for the transaction of the business of
the agency, provided that the Governing Body shall meet at least once in 6
(six) months and Executive Committee shall meet at least once in 3(three)
Months.

(ii) The meeting of the Agency shall be held at such date and time as may
be fixed by the Member Secretary in consultation with the President/ Vice
President.

(iii) At least one-week notice shall be given for convening a meeting. An

extraordinary meeting may, however, be called at a shorter notice.

(iv) The President and in his absence the Vice-President for the Governing
Body or the Member Secretary for the Executive Committee will preside
over every meeting of the Agency.

(v) All decisions will be taken by majority vote of members present and
voting.

28
8. Quorum
The minimum quorum for a meeting will be 4 (four) members provided that at least one
between President/Vice-President and Member-Secretary shall be present in the meeting.

09. Emergency Power of the President, Vice-President & Member-Secretary

Nothing in these rules & regulations shall prevent the President/Vice-President and
Member Secretary from exercising all powers of the Agency in case of emergencies for
furtherance of the objectives of the Agency and action taken shall be reported to the
Agency in the next Governing Body & Executive Committee.

10. Proceedings of the meeting:

(i) All business of the Agency as far as possible will be recorded as proceeding of the
Agency.

(ii) All disputed questions shall be determined by majority votes. Each member shall have
one vote and in case of equality of votes the President shall have a second casting vote.

(iii) The proceedings of the meeting of the Agency shall be circulated to all members.

11. Funds of the Agency and Accounts

The fund of the Agency shall consist of following
(i) Grants received from Govt. of India.
(ii) All money received by way of grants, transfer or in any other manner from
any other source.

12. Management of funds:-

(i) All money received from the Govt. of India shall be credited to the Account of
the Agency opened for the purpose in the Nationalized Bank.

(ii) Release of funds to the Project Implementation Units at the District level will
be regulated as per the guidelines formulated by the Govt. of India.

(iii) Funds will be drawn by cheques which will be signed by the Member
Secretary as and when required.

29
13. Accounts and audit:
(i) The accounts of the Agency will be maintained as per the direction issued by
MORD Govt. of India.

(ii) The Accounts of the Agency shall be audited by a Chattered Accountant or

other qualified persons or agency who shall be appointed by the Govt. of India/
State Govt. in R.D. Deptt. in the manner prescribed by the MORD, Govt. of India.

(iii) The monthly account showing the allotment and expenditure shall be prepared
and submitted to Govt. of India in the manner prescribed by the MORD, Govt. of
India.

(iv) Uilisation certificate in respect of grant received from the Govt. of India and
other sources for different programme shall be sent to the Ministry of RD.Deptt and
other agency along with the audited statement of accounts.
14. Assets
A Statement showing the inventory of fixed assets held by the Agency at the end of each
financial year shall be sent to Govt. of India and Government of Orissa along with the
annual statement of accounts. No depreciation shall be charged and the value of the assets
will be shown at the original cost with accounts.

15. Authentication
All orders and decision of the Agency shall be authenticated by the signature of the
President/Vice-President and all other papers/ documents shall be authenticated by the
signature of the Member Secretary.

16. Directions of Central / State Government.

The Agency shall carry out such directions as may be issued to it from time to time by the
Government of India or State Government. It shall furnish to the Govt. of India or the
State Govt. such reports, returns and other information as may be required by them from
time to time.

17. General/ Legal Action.

(i) The Agency may sue or may be sued in the name of the Member Secretary.

30
 (ii) The income & property of the Agency derived, shall be utilised towards the promotion
of the objectives there-of, subject, nevertheless, to financial discipline in respects of the
expenditure of grants imposed by the Central/State Government from time to time.

(iii) No portion of the income and property of the Agency shall be paid or transferred
directly and indirectly by way of dividend, bonus or otherwise to any person or
organisation who at any time was or has been Member of the Agency.

(iv) In the event of winding up or dissolution of the Agency and after satisfactory setting
of its liabilities, all remaining assets shall not be paid to or distributed among with the
Members or any of them but shall be disposed in such manner as the Central/ State Govt.
may determine.

19. Amendment to the Rules & Regulation

The rules and regulation of the Agency shall be amended by the Governing Body with
prior approval of the Govt.

31
 THE FIELD REPORT
&
DATA ANALYSIS

( This chapter deals with the implementation and beneficiaries of PMGSY as found in my field of
study)

32
CONCLUSION

33
REFERENCES

34