Professional Documents
Culture Documents
XXXII
No."
October. 1983
RS.2'
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,Our
-Giani
Zail Singh
President oj India
(From l1Ie Independence
"--.
Day Message
to
.",..
Vol. XXXII
No.1
October, 1983
Asvina-Karlika
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' .. DEVELOPMENT'SEt-Up:
NEEDED
POVERTY'AiUVIi\TION
IS
MULTI-LEVEL'ENDEAVOUR
A.
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'. M; Subramanian
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, '"P. S';i"ivasall
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G. IV. S.
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M. V. Rajasekharan
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t.~YRAL
P. C. Joshi
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TIME>IS-RIPEFOR
FRESH.
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N. V. Ratnam
POVERTY ANDSOCIAL'15
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R. V. Rao
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. CONTENTS
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J!'IDUSTRIALISATION. WILL GO
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Enquiries
regarding
Agencies, etc. :
.51
:'v. Vel/kalah."
Subscription,
Editor
Ratna Juneja
Assa. Editor
N. N. Sharma
:
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Sub-Editor
S. Manjula
Cover
615920
Note.-The
views expressed by the
authors do 'lOt necessarily reflect Ihe
views of the Governmell/.
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Editor's Residence:
Raghavall
M. M. Parmar
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ColQur Transparency
S. L. GhosaI
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sn't it a matter of common concern to note that even after three and a half
'TV'.' ~.' ~!,,!,des of planned development abont half of our population still remains below;,,'I,
the poverty line? It is really depressing to know from the studies done by Planning
Commission and other ~agencies
that
number of
poor,.particularly
;rural poor, in
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the country.has in fact increased oVerthe years, notwithstanding the Government's
commitment to remove hunger, unemploymentand poverty in the shortest time possible.
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Ironically, the kind of rural poverty'that .we now'have to contend' with in our rural
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areas isnot'the one associated with 'econoniic 'stagnation inherited from the colonial
era but is rather the product of. planned. agrarian change 'of rural development in
independent
India.
b~tw~;n
th~vast; ~~';'i~g'
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the i;w and the
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continuing poverty of the many has been widening and creating new soci:il tensions
and coniIicts in the ;ountryside: I nOI f'''' I l' Ql'/O'f
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Naturally the question .is : H after :ill these years of planned development
rur al poverty is only spiralling;(
IJi"t 'declilung, 'there'in~"'{be 'terious lacunae
f ,>~'.~'
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in not only implementing the programmes 'for the amelioration of the conditions of
the rural poor but also in comprehending the. depth, the needs and the. tasks reqnired
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V.K.R.V. RAO'
A.noted economist and former Union Minister,
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corruption,
misuse,
waste'
and
ineffective .. delivery
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system unless.steps are laken to get rural poor organised,':' .. No amounl of spoo'n-feedingby
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KURUKSHETRA
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October, 1983
SECOND
MAJOR
POINT
'All that happens is that after some time the milch buffalo changes hands, and the
agricultural labourer remains as poor as he was before and some belter equipped
person with more assets adds it to his livestock,
at educating and imparting of functional skills to them,
and seeing to it that that the assets are used for the
purpose for which they are intended, and the necessary
inputs and marketing facilities are provided for converting the; use of the assets into increments in income.
Motivation, education, skills and organisation of the
rural poor, constitute the essential conJitions for
giving success to the frontaI allack that is being made
on rural poverty. It would be worthwhile, therefore,
that while planning anti-poverty programmes of a
direct character or evaluating them 'later, attention is
paid to the extent to which these basic, if not preconditions, are fulfilled. In this connection I would
suggest the integration of the national adult education
progranumes and the integrated child and women welfare alld development progr~mmes with the poverty
Oc~obe;r, 1983
of Industries. Such a study could reveal the pre-requirements of transferring modernised industries along
with its culture and discipline to the rural areas and
at the same time solving the problem of rural unemployment and poverty.
Marketing has been found to be Achilles heel of
most programmes of rural development. Here again,
we havc the successful example' of the Anand pattern
~ where the marketin,? problem has been solved for thou') sands of small and marginal farmers and agricultural
labourers, who are able to oDtain a decent livelihood
from animal husbandry and milk, production and where
-~i- , -
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- that exists in living facilities such as water; drainage,
"power, lighting; 'ro';d and'ttimsport etc.'j betWeen urb:m
. and rural areas, 50 as to make it"posslbl,;for the 'enter'prising, among the rural areas to stay back
the rural
!_-
WOULD
in
rural
'1
Restructuring PRIs is
the only remedy
N.V. RATNAM
Professor, Indian Institute of Management, Bangalore
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DEVELOPMENT
PROGRAMMES
have been
with us for the past three decades, but, whether these have become a 'populist slogan aiding the
political powor game. in. a democracy-where
every
adult, whether he is poor or rich, unskilled or skilled,
has a vote--is a moot point, The world over developm'ent process symbolised economic develop men .
in the countries. This, in turn meant modernisatio'
and industrialisation, at the expense of rural societies~ at Ieast in the earlier stages of the process.. The
problems and prescription of economic development
in the 20tli century are quite different fro~ those
that had the advantage of industrial revolution in the
18th and 19th centuries, In this century, with no
new world countries awaiting colonisation and the
developed countries' effectively curbing large scale
migration, and technology transfer, the' consump-.
tion needs of several cloistered countries are to be
matched with' the initial sacrifices required of the
people to investment in'. the future of the country.
Simultaneously, . the increasing aspirations of. the
.present generation had to be kept alive in spite . of
. the population swelling alarmingly, outstripping any
gains of the development in the early stages.
UAAL
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.October
1983
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is not in a position to make any contribution ill return, at least in the earlier stages, for improving
the quality of the people and bring the secondary
benefits of industrialisation to the countryside. The
development literature the world over has indieated
that the rural areas are to generate surpluses and it
is urban industry that benefits in the initial stages.
Secondly, the consumption needs of the rural areas
themselves are bound ,to get second priority in , the
verall context of developmental needs' of the co"ny due ,to priorities of industrialisation.
This process, therefore, accentuates the absolute
poverty in the rural areas among ,the, agricultural
labour vis-a-vis the land owning class and also the relative rural poverty in general compared to the ur1;lan
economy. lt is this dilemma, in my view, that has
promoted a specific eoncept like rural development
apart f~om the general strategies for economic deveopment pursued in the traditional
societies. We
on~ede that the methodology or strategy of rural
development pursued the world over has never been
e same but reflected the political will of the socieies superimposed on the agricultural resources posiion in the rural. areas. However, the success or
allure of the programme in a democraticpolitieal
rocess ultimately depends upon whether the political
eadership keeps the priorities of rural development
traight.
.
,If underdevelopment 'is the ,contribution of the
estern economists, poverty as a concept and a
asis of development can be considered as a typical
ndian contributi(jn ,to the development literature.
overly in this, context, is strictly defined in terms
f consumerism.
In a closed society these two are strictly the two
des of the same coin. Schedultz had integrated these
o lines of thought and proposed the production
rientation with the consnmerism in the developing
conomies and had come up with the concept of
NTHE FIRST PLAN ITSELF, the problems of employment and the strategy for development have heen
clearly laid out 'when the First Five Year Plan categorised the problems of income distribution through
employment in two parts ;
October, -1983
to
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e~ect,,~l}<!!hatJ\le0b't~k1'!~!<!J,egion~"aI]<!
,the spec.ific
w~ak'triEell!J.I.1\~
in)~~:rrr'}Ljlf~as I,1e,ed)o:pe",giv~n ,)
a ~po~t'."~-'j;f
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MPLOYMENT
generation primarily-as a relief mea,'sure, has been a recurrent theme in the, p~st three
decades as a part of the' beneficiary-oriented progra(llm,es.;n rural ,.dev,elopll).ent,.
This .was.,particularly,
so. in. times of Jlat_ur~l disasters s.u~has. sev.ere. droughts ..
in the, djfferen,t,parts lof .the ,country..However, ,the:.
rur,al,,)"orks:prograj11me,l,and,hiter ,on the Drought,
Prone Areas Programme (DI'AP) , have' given it a
production, twist by, insistiqg
crea~ing qurabie
assets while generating employment in the rural areas.
The .Integrated Rural Development,,that was launched
in' the beginning of the, Sixth" Plan, period anyway
tried to' simi /upand integraU; these various aspects
of emphasi8ing production' technology and infrastructure," Employment .. for "the . ,unempl~yed and_the
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'TItefuuetioning of the IRDP. iu the last 4 yea~~bas ~le~~ly'btougbi' o~i'ihe c~ntra- '
dieti"
oDsof
~' de~e,
t'opm,'
e,n,
,t pr,o!:':,.amme
merged uiio ~n antl"povertyp~ograinrneof the
<t.
Governmentof India while the original intentions of theIRDP. were the otbcr way
ronnd.'
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KUlU1KSJ;I.E;,TRA'
October ,1983
against bankable prDposal" fulfilling the cluster conC'fpt and cDnting from within the 600 weaker families
identified in each block.
An analysis of the state of things in Karnatilka has
revealed that cDntrary to the .expectations . of even
mitjgating the suffering Dfthe rural poor, the IRDP
!'lid the cluster appro!lch had augmented once. again
the Commercial Banks deposits through the liquid
cash accumulations of DRDS. . The total investible
plan. resDurces with 19 DRDSs in Karnataka
State amDunt to. Rs. 18.10 crDres during 1981-82.
But the expenditure during this year was Duly arDund
:15 per cent! This is due to' the lack Df a) coordinating.
authority between the departmental hierarchies and
the. ;Taluk Development Boards, and b) a planning.
cell Df its Dwn to do. the area planning exercise Dn
watershed basis. While .these rural development
funds 'are meant for the uplift Df the rural poor, at
any time 2/3rd of the DRDS liquid resources are in
bank depDsits. This ShDWSthat the organisation and
management Df the IRD structure is more tuned to.'
benefit the public finance institutions instead Df the
rural poor.
.
The reDrientation of the IRD programme in tenns
Df the rural. poor amDng the weaker sectiDns in the
rural areas exclusively, that too. concentrating Dn a
cluster approach, has dearly brought out the so-called
"frontal attack" on rural poverty in the Sixth Plan.
owever, the constitutiDn of DRDS and the emphaDn rural poor have taken a comical twist in
the sense that the IRD in the present cDntext Dnly
means giving subsidies and money for the individual
beneficiaries to. meet the requirements Df viability as
a cDndition fDr obtaiuing the bank loans! In other
wDrds,. we. are trying to. mix the priorities Df the
rural develDpment in the name of tackling rural
poverty and cDnfuse the welfare Dbjective of COilsumption-oriented prDgramme with an economic programme.
WithOut adequate infrastructure develDpment to.
support these eCDnomic activities; all such activities
remained nDthing mDre
than
mDney-changing
propositiDns.
'In otber w~rds, we are trying 't~ mix the priorities of the rural development in the
name of tackling rural poverty and confuse the welfare objective of consmnptionoriented programme with aa econOlnicprogramme. Without adeqnate infrastructure
development to support these economic activities, all such activities remained nothing
mOre than money-changing propositions.'
.
'
HE RESULTof this distortion'is seen in tlie disalways counter-productive in terms of promoting
appointingiy taU clairils rtiad6 thili when once the
a rural economy which can integrate'Dn its o.wn terms
cluster is chosen for iiiiplefuelitiilg the IRD programme
with the' industrial urban elite.)
with Rs. 8 lakhs subsidy per year, poverty is banished
It is therefore necessary that we have to. imprDve the
from this cluster in three years and we are on the ',' operational management of the rural Panchayati Raj
march to. banish it frDm the other clusters in the dis- .
~ __
triet? It is, indeed comical because 'of a confusion of
2Ra;tnam, Nittall1'V ~ B Bhask.ar Rao, ''The Management of
e consumption' obJoective of poverty relawd prt""lSOCial Development In Rural Areas", Newman Group' New
~
))elhi. (1983).
1'1
institutions' imd hand over the resources for a produCtion programme at the district and block levels. Simultaneously the goverument should take up directly the
welfare-oriented poverty programmes such as the employment guarantee schemes, food subsidies .and in.creased matching grants for providing social amenities .like health and education ifi partnership with the
Panchayati Raj institutions at the block level.
T HE
empio~ent
guarantee. scheme has the poeilt
. '. tial of combining the production-ori~nted deve-_
lopment programmes with the employment orientation
designed to give a ntinimum family income for the
i;,ir,al!P?"~' However,for this allocating some grants
per districts is not enough. It should be combined
Wiiha rigorousinterdiscij>linary (watershed) platming
,
"
. 'This pl~ing strategy followed by the orban elite bas resulted' in a structure cone
vemenfto tbe bureaucracy wherein the DRDS aIid .the otber state machinery in'tbe
district'have only to dole ont the money in the name of poverty programmes, and shift
the blame to the nationalised. banks. In the process the grass-root level Panchayati
Raj institutions and the rural poor tbemselves are clearly forgotten.'
:1. Augmenting
cadres integrated into State bureaucracy, the limited autonomy and initiative for action has become
a myth. This can be corrected by reversing these
trends. A ray .of hope in this regard is the progressive Panchayati Raj legislation envisaged in
.Karnataka . to induct elected representation on .
again and to hand over all the class ill and Class
IV employees in the districts to the Panchayati Raj
institutions. In my view, they also 'should cede
the officer cadres at least under Class II and junior
Class I in the districts ,to the Panchayati Raj institutions.
"
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Requir~d :
a people-oriented
development set~up
M,SUB~
Additional Secretary, Union Ministry of Rural Developmen-t
is certainly changing.
fast. At heart, however, rural India ~emainSthe.
same. India's villages have benefited in the last 36
years since independence from the efforts.,made "to
improve living conditions, to provide minlmum nee.ds
aild to increase productivity and .employment. .In
teims of living conditions, more villages have. been
connected with all-weather roads. The provision of
drinking water in each village' has been accorded. the
highest priority. Basic needs of education and health
are being taken care of under massive programmes
which cover practically every village of the count;y:
In recognising the winds of change that have. over:
taken rural India, meniion must also be made of .
the technological progresS in the field of agriculture
and irrigation that hal' made it possible for us to 'he:
come self-sufficient in food.
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HE RACE OF RURAL INDIA
Qcto~er;1983
mentof the community in rural development. Development is not a process which can be brought about
by governmental action alone. It is the rural community th'at can transform itself with necessary government support. It was thus appropriate that the
focus in the rural India of the 1950s was on community development programmes. In the 60s, the
concept of community participation was transformed
into one of the people's participation through the Panchayati kaj system. With the advent of the Green
Revolution, however, the emphasis shifted towards
greater productivity in agriculture. The framework
that was advocated in the early days after independence for mobilising the support and participation of
the people remained to be vitalised. More recently,
however, the need for special attention to those families in 'the rural areas who are assctless and who live
below the poverty line has been recognised. Equally
4nportant is the need, for, creating additional employment Oppoltunities and income generating activities
in the rural areas. This concern for the alleviation
of poverty has been reflected in the introduction of
tlte Integrated Rurl!! Development Progra~e
(IRDP)
and the Nwtional ,Rural
Employment Programme
(NRBP).
The inclusion of a large number ,of programmes relating to rural development in the new
20-Point Programme reflects the growing concern for
accelerating ilie process of social 'and economic change
in: rural India.
THE CHANGBS tltat
are being brought
about under tlte new programmes have tremendous socio-economic significance for rural India,
though this is not always perceived. The, obligation
cast on the banking system ,to provide credit support
for income-generating activities under the IRDP has
converted these security-oriented lending institutions
into development banks for rural India. The creation of durable community assets has been made tlle
principal objective of rural employment programmes'
so that, the workers perceive themselves as contributors
to area <!evelopmimt instead of mere wage-earners.
OMB OF
'In recognising the winds of change that havecovertaken rural India, mention most
also be made of tbe technological progress in:the field of agriculture and Irrigation
that bas made it possible for os to become self-snfficient.in food.'
The concept of 'gram swara)' advocated by Mahatma
Gandhi" is still the foundation of these development
strategies. 'Creation of irrigation sources, reclamation
of. wasteland, sOCial forestry and other activities are
meant to be 'so planned as to restore the ecological
b~ance and to, meet the energy and consumption
needs of the villages from the development of local
resources. New technologies are making, rainfed
agriculture productive for small and marginal farmers
as, well. ,Rural India can sustain itself only with a
baiimced groWth of fal1!' and non-farm activities s!lP'
14
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:KURUKSHETRA Octo1>er,1983
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Director, Institute of Economic Growt14 Delhi
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.What explain~' this .lag between the, vast mobilising
p~tenti~l of poverty ~nd the lack' of realisation of this
potential: for soci~l, and political. change? What explaips th.!' elllergenc~ of the, politics of poverty as au
jssu~"of .po~er~truggle witltin the political elite with"
out the involVement of the poor. them5;'lves in the
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struggle against the forces perpetuatm.g"lhe
socioThe author, an emment SOCial SClentlst, IS piqued to
economic basis of. poverty,? One must first seek the
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note that in our country" While the question of poverty
. reasons for it in, the ,nature 9.f .c,o.nt~mporary politics
has acquired politi4al ~iff/po;t~ce _jJgiifu;a~j;...
I~,'.1wi~~~~;.
I~!p Il~'3~i~xt
lL)s
relevant to.
pdor themselves a;~ still fa~.'j~~m
~~r~~~a.t~~!},~i~~
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th~ political. e~te
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suffers from, a strange amblviilence as reflected 1U Its
culate and from emergmg as a sOClal force l.e~.as.an'f,
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~.a '!'," ':"b"~';'
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fr om th'e poor.
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'concern ;~f.:;-;.t
or poverty
ut ":'t"~'
IS
IS ance
agent of social change,""
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As'a'resiilt'the'isstie"of'poverty
'is put into'the centre
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of 'politics but 'thdssue of identification of the poor a'iW'
,4nd qautlOns : The SOCialchlf"ge p~tentl~l of poverty
of their, 'own protest againsi their poverty is not put
would be obscured if the question of,rich vs. poor is
iilto the'centre of the 'political stage. Moreover, the
'misrepresented as a question of town vs.village.HIt
iii
spontaneous protests of the poor when ihey oCca'idle to think that poverty in 'the rural ar~as can be '
sionally. occur do not find adequate 'response from
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those
who contr,ol,the mass
radio,
era lea e WI ou
e suppor OJ e ur an poor all
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films erc.) ;or. from. those who dommate the polilical
, th<;t the rural development can be achleved,wI!h~~t the"
forums' (par1iiuiient, legislatures, political parties
s,upport of urban industrial development and adf~1
etc.).
'iO ,
,that "in the preseni day India the ideologyof
ruralism ,\
(iNtERN FOR POVERTY ]filt distance from the
is the most formidable obstacle in transforming poverty ,
'" jiO<\r --is-Aot oWly a inarkea characteristic
of
'ilftiJ an ageni of social ciunige:'" '.,
Iiidian 'politics tOday.' it is a1s'o maik~ cnaracteristic
'.-- ,-
,and
ih~'.
beco'~i';gYully ~rii;~!
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While tbequestion I'0f poverty bas acquired political importance and I~gitimacy,
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tbe poor themselves-are ,stil' far from becoming'fully articulate'and' from emerging
,
a s a social forcei,e: as an ~'g.nt of social cbang~:' Thereis still 'a vast biatus bet,I
,wee? politicis~,ti?n'of, !h( issue' of po~,:rty and the politicisation of the poor.'
.
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OF ./sCientific' ~nalyses
into. poverty, ;s tbat they assign the crucial ,role,
in the crusade against, p'overty' t,~ the paternalism and
the benevolence of the haves and their social and
political represeutatives: But the' poor are assigned
no' vital role iu the mobilisation against poverty. In
other words; the grea'test'indictnient. of contemporary
sOCial science as of contempotary 'politics is that;. to
quote Karl Marx, "they see iu poverty only poverty
withouL noticing its revolutionary and, subversive aspect, whicn will, overthro~1 the old soci~ty'~; they se.e'"
iu the pOOLonly
.lnd pathetic hllman mass ~
_..' a.helpless,-.HE GRAVEST ,'WEAKNESS
16
"'.
..
productive forces. Such underdevelopment of productive forces' favours the acceptance "f poverty' as
a natural phenomenon (i.e. o,s God-given and unalterable) aud to be shared by both the haves and
have,uots alike. Under such a regime of genera!
economic scarcity the essence of exploitation. in. the
relations betweeu the haves and the have-nots tends
to get obscured by the appearance of. interdependence'.
The conflict of intereSI gets subordinated to the
harmony of interest huposed hy the common struggle
against natural economic scarcity. Even when exploitation is perceived, it is ignored by the ,have-nots
KURUKSHETRA October, 1983
.'".'
.>
security pro.
.1
KURUKSHETRA
October, 1983
.means
of
produt;l.iOJl
in
,howsoever
partial
HrLE DEMARCATING
A SCIENTIFICapproach to
poverty from other approaches, it should also be
poiuted out that a scientific approach to the problem
of poverty is at once" structural and a developmental
.approach. TJie, roots of poverty are thus identified
by scientific theory in the sphere of the economic
structure and not merely in the manner of functioning
of this structlire.'~Changing the structure rather than
merely influencing the functioning of the structure
17
appears as a crucial characteristic of the scientmc $J,N tHE CONtEMPORARY' SOCIAL situation In .India
. proa~4f!lr er,a~jcatil)g,p!lveJ;1y,' At th~_same time t~e
1. the scientific perspective which links up the struggle
~c;entific vielY.'Il,!st be (Ii~tiJJIDJish~f[9m~n ti()n9qUc
against poverty with structural change on the one
romanticist view which believes that a structural transhaild aild with capital accumulation oil the other has
formation w~s ~y, itself, s~fjjcient to abo~h ]JOverty,
great historical' relevance, This perspeCtive departs
A'ssi~nti!if', apprgach, ~O\vever, sta11s from the preon the one hand from those idcclogies who seek 'to
miSe, that "justice can nexe.r.rise superior to theecocope with poverty without altering the" paitem of dis4,oJi;jc cOl)d\tlolls'of tlie time" (Maurice Do,bb 1947,:
tribution of means of production which generates and
148), Structural change according to the scientific
perpetuates po,crty, it departs on the other ha~d
conception, t~e~efore': i~ ~ot a; culmU;atipn of th~
from those romanticists who make no distinctionbet~
st':Uggle ~g~inst povertY but. only its begjn,ning: . It
ween 'artificial poverty' and 'natural poverty' and wh6
can becollJe, a crucial stl1Pin the struggle t"wards a,b!lc
therefore detach the struggle against poverty fromth'e '
. liti()n of 'poverty ~nl>'.if it is an instrument o~:capital
. hiitorically necessary task of' Capital accumulation.
accumulatjon (Le. of ecol)olllic growtl!) ... Structurjll
What is required in India is a new unity between
cha~ge, becomes alJ engin~ of capil'aL ~cc!!lJ1ulatiol)if
radical theorists who uphold an integrated persPeCtive
it serves'
~el)ns of. el!mill.ating'the gap between
on poverty and growth on the one handaild
the
actual economic surplus and potential economic sur- "artificially impoverished masses" on the other who
plus and thus the means of enlargement of the size of.
need this perspective in their struggle for a new life.
the economic surplus and. the mode. of its utilisation
A meaningful struggle against poverty must, therefore,
for productive purposes (Panl. A. Baran, 1957,:
,begin with a struggle against the cUrrent poverty of
25-48). The scientific perspective on Poverty therephilosophy which "sees in poverty only poverty withfore views the struggle against p.overty f\ot.as a single ...out noticing its revolutionary' and subversive aspect
leap from poverty to plenty but as a protected. struggle ,f, which will overthrow the old society".
on two fronts, against class exploitation on the one .
In the new situation, therefore, an objective basis
hand and against, the low level of development of. prois emerging for a unity' of the rural arid urban pi$or
ductive forces on the other. "
since the urban poor are mostly niral poor ilhs'hed
out'into urban areas. The recbJ.(' resurgence' of
The abolition of 'artificial. poverty' through strucRuralism dramatisi.ng the rural-urban cleavage rather
tur,al 'change must become the initiator of a protracted
than ~the rich-poor cleavage is only meailt to mystifY
struggle against 'nat"ra!. Poverty' Le. against the low
and obscure the fast-growing economic difIerentiatioJL
level. of, development of produ~tive forces which is the
in iuial and urban areas, The socIal cluinge p',jtentia1~
~ltirnate cause oj material deprivation, The . emerof poverty'would be obscured if the qu~tio~ "':;f.rich
gence of. the '~artificially impOverished': as a separate
VS, poor is misrepresented as a question of 'town v~.
category assumes historical significance insofar as it
village. It is idle to think that poverty in t1ie rural
proyjdes ,the social instrument of initiaing the struggle
areas can be eradicated without the support of the uri:iiU{
against "natural" pOverty. In struggling for their own
pooriind !h'at rural developinent can 'be achieved wiiiiabOlition as a social category in the short-run,' the
b~!{tlie>u~po.~t.of ur~ari, ~d?~.triar ci~~elo~~~iil.
c1'assof the "artificially impOverished'.:,c~~te the sociopresent'd'lY IndIa the ideology of rurahsm JS the most
economic and political preconditions for. the abolition
formidable' obstacle in transforming poverty into. ~~
agerif'of social' change:
.
..,.,~
of "natural'; poverty itself. in the long-run.
~
L
_..
.,
.,.
~_..
,"I '.
,-" -
_.'
..
_.-
'..
'-.
as'
~w
~-i#
l; .,.
"
.. 1
1-".
. ~..
18
!;.";'
Alleviation
of rural
poverty
Decorative wood and gravure work are the
tage of our carpenters who are now given
the State. Their products fetch a ready market
.
proud heriassistance by
in the country
and_abroad.
A view of the standing loom in the village. A weaver is now helped not anI
in securing raw materials but also in marketing his products.
Providing
problem
Rigs are
wells and
A village level worker is.the kingpin of the rural development set-up for he interprets development programmes
to the villagers and also serves as the feedback.
Major structural
changes necessary
BALRAJ MEHTA
Freelance Journalist,
~r.
~ERE
ARE OBJECTIVE
FACTORS
New Delh
..;
insensitivity
towards
the conditions
of
the people.
Still more cynical is the move launched last year to
review and refine the definition of poverty with a view,
presumably, to refurbish the grim reality and present
a better'image to the world. The move was apparently inspired' by the idea that statistics when they
did not. accord with the god-like' vision and perception of high personages should be redone and juggled
for the subjective satisfaction
after for presenting to their own' people and more especially people-foes and friends alike-in
foreign
lands. And: yet, there is no hesitation in opening up
to the contempt of many and amusement of others
when frantic cries are raised for more and more
foreign aid to keep the economy and polity of the
country afloat and strong protests are made when some
aid-giving quarters taking advantage of the boastful
claims of progress suggest that India has graduated'
out of concesSional aid flows and there should be cuts
in such aid to India.
POVERTY IN INDIA is universal and pervasive
is indisputable. But its worst manifestation and
concentration is undoubtedly in rural India. According to official estimates, 251 million below the poverty
line, as at present defined broadly in terms of calories
intake (which incidentally is placed at a'lower level for
the rural poor than the urban poor), live in rural areas
as againsf 51 million in urban areas. The Minimum
Needs Programmes, special rural employmeut programmes and other poverty alleviatibn programmes
which have been launched since the Fourth Five Year
Plan with more and mote strident fanfare are olaimed
to be especially directed to give relief to the rural.
poor. The idea seems to be that financial a1locations
which' only superficially ajppe~ to be impressive but
Gangadhar Tilak
HAT
attack" on poverty for the first time in India's economic development strategy. This was widely hailed.
It was the economic articulation of the political slogan
of Garibi Ratao. However, the concept was projected within the overall framework of a developmental
strategy which remained unaltered and was limited to
the idea of a sizeable and possibly growing provision of
financial outlays for what was called the Minimum
Needs Programme for the poor and the a1leviation of
their poverty. It was thus an addendum to the development pl,!"s and not part of a new development
strategy. It soon lost its charm for the ruling Establishment.
'This is tbe typical growtb model whicb worked in:;tbe special bistorical conditions
of 6tb to 9tb century in Western Europe and tbe U.S.A. bnt is totnny out
of place in conditionswhicb prevail in India at present.'
are, in fact, far too inadequate to make anything like
effective impression on mass poverty and administrative
action, which is always half-hearted if not altogether
counter-'productive in the prevailing order of power
and influence will alleviate poverty in course of time.
But these are no more than palliative and often 'have
very little integration with and relevance for the overall economic growth strategy. and process which' is
guided by the theory of precedence for growth. The
gains of growth even if they might be monopolised to
begin with by the dominant strata of the population
which are active participants and manoagersof tbe
growtb strategy and process are expected under this
theory eventually and after suitable time lag to percolate
down to lower levels of society and uplift them above
the poverty line. This is the typical growth model
which worked in the special historical conditions of
16th to 19th century in Western Europe and the USA
but is totally 'Jut of place in conditions which prevail
in India at present. Renee 'the growing tensions iii
Indian suciety and polity and failure of the economic
development process to the limited extent if is making
some headway to resolve them.
The first Approach T'ape,r 011, the Fifth Plan
drawn up in 1972 projected the concept of "frontal
early sixties when development planning was still young in our country
and evoked much faith and fervour in the political
and the administrative est"blishment and aroused
hopes and expectations among the people that Perspective Planning Division under the devoted leadership of late Pitambo.rPant in Yojana Bhawan presented.
a, "Perspective of Development : 1961-76, implicaions of planning for a minimum level of living. "It
postulated 7"per cent annual rate of growfh of the
economy during 1966-76 which would, at the same
time, reach the objective of Rs. 20 per month as the
national minimum consumption level (at i96Q-61
prices) 'by 1975-76 and a reduction in the concentration ratio of per capita consumption from 0.33 to
0.25. This has turned out to be a dream which
got lost in the mid-sixties even is development planning and process got bogged down and growth rate
slumped to 3.5 per cent as against the 7 per cen~~
postulated. But the failure in the attainment of the"
equity objectives earlier projected was 110t only due
to the slump in the growth rate postulated. The very
assumption that a certain level of growth of the economy would result in the desired measure of redistribution of income and consumption levels was misplaced. Further, the assumption that growth strategy
functionally independent of social objective of reuction of poverty and that the two objectives of
owth and social justice can be pursued independently
f each other was f?cile. Experts have, of course,
uggested that it is possible to construct a growth
odel which is based OIl the in!erdepe!,dence of the
. objectives of growth and social justice. But then
hey also point out that the implement;ltion of any
uch model involves the exercise of political will needfor redistributive planning real and ~ffective. If
e needed political will is 1<Lcking,such a model will
ot be constructed and if constructed will not be implemented. This is exactly how things have happened
uring the last twanty-five years ..
,This has turned out to be a dream wbichgot lost in,tbe mid-sixties even as develop"
ment planning and pro<css got bogged down and growtb:rate slmnped to 3.5 per cent
as against the 7 per cent postulated. But the failure in-tbe attainment of the equity
objectives earlier projected was not only due to tbe slump in tbe growtb rate postulated. Tbe very assUllIptiontbat a certain level of growth of tbe economy would
result in tbe desired measure of redistribution of income and consumption levels
was misplaced.'
"
Land ceiling laws have not resulted infinCing surplus land to any worthwhile extent for redistribution
among the landless.
They have only encour"ged
"resumption of land for personal cul!ivation" upto
the ceiling on a large scale which, in turn, has respited
in extinguishing the tenancy righ!~ of actual cultivators on such lands and turning them into agricultural
labourers without any rights on land.
" Those who have resumed land for personal cultivation under the ceiling laws' have also claimed .under
the incentive scheme for producing marketable surpluses under the green r~volution strategy higher and
higher procurement prices for their. produce, sub-"
sidised inputs-from
fertilisers and pesticides to private irrigation facilities and tractors---and liberal credit facilities. This process has' created"in .the rural
KURUKSHETRi\. OctolJer, 1983
Needed! J
efficient planning
and sincere execution
D.TRlPATHY
.Jt. Diredof, Water Mgmt.
HE QUESTIONOF POVERTYREDRESSAL
in rural areas
, was givenconsider~ble attention during the Fourth'
. Plan as it was realised by then that a technology-oriente
ed intensive agricultural programme alone does not.
ensure an equitable distribution of benefits of development in th" rural co=unity.
A very large number of
rural population comprising small farmers, marginal
farmers, landless labourers,
rural artisans and the
disadvantaged groups like scheduled castes and sche- ~
duled tribes, with very low or no asset base, did not "
benefit from various area development and other community development progra=es.
In fact, the problem
of poveI1y had its origin in (a) low asset base and
(b) unemployment.
hat
"a
technology-oriented in-
22
Lt
KURUKSHETRA
October, 1983
---~- - ---,
-
~,-
graqunes,
1-
mainly
d~Jing
agricultural
slack
season.
villages
and expand.
Agriculture 'alone cannot meet
the present day challenge of fighting pO'ierty
and also prOl'iding employment to our people.
Bahadur Shastri
r'T
PROGRAMMES,
-in a sense. were meant for
-'the very poo~.,v}th. vcry low, asset base or no as:-:et
HESE
. t.
....
'.
'.
,-
'
KURUKSHETRA'Octobe'r;19831'r
tion and dairy schemes was Rs. 1670 and Rs. 829
respectively: Increase of this order can certainly be
considered
vious' situation.
schemes like FFW' and EGS provided higher employment per beneficiary per annum. Whereas EGS provided 50 days of employment, 44 days of employment
was provided per family in a year lhrough FFW pro
gramme.
HE PERFORMANCE
OF SOME
01 the programmes
under the first category in a few districts of India
seems to be very good and in some cases even outstanding. However, thc inter-project variations and
the inter-programme variations of benefits are so wide
that one has to" look into the data vei'y carefully to
arrive at any conclusion. . As for example, getting
negative benefits or very low benefits from a programme in any project or any part of the project casts
doubt about the suila;,ilit., of the scheme for the orea
and the beneficiaries.
HCTORS
whkh contribl,ted to low reon investment in minor irrigation as found
from the investigation are' given below:
Low returns have generally been attributed to lack
6f e"tension support. Absence of proper co-ordinated action in several project areas impaired the'
effectiveness of the programme. For instance, in a
nuinber of project areas, pumpsets were sanctioned
without ascertaining from the Electricity Department
whether they will be able to energise the pumps
(e.g., Ballia, Rae Barcli, Nalgonda, Tumkur, Bhandara and Gurgaon) with the result t1iat even when
the pumpsets were installed they. could not be used
for want of electricity connections. In some projects, the funds sanctioned could not be effectively
utilised due to difficulties of securing building materia.ls (e.g., Alwar, Badaun and Bhandara). Though
considerabl<i stress had been laid on groundwater
surveys in each project area, such surveys had been
conducted in very few of them. In the absence "f
such surveys, some farmers, who took loans, often
came to grief on account of failure of well or were
confronted with cscalated cost due to rocky soil or
very loY' water table. In the absence of any pro~
vision for compensation in such cases of failure of
RTNCIPAL
Pturns
"The factor
was the absence <ifproper veteri~
nary arrangements. It is reported that there were .
heavy casualties of goats in the ab~ence of proper
health cover which c",used a great setback to the
programme and losses to the beneficiaries. There
were complaints regarding absence of proper heaI!h
cover in certain other projects as well".
,Not only 'poverty' was growing in terms of number of people below tbe poverty
line, in percentage terms also it was very high. This disconcerting feature called
for further strengthening of the attack on poverty resulting in Integrated Rural
Development Programme (IRDP) in the first category and National Rural Employment Programme (NREP) in the second. The new 20-point programme of the Prime
Minister has directed a nnmber of schemes' for better and quicker alleviation of
rural poverty.'
wells, farmers found themselves saddled with infructuous debts ("e.g.Nalgonda an~ Visakhapatnam).
In some of the project areas, financial institutions
could not assess the viability of the proposals in the
absence o( .groundwater survey reports. and, therefore were chary in giving loans.
24
District).
The RWP provided 10 days of employment in MFAL arens nnd 11 days of employment in
SFDA areas per beneficiary per annum. In only
about 1/3rd of the projects, RWP provided employment for more than 15 days in a year. The per
capita income generation was only Rs. 42 .
As against the belief that more and more agriculturallaboilrers are available for work-during off-season,
it was found that less agricultural labourers were available for off-season employment in certain areas. ' TIlls
was principally due to the type of wage arrangement
provided under certain schemes. As for \,xample, for
PROM',NENT
ASPECT of the above schemes
of direct employment generation 'was the creation
of labour-intensive durable community assets in consonance with local development plans. The idea behind
such a condition was that the 'assets created would help
in future income flow through their linkage effects
instead of being one-time income generation schemes.
But in a large number of projects this condition 'was
violated. For example in FFW, road construction a~d
drainage which together constituted more than 50 per
cent of total expenditure the percentage ,of durable
assets were as low as 32 and 21 respectively., Further
the assets so created were poorly maintained for want
of adequate funds for their maintenance. A large
number of local bodies refused to accept the transfer
of the completed works froni the implementing agencies.
VERY
,1
October, 1983
'T
"
HE
'
ANTI-POVERTY
.f,
The schemes under various programmes incorporated certain other elements to minimise' the leakages
trom the system for maximisation of benefits to the
poor.
The problem at the moment is the development of
. proper organisation. for planning, execution, monitoring
,and evaluation of different programmes in which'integration is a vital element. Integration aspect is vital
as. it has got bearing on the dynamic elements of
various programmes in relation to productivity, ' employment and income generation.
Integration is a function of proper planning of
. varions sectors an-j subsectors of the rural economy
with shclves of properly prepared viable projects in
,each of them indicating details of the areas and category of beneficiaries and the linkage effects. It then
, pre-supposes adeqnate planning machinery at varions
levels i.e. panchayats, block, district or area and each
plan being dovetailed to the other at higher levels.
Block and district plans with their decentralised charac,ter ,are still in their infancy. Withont such plans at
present, the integration between the schemes of poverty alleviation and other developmcnt schemes appears
highly inadequate:
Proper integration of schemes under IRDP and
NREP will have better impact on employment, productivity and income generation than individual schemes
taken up in isolation. Integration of schemes wilJ be
dependent' on the following two factors :
'---, (I) Organisation for planning, execution, Monitoring and evaluation, and
(ii) Resources availability.
,
Hn about 15 per cent of the SFDAs and 8 per cent of the MF ALs, dairl'ing, inslead
of augmenting Ihe income, pro~ed 10 be a liabilitl' of tbe beneficiaries.,
,
REQUIREMENTS
at decentralised
level are' more demanding than either at state or
central level due to a number of faclors. Suitable
. ORGANISAT'JONAL
26
198~
Tagore
'\
.. l~
"
SUFFICIENT
,")
(. _
;11:
.o'
Poverty alleviation is a
multi-level endeavour
A. R. PATEL
''}':. -
'~,b
.,'
~I.
~"!"
.
.'.,'t,
"
In the background of these gaps, the author em'ph;,.,ies the 'need for correcting the drificienciesin the
'..'
,.
r... ,
..'
'i,!,plementation of I.R.D. programme through for. ~r;,,;;taii~g 'result-oriented ac.tion plan' and the ''ne;d
.t?I.have an ,effic(ent delive~y system at the grassroot
level which may provide innovations and all needed
services to the beneficiaries.
1.
7~
',.28
I.,
all the 5011 blocks in the country. Under theprogramme, it is expected that 15 million families would
be assisted to cross the poverty line once and for all by
the end of Sixth Plan (1980':-85).
'Nhilc the' programme is supported by a provision of ~ubsidy of
Rs. 1500 crores to make the scheme viable as well as
to serve as, incentives to the identified ben~ficiaries,
banking system has been called upon to provide loans
amounting to Rs. 3000 crores to these beneficiaries
~ under the programme. Perhaps, this would be the
first of its kind of anti-poverty programme being implemented in the world on such a massive scale.. As such
the method of implementation and its impact would
definitely be seriously studied by the economists, planners, administrators, financiers, scientists at the national
and international'level so as to draw,Jesson for underdeveloped countries where hunger and poverty have
been as deep-rooted. The programme has almost
completed three years and the performance is quite
impressive from the point of view of achieviog the targets, release of subsidy, disburse!"ent of credit and
coverage of scheduled caste/scheduled tribes. It is
against this background an attempt is made here to
discuss in brief the direction in which the progamme
2
4. Central assistance
Rs. 82.58
crores
..
5. State assistance
"
Rs. 153 .9
crares
6.. Institutional cr~djt . RS.199
crores
255:8
crores
PROGRAMME
which now forms a. major
component of the New 20-Point Programme has
showed considerable improvement. The dala presented
in the following lable reveal thai there has been steady
progress under the programme in respect ~f coverage,.
release of subsidy, mobilisation of credit and per capita
inveslment from 1980-81 to 1981-82 and 1982-83_:
HE
Indicators
of the Performance
under IRDP
1980.81
1981.82
(1980--83)
1982.83
(upto
Feb. '83)
2
1. No. of families
assisted
27 .90 lakhs
7.00
2. No. of SCjST
lakhs
families benefited
3. Percentage coverage 24.9
ofSC/ST
KURUKSHETRA
28.30 lakhs
10'00
lakhs
35 ,I
OctolJer, 1983
3
22 ,00 lakhs
9.10
lakhs
41 .5
,.
176"\7
craTes
(37 '16%)
, 190.0J'
crare.::;
470 crares
~i
380.72
cror,;:s
(upto Jan.
1983)
_ ..
~
RS.550
8, Pf;rc'apita credit'
RS.741
RS.1291
. (
1 .35
928
(68'72%)
1713
(131'17%)
t.:~'
1036
(11'63%)
.2076
~(~1'90%)
2641
(104'5%)
3112
17.83 ,;.' .
I '84
2.00
It" is of" interest to note that. perce~'tage of l?e."nefi~iaries belonging to scheduled castes and scheduled
tribes has sharply iocreased from 24.9 in 1980-81 to
35.1 in 1981-82 and 41.5 in 1982-83 as against the
target of 30 .per cent of the total beneficiaries,. t'? be
ld,
123.44
. crores
(55 .53 %)
..
29
of
to
An in-depth study and experience on the implementation of IRDP have revealed that though the Government has created a full-fledged organisational set-up
known as District Rural Development Agency (DRDA)
in all the districts with definite objective of playing a
weU defined role so that the assisted families cross the
poverty line once and for all, effort of the DRDA has
been directed only to achieve the physical targets . of
covering three million families, release of subsidy of
Rs. 300 crores and getting loan of matchable amount
disbursed. The possible reason for thi; state of affairs
has been the lack of appreciation of :
(i) the concept
al'Proach.,
of IRDP
and its
integrated
DEVELOPMENT
has now come to be rcalised'.
as a sine qua non for national development and. >
social welfare. The problem is not merely one of
development' of rural areas but of the development of
rural communitie.s-to dispel ignorance and poverty'
and assist the process of creating self-reliant and selfc
sustaining modern little communities. Thus, rural
development can no longer be identified with mere
URAL
, ,Under IRDP the official machinery at the block; district and state level only desires
to achieve targets of 600 beneficiary families per block per year witbont being prepared to do groundwork envisaged in the programme. This process of achieving the
targets in each blnck M5 further created climate 'wherebymost of-the beneficiaries are
interested in securing subsidy without paying :attention to achieve the end-results
of the programme. This has created h~st of problems'
IRnP the official machinery at the block; district atid
state level only desires to achiev~ targets of 600 beneficiary families per block per year without being prepared. to do groundwork envisaged in the programme.
This process of achieving the targets in each block
has further created a climate whereby most of the
beneficiaries ;;;'e iIiterested in securing subsidy without.
paying attention" to achieve
the end-results of the pro.
-'
.~
gramme. This has created a host of prOblems: VIZ..
.supervision. on the end-use of credit,. follow-up for
seeking solution to the problem of beneficiaries; recovery of !l;mn instalments, ascertaining the genuine need
for re-scheduling the repayment period, cr~dit manage.30
dimen-
October, 1983.,
T,
to
"
,It is necessary to plan, to direct, to organise.
and to coordinate; but it is even more necessary.
to create conditions in which a spontaneous
growtb from below is poSsible.'
.,....-Jawaharlal Nehru
f.[
,.;
.;
of the population. The growth',o.,mtre project can provide, blueprints indicating the possiblc locations for
education, health and such o!ber facilities. ,Based
on the principle of "equal accessibility" the growth
centre approach can bring several community facilic
ties like health, education, transport and communication, local administration etc. within easy reach of
the 'entire population.'
c,,
These growth centres should necessarily be equip"
ped with all the required facilities which may help
th'e rural population to get their work done in the
area itself rather than visiting cities or towns snch
as (i) a permanent ,training centre to impart practical
training' in the area of agriculture, village industries
'and agro-based Iodustries; (ii) a mobile training.;eum.
demonstration unit to provide on-the-spot training
and repairs; service and maintenance facilities' for
agricul,tural and industrial machineries; (iii) a .. rura!
service society to provide crcdit, inputs of produclion,
,
,j
'The problem is not merely one of development of rural areas bnt of the development
of 'rural areas but of the development of rural communities to dispel ignorance and'
poverty and assist the. process of creating self-reliant and self-sustaiiiing healthy
.modern little communities,'
.,
...
"
fp}filling the minimum needs programme; (iv) aug1]1entingthe duration and productivity of employment
in' their existing occupations inter alia through upgradation of technology, imparting' of skills and setting
up of non-exploitativ~ institutions for credit, marketing
and services; (v) alleviating chronic unemployment
through employment on public works such as National
Rural Employment Programme;
(vi) building up of
a s,oci::L1and economic infrastructure; (vii) r~orienting
existing .instit.utio"nsand organisations in order to protect the interest oB the poor; (viii) building up of
appropriate organisation of the rural poor, especially
to protect them from exploitation; and (ix) promotion of a progressively more egalitarian structure
of ownership of assets.
have'
an
31
in terms of economic
achieving the accclerated growth in the village economy. A resu1t-oriented-action plan would, therefore,
call for initiating following steps:
investmenis
1
A detailed study of the villages and households
should be conducted for studying the present state
of economic activities practised by the villagers, its
contribution to the growth of village economy,
,,The major objeclive shoold be to reconstruct and develop the rural economy in su~h
a way that income 1I0wiugfrom the ownership of productive assets, skills and labour
wonld be automatically distributed more equitably.'
,
F PAST
EXPERIENCE
OF
SURVEY
of a group of 15 to 20
resource potential which could be exploited by harnessing science and technology, scope for improving
the
economic
activities-(crop
farming,
livestock farming, inland fisheries, rural and
cottage industries, trade and other services)
-by in,lroducing proven technology, management
expertise and building socio-economic infrastructure, constraints already existing and those likely to
arise during implementation of rural development
progra=e
need to be identified, methods and innov,ative approach for overcoming these constraints
should be developed. While effort has to be made
to identify those below poverty line (BPL) , more
importantly below bread line, survey should incorporate plan for optimum utilization of the growth
potential of the entire area to increase income, em-
2
Integrated Rural Development Programme should
be developed with emphasis on preparing areaspecific credit schemes acceptable by the rural
households. Introduction of innovative schemes
(non-traditional) such as (i) production-cumconsumption-cum-housing credit scheme for the
weakest of the weak and (ti) crop-cum-Iivestock
farming-eum-acquaculture
or livestock farmingcum-rural industries etc. to be developed for optimum utilisation of available resources, assets of the
rur~l household as also expandillg his income base
KURUKSIffiTRA October, 1983
32
'"
3
While schemes to exploit underground water reources should be formulated, schemes should also
be initiated for development of drought-prone areas
'to insulate ihe economy of these areas from the
effects of recurring droughts through diversification of agriculture and promoting afforestation,
pasture development and soil and moisture conservation. . In arid and desert areas, schemes should
be formulated for arresting desertification through
activities which restore ecological balance, stabilise
sand dunes and facilitate soil and water conservatiori. Plantation of shclter belts, adoption of w:<lter
harvesting techniques and development of pastures .
to sustain the livestock economy should receive immediate attention. Schemes to encourage innovative use of land for fodder crops, pastures and fuel
and fodder plantations should be taken up on
priority basis.
4
.Schemes for setting up agro-based industries/
rural industries, food processing industries to utilise
local resources as also for setting up custom service
units repair workshops should be formulated to
.overcome the difficulties of rural families in meeting
their day-to-day requirements.
5
Qmintifieation of the requirements of all the
components of the credit schemes for their successful implementation in these villages is absolutely
necessary. As for example, quantity of high yielding seeds/hybrid fertilisers, pesticides, etc. required
fot the crops to be grown under the 'crop loan
schemes; number of electric/diesel pumpsets to
6
While quantifying the needed inputs and equipment, effort should also be made (0 locate sources
of their availability within a manageable distance.
If need be, schemes to set up such centres for supply of inputs, services, marketing, repair facilities
etc. should be formulated. In fact, implementation
of any scheme should not suffer for want of timely
supply of such prerequisites .
7
A plan for successful implementation of these
schemes should incorporate the need for training
and technical guidance to be imparted to the beneficiaries for improving their skills 'and upgrading
the quantity and quality of their products which
may fetch higher price. As for example, crop farming, livestock
farming,
acquaculture,
etc.
pre-en-
visages
the knowledge
of. crop production
technology, cattle breeding, fish breeding.etc. In
fact demonstration of proven technology, continu.ous training and technical guidance, should
form a part of such development' programme.
Efforts should also be made to suggest holding of
required training program'mes, demonstrations, discussions with the villagers, exhibitions, farmers' faiTs
etc. Training needs of artisans in their traditional
, as also new industries for improving their skills
should be clearly spelt out. Need for identifying
and training of entrepreneurs for setting up small
scale units, ancillaries, tiny industries in light of
local needs should receive equal attention .
" 8
Past experience has revealed that a large number
of small/marginal farmers, landless labourers,
rural artisans and members belonging (0 the scheduled castes/tribes have to be continuously guided
in respect Of adoption of proven technology which
produces spectacular results. While under the
World. Bank Scheme, the Government has intro-.
duced 'Training. & Visit System' in all. the blocks,
the Gram Vikas' Adhikari (GVA) Or Village
,
,This Herculean task of alleviating rural poverty cannot be accomplishedovernight,
through piece-mealeffort and iii isolation of total developmentof rural areas.'
be installed under 'minor irrigation scheme', num-
9
Aspects of post-harvest technology including processing, s.torage and m'arketing of crops, fruit,
vegetables, milk, wool, eggs, meat, fish, products
of cottage'industries should be includcd in the plan.
This has been the. weakest chain in whole of the
12
Resource potential of the rural areas 'can profitably
be exploited if community assets are created and
well ,managed. The community assets to be created out of bank's loans viz. lift irrigation system
installed on a perennial river, ~ommunity bio-gas
plant, com'munity irrigation well, development of
grassland, forest land and pastur~s for raising fodder, fuel and timber, organised marketing arrangement through promoting milk/egg producers cooperative societies etc. have to be managed by' a
trained and qualified personnel on sound business
and financial principles. When land holding of a
,If. past experience of three years' implementation exercise of IRDP is lillY gnide,
it definitely calls for strengthening of district .planning machinery as well as office
of DRDA to make it enough elfecth'. to undertake this kind o(planuing required at
't .
.0'
1-..
..
."
'formulation
and implementahon of the credit
, schemes meant for rural poor. Institutional structure for u~derHlking these activities should be creat~(( in the area, viz'. c00Pef.ative prqc.c.ssingunits,
, c~operative marketing, society, cold storage, chilI~ling 'plant;' milk collection centres, rural godowns,
'com~unity threshIng yards, market yards, etc.
'
'
10
.f~:tndustrial houses,. voluntary. associations and ser"vice organisations should also be associated with
the poverty-alleviation programme. While Bank
;' and Government departments have their built-in
limitations. , these . agencies can help nJodernise
.. rural ,areas by way of .providing drinking water,
primary schoolS,. rural health centres, arterial
, rQads etc. A. coordinated approach 'involving inh dU,striai hOllses voluntary associatiQlls, credit institu',ions, Government departments, panchayat adminis'tration etc. should be evolved in such a way that
all .req~itements .of rural families for socio-econo'IDle develop.\nent inel.uding provision of basic infrastructure are met with within a reasonable period
of time.
. ,' r-
11
Marketing of products' of rural and cottage mdustries is another aspect of great importance in the
development of rural industries. This problem
, may" have to be overCome by setting up 'Rural
'Marketing & Service Centre', (RMSC), at block
'level. . The RMSC should perform the functions
'of Identifying the beneficiaries of cottage industries
their 'needs 'for training, raw materials, equipm~nt,
. credit, and 'marketing. AlI these should 1>~quanti.fiedand"arranged by the RMSC in close liaIson w'ith
o
13
Credit estimates should be reasonably made on
the basis of demand-based' surveys. The villagewise and household wise survey would assist, the
credit agency: (I) to correctly estimate the developmental needs of the rural households. on the basis
of which credit scheme can be formulated and implemented in a given situation; (ii) to identify the
rural households already indebted to the institutional and non-institutional sources of credit, extent to which they are indebted as also whether
any of them is a wilful or genuine defaulter. If a
'few of thein are genuine defaulters, the r'easons
of default can be ascertained and the repayment
period of the defaulted loan can be reasonably,rescheduled taking over-all position of their' asSets
and likdy 'prospects of development for which
credit line can further be opened; (iii) to introduce
crop or cattle or pumpset insurance scheme or
create risk stabilisation fund or development fund,
to mit'igate the adverse effects of natural calamities; (iv) to formulate innQvative schemes viz.
crop-cum-livestock . farming-eum,acquaculture/eottage industries etc. so as to stabilise and guarantee
,minimum amount of income. This requir~s ingennity and visionary. approach of the part of the
, bank and tpe development agencies; (v) scale of
finance, disbursement and repayment' schelllile,
margin, .ic. should be 'realistic and uniform' ..for
the entire 'area; (vi) scheme should be evolved
r-
<
_..~..
I.
'
taking into consideration the availability of infrastructure and aptitude of the beueficiaries to implement them; (vii) to identify the gaps in the infrastructure and' suggest measures to bridge the
same in a reason~ble time; and (viti) credit scheme
to improve the rural communities" rural iifeand
total development of the village with emphasis on
the assistance to the weaker section of the society
should be formulated. Then villagewise credit
schemes with credit outIay and subsidy should be
worked out and the credit plan be implemcnted in
a period of, three years or so.
, 1 ' t~
~ .I'~
monitoring
....J l.
~ ...
bnilt-in
and
14
."
mechanism
evaluating
.v"'
"
the
schemes from time 'to time so that adequate flexibility is imparted in the schemes. Besides, co-,
" ordinated approach for supervision, follow-up and
recovery of loan should be adopted rather than
leaving the job to the credit agency only. This will
make the beneficiaries aware that all the agencies
including DRDA, block officials, bank, state-owned
corporation/board,
district officials have' the right
to supervise ,the end-use of credit and even take
penal action if there is Ill'isutilisation of loans or
wilful default.,
development,
15
by the banks,
jointly in the
to participate in
secure loan for
of
loans, explain
credit, repaycaution them
or 3 wilful
'I
"
"
. i.,
-----
"
income,
consumption
and investment
pattern in the
.
"
"
With this issue,' Kurukshetra' is being changed into a monthly, with more
Pages arId lot af new features,
lIseful'reading,
'
to give
our
esteemed
readers
.,-EDITOR
,. "
35
P. SRINIVASAN
Freelance JournaJist, New Delhi
VE~ AFTER
."
fl'
programme
"to
deliver results, it is
total non-transactions
the giver
or to the rec.eiver.
.. It
is time
to get
lout
of the old grooves and find new waysfor reaching
'--the goal (of economic betterment, and social equity)".
36
'
sector in urban areas have provided employment opportunities to. rural labour, the modernisation of agriculture, described as the Green RevolutioTl, has also .giv!cn
,H the investment had been progressively increased in the successivePlans much more
gainful employment would have been generated, but, unfortunately, that was not the
,case. The current Sixth Plan has, of course stepped up investment considerably,
but, as;the mid-term appraisal of the Plan shows, even this is found to be iuadequate
for achieving the physical targets.'
,
\
'
October, 1983
.,i
are being provided tb class IV employees of the government, ',md to'that extent, the industry is benefitted. ,It
is worthwhile to consider whether khadi or handloom
uniforms could, be 'provided to ,all employees' of the
Central and' State' governments' and Panchayati Raj
institutions,'so thai a big market for the industry can
be assured.. This will also reduce the hierarchical
feeling in' the bureaucracy. there arc so many 'allowances, and a dress allowance can be added to them;
or a part of the cost can be rec.overed from the employees. ,
('.,"
MENTIONED
r.
~A_~LIERJ
A launching
S,
,There bas been a growing tendency among tbe villagers, whicb has bee~ fostered
by the ~ich fa~ersand
irresponsible politicians, of not promptly repaying even
cooperative socIety loans, not to speak of government-guaranteed bank loans. It
is w~rib considering in this context, whether after assuring a profitable price for the
produce, all subsidies may be eliminated.... , ,
,IL
.~.
'
schemes
cannot provide work for all, if 'our population
grows at the present rate. The family planning campaign has not made much headway in rural areas and
it should be intensified. In China, which is also overpopulated, the communist government is taking penal
action on all those contravening the small-family (onechild) norm. This is not to suggest that we should
also adopt compulsive methods, but just to remind all
political parties and social service organisations of the
urgent task of motivating our people, especially the
rural masses, to limit the size of their families.
URTHER,
,)
ANY NUMBER
OF EMPLOYMENT
~_.----~---~-'So long as millions live iD~'hunger and ignorance, I hold eveI')' man a traitor, who, hav~
iog been educated at their expense, pays DOt
Vivekananda
,
"
.
place. The collective farm experiment in one such
State ended in failure. Even now more than one-fifth
of rural households in the country own no land. _
QUESTION OF EFFECTIVE
land reforms has
been relegated to the background in recent years.
This is because there is no organised' pressure for it
from below. All parties, including the leftist ones,'
are otherwise too busy to org3I)ise the ~asants for
getting their legitimate rights through peaceful means.
It is a sad commentary on these parties and trade
unions, that the Conference of Labour Ministers some-time back had to decide to appoint government officials
in order to organise the landless labourers, so that they
could derive the benefits of the existing legislation.
HE
,The number of landless workers is increasing at the rate of about 15 lakhs per year.
There is also widespread offseason:underemployment in raral areas. ll.With an increase of 2.45 per cent in popuJati~n and of 1.9 per cent in the labour force per
annmn, the problem is worsening witheacb passing day.'
.'
All other measures 'for removing rural poverty are
just cosmetic remedies as compared to the basic remedy of agrarian reforms. Of course, intermediary
.
systems like the zamindari were abolished soon after
Independence, laws for a fair share of the produce
ahd fixity of' tenure to the tenants, for the minimum
wages to the farm labourers, for abolition of bonded
labour and for the fixation of ceilings on land ownership have been enacted.
Some State Govermnents
have also provided debt relief to the rural poor. But
in spite of a1l'these;very large land holdings are still
there; only a negligible part' of surplus lands has been
secured and distributed among th~ peasants. and the
~, labourers are not able to get the prescribed minimum
wages; groups of bonded labour are stili being identified.' The Scheduled Castes, people, who, are also
landle'ss labourers,.,are subjected to atrocities by the_
landlords in many, areas. In some States where leftist
governments have implemented land' reforms effecti-_
"ely; resale of lands by the erstwhile-tenants. thus
remarking them back to poverty,
has been' taking
-
"
"
'
I. :
.u._
't
,.
'.
,
"The pefs;stence
line.
./
-0/
if
rural communication
is to make a
five
OLITICALPARTICIPAtION
by Ihe urban population of
PIndia is much more active than by the rural population. Political parties compete with each other in
organising,' seCuring benefits for, and thereby winning
the support at election time of workers and white-collar
employees in the organised sector such as railwaymen,
ligures relating to which are'uninfiated and reliablerose at a higher rate, nearly nine-fold, from 360,000
in,1951 to 3,130,000 in 1980. The elitist bias in
edueational development can be .inferred from these
figures. 'Edueationa]' growth has taken place maiilly
in the urban centres, whereas nearly four-fifths of the
country's population of 684, million (1981' Census)
live in villages.
There are two major reasons for the poor level of
enrolment, and the high drop-out rate, in rural schools.
One is th~t the content of formal education is unrelated
to the rural environment. The second is the enforcement of an urban pattern of school hours and vacations
which fail to 'take into ~ccount' the need ,for the participation of children and adolescents in farm work or
other family occupation at least part of the time, and
full-time during certain seasons.
The load of book learning is so heavy 'that, even in
the cities, school children need the help of . a hired
tutor, or of their parents in copying with their lessons
which are often in difiicult language and contain much
information non-essential for a school child. This
rules out the progress of cbildren from a depressed
economic and social background heyond the primary
or secondary stage of education.
. The result of the neglect of education in rural India
where the great majority of Indians live is that the
literacy rate moved up from 16.7 per cent in 1951 to
only 36.2 per cent in 1981. The absolute numbers of
'The persistence of rural poverty has moch to do with the poverty of rural
commooicatioo.'
The only way to make the political process serve the ,.
needs of rural development seems to be, 'as suggested'
at a seminar in Hyderabad' last August, to include in
the Constitution a Fourth List of subjects to be admi- ~.
nistered by Panchayati Raj institutions. This will
entail amendment of the Constitution so as to give a
statutory place to these institutions and to 'iilake--the
holding of elections to these bodies obligatory as in the
case of elections to State legislatures and to Parliament:
EDUCATION is at once a product
and a
stimulant of development. Its groWth'is impressive
at first sight. It has fitted thousands of Indian doctors,
engineers and scientists to work at responsible aud
highly remunerative levels in industrially advanced 'or
oil-rich countries, It is a question, however, ,vhetlier
such a brain drain shonld not be regarded as a sign
of imitative and undesirable, rather than 'indigenous
and developmentally re~evant, educational growth.
ORMAL
Octoher, 1983
~
~
the non-hte,rate among the growing population have
.,gone up from 372 million in 1971 to 440 million in
1981. ,
.
".
communication
in rural India.
41
we
ExtenSion workers are required to have some minimum levels of 'formal educatian, This rules aut the
deployment of young men and women from the' paorest
and most exploited layers of the rural populatian to
wark among their kith and kiu, employing their own
diale,ct and idiom. Take for example Hindi, which is
often described as the mast wiaely spoken langnage of
India. It is not really one langnage except in its literacy usage. Hindi as actually spoken in rural .India
is many dialects and langnages, such as Garhwali,
Haryanvi, Rajasthani and Braj Bhasha.
'On a visit to Rajasthan with a study team on family
platming communicatian. this author noticed that a
large percentage of the female extension workers
known as Auxiliary Nurse-Midwives were drawn
fram far-away Kerala. These 'youiig women knew
Hindi but not the distinctive local variant, which is
Rajasthani. They could !!lake themselves understaod,
but cauld nat follow what the local women said.
A more fundamental difficulty is that extension
workers are drawn mainly from the lower niiddle class.
Their aspiration is to. move up and away from their ~
class and their rural or small-tawn background., They''''
,
be
.-Indira
Gandhi
r,'
,The o-"Iyway to make tb'- political process seive the needs of rural development
" seelDSto be ... , to include in the Constitution il' Fourtb List of subjects to be ad.
ministered by Pancbayati Raj institutions. This will entail amendment of theConstitution so as'to give a statutory place to these institUtions and to make tbe holding of
elections to~these bodies obligatory as in the case or' election!, to State legislatures
and to Parliament."
,.'
"
aspire to. be like, and relate to., the elite rather than
go. to the law..,,;t-casle and poorest people in their rural
ghettoes, to bring them the message of their legal rights
or of the benefits they can' avail themselves of under
development prajects like those far Marginal Fanners
and Agricultural Labour (MFAL), National Rural
Emplayment Programme or the consumptian
loans
which the rural branches af nationalised banks are
supposed to advance to poar families.
'
ON-OFFICiAL'
AGENC.IES
like organisatians d~v?te'd
to. social welfare, Risan Sabhas and assoclaltons
af agn,cultural warkbrs or artisans c~n do ,a great deal
to make the rural poor aware of development schemes
relevant to. tlieir needs and to ,remove the obstacles of
red-tape and carruption' which prevent' them froin
,I
'IT
HE MODERN MASS
MEDIA
are
overwhelmingly
October, , 1983
Alleviation
of rural
poverty
Women's trammg in crafts like stitching and Treml>roidery not only enables them to add to their - fami.
lies income but is also useful in their househol.rj 'vork.
'Nutrition
-..
~ ...
--,.,.~-..
..
11... ,,:,.it:JI:,.;-
!~
.;! ,_1'"
or
_'
~,
..
II
"
'c: The language of the commentaries in the documentaries is often not followed by villagers, because they
.ar~ d~bbed in' the corree( literary form of the major
languages of India as spoken by the urban educated.
Vill?gers, on the other hand, usc the locally prevalent
'dialectiU 'variant of an Indian language.
, ..""
,
,"Radio. and Television are not constrained by. the
,lj!eraey billTier., And their growth has been funded
,by"the Government in the name of social education.
Inoprinciple they can and should be utilised to reach
,the, f)Jfal masses directly rather than through the twostep flow as in the case of the privately owned Press.
,.,
'
~"'.,
0'1)
~;.i.
c'o'ntr~si,
I ..
."
0;,
,"
.. ;r(~~.
'.
"
_..:..~ .
'''._~''~''''''
"';,
. ,~'l'
.
h
"
' ..'
--
i.:.di6
,0
-~,..
,,"
.'
~?"~?r
KURPl(S~TRA:
OctOber; 11983
.43
, Centrally spoilsored Plan schemes. t'he baby of community listening was thrown out with the batbwater.
,an
tion.
This 'haS not been the case: f'.
'.'
t')
p, J
'.', The only occasion, on wbich' the gover~l!1ent concerned itself with providing rural access to television
in many parts of India was the Satellite Instructional
Television Experiment which was conducted for a year
frbniAugus1'1975. - ,,'
, ...
" Di;e~t r~~epti~~ ~~t;were installed in 2 330 ~illa~
backward districts of 'siXStates to recelve programmes in four languages: Oriya for Orissa; Hindi for .the
Slates of Bihar, Rajasthan and Madbya PradeSh;
Telugu for Andhra Pradesh and Kannada for Kama~"i'"
~J\..
,.
~.
i~,
1aka-,-::1.l','
(....
'
.'
-",j'
t.._
. ./ ~..~.
"
"_~~..;~
....,~'L.~
"I
oJ
..
II
/,1
. .
.)
..~
1';'1).
",,-ct)'
the programme.
help ..
. .The custodianof the set should be better remunerated and made respensible also for andience management. Where an existing school building or Panchayai' Ghar (office of the elected village council) is not
s~itable, a new and simple structure should be erected.
'.There is little point in setting up a community viewill facility "If. electricity mains where pewer supply'
is'erratic. in such places, and in non-electrified villages, there is need to revive the 'SITE practice of
installing, battery-operated receivers. It is' also necessary,:to experiment with solar cell operation of community viewing sets, which will obviate'the expense of
periodic visits by maintenance crew for recharging the
batteries. '
films on development;'
~ themes which are made for all of India and are
addressed to no group of Indians in particular, and
which therefore fail to create interest and motivation,
SITE, programmes-except
for, some made in the local,
dialect at Pij--could neither employ local speech nor
depict the local agro-economic and human landscape.
of,
.]11
"
, I
"' ,
H ,j
t, , .~~
-...
\r .. ,.'
f'
'y...n
'" -
",
.....
'
;
...
~.. 'h
, ",
.. ,..
1:' 'bRTY:ONE
:_.~If
"
I'
. ',
-'-,.
h,
'
~..
_~.
'.r
With
revebottle
being
used as a medium ofcntertainment for the urban wellto-do rather than for adult literacy, proJl1otion of productive skills and conscientisation anlong the rural
masses.
;I
'.
I,
}i::
""',,
,",I
~".
~.
.'
1l
~.
--
.'
.--~}
My gr~test "worry
For the middle and upper class families who are the
main conSumers of Indian television, a TV seC ~s a
wholesale purcha~e of movie entertainment. It works
out cheaper, since anything costs less in bulk than in
retail. Moreover, it avoids the inconvenience of travel
to ciilerua houses and queuing up for tickets.
'
.:
j
~f
-Mahatma Gandhi
'j.'
"'!::m-"!'
rituai iuicle;uiliness, including the notion, of untouchabiIltytdespit~ 'the conferment of equal civic rights'on
all'citii.ens by the Iridian Constitution and the enactThe present clientele of Doordarshan.form a fairly
.'ment "of 'laws' making the practice of untouchability a
homogeneous group t.hrou~ the C?untry.. They. ca?,
punishableliffence; and (iii) unawareness of the moral
follow progranunes ~lth~r 1TI, Engbsh or I~ ~ndlor
,'teachiIigsof'other
religio11S,-andthe prevalence of preboth, . The present national program~e. IS Inte~ded, ,,' judices' and' derogatory 'stereoty~s;' resulting in th~
for thIS homogenous upper crust of IndIan sqclety., '1 separation of members of different'religious commUTIlThey want entert~inment: m~vies,.cricket. tes~s, Whne,,'" ties 'by-waI1s'oUgnorance, and sometimes in outbreaks
bledon or Amencan ChampIOnshIp tennIs, unported
of violent conflict.
'
social comedy like Lucy Series, athletic . games
"!l
,-._~-..,..-As against thesenegative'featiires; ther~ are elements
on the occasion' of the Ninth Asiad, or spectacular
in
0& tn;diti~ns and beliefs which call be highlighted
political games like the Non-aligned Summit. Such
a~CI
. drav,;n on topromoie socilil harmony ~d proare the progranunes that Doordarshan has been serving
For eiWfple, there ate numeroUs instanci:l; ,in
and is equipped to deliver.
IiidianMYth~fogy 'and 'epics to illustrate the ideas, of
This pattern of TV content will continue unless there
orotherhooo. of man arid the superiority of inner worth ''-/
over acCident cifbiith or riches.
gress.
orr:,.,The~
l'
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'Like mdian documentary films on development themes which are made for 'all of '
India and are addressed to no group of Indians in particular. and whieh tl!erefore fail
rto create interest and motivation, siTE prograDmies~xCept [til
~ade
the
loCal dialect at Pij--couldneither employ loCa:ispeech' nrir depict the ioeal ailto..
economic and human land~pe.'
.
; '."~.W. ,''''
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prayers and benedictions for a large number of children; specially sons, whiCh had their origin at a time
when brawn was inore important than brain arid when
famine' and disease 'resnlted in high 'mortality rates:'
(ii) the persistence of caste'prejudice
and 'ideas 'oc
',1
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~. '~.,_'r,
:t~
KURUKSHETRA October.
1983
The employment of folk medi~ for effectively conveying modern messages, in a language and style that
.will be locally comprehended and liked, will be possible
only if resident, rather than visiting, practioners of
the traditional media are utilised. For this it will be
necessary that extension personnel of the development
departments should locate, communicate with, persuade
and motivate resident practitioners of thll traditional
media in each group of villages to perform frequently
in each cluster of villages, and at nominal remuneration. This will require a high degree of motivation On
the part of extension personnel, and th~ ability on their
part to get the village composer-singer or other artist
RADITIONALMODESOF ENTERTAINMENT
ANDINSTRUCTION
also continue to be vibrantly alive in
rural India.
Folk forms like the ballad, drama, dance and stylised narration can be utilised to promote awareness of
and participation in rural economic development and
social change.
The union Government formed a small Song and
Drama unit in 1954 as part of All India Radio. The
'Considering tbat tbe number of villagesin.India is nearly 600,000, it is clear tbat tbe
exposure of tbe rural population of India to the purposeful utilisation of traditional
folk media is as little as to tbe modern mass media.'
unit was sepa.rated in 1960 and established as the Song
and Drama DivisiOn:I! presents prograinmes of songs,
dance and drama, puppetry and stylised narration,
both through its 41 departmental troups and through
about 400 private parties which are screened and regis'
teredo
,
"
These programmes are designed to promote national
Unity and social harmony aud to increase the awareness of and participation in programmes of social re. form and econontic development. Notwithstanding
the increase, over the years, in the number of field
ofiicesand in the personnel strength of the Song and
Drama Division the number of programmes presented
by it stood at only 21,138 during 1977. Not all of
even this small number of programmes ar~ presented
in typical small villages or in the depressed localities
of urban centres where first and second-generation
ntigfants from rural areas live.
-
The other and perha~ more realistic way is, ins.tead of attempting to have live performances frequently
in each of India's villages, to utilise locally popnlar
traditional forms of communication through the modern
mass media. Traditional media being highly specific
to each cnltural region even within linguistic zones,
and development information itse! h~ving to be areaspecific, the mass media programmes using traditional
forms would have to be made and delivered on a decentralised basis. But that. is not the pattern on
Whichthe governmental mass media h~ve developed.
THUSDRIVEN
TOthe conclusion that the pov0.'NEIS
erty of rural communication will persist unless the
Governmeni re-examines and radically alters its communication policy. The policy at present is of topdown and centralised communication. It mUStbe replaced by communication among and from the people
at the bottom, decentralised and participatory, if rural
communication is to make a significant contribution to
development-understood not in terI1lsof cement, concrete and' steel structures but of improvement in the
material well-being and quality of life, of
the rural
masses.
iIi our country. The latter evil, namely, absentee land- lordism, has become worse in recent times by the intrusion of black money in buying up lands.
- In land reforms or other measures, the criterion for
their evaluation is whether they have contributed .10
the . actual remov!u of the age-old and phenoni~nal .
rural poverty. If not, it is time for getting 'out of the
old grooves ,!nd finding new ways for reaching the
goal.
:47
ASEKHARAN
, The author is of the opinion that "increase in dimension of poverty and the appalling magnitude it is
assuming day by day are the very antithesis of the desi'
red goal of achieving at least a gradual decline in poverty
and its ultimate eradication'.', and asserts : "If after
programme'.'.
Bangalore
..
There are many categories of rural 'workers including rural artisans. But a vast majority belong
to the category of landless agricultural labourers,
and small and marginal farmers. For the purpose
here, it is desirable to limit ourselves to this majority
of category. Landless agricultural labourers comprise three types : they are bonded labourers, attached labourers and casual agricultural labourers. The
small and marginal farmers suffer from disabilities
like low acreage of land, lack of irrigation facilities
and lack of resources for improving the land. Compared to the organisation of industrial labour in urbari
areas, it is indeed very difficult to organise the rural
workers, specially the agricultural workers on the
same pattern. The organisational aspects of agricwtural labourers need to be considered in relation to
the structure of the agriculture sector. It is a very
wide sector in the sense of generating large employment and output. It also has several sub-sectors.
Agriculture covers plantations, animal husbandry,
horticwture and crop cultivation farms. By and large,
workers in plantations are already well organised.
In the case of animal husbandry,
in large dairy
farms, work and wages are generally regulated. But
in the' case of other farms, the situation is different
and efforts need to be made to organise the animal
husbandry workers. In respect of horticultural farms,
49
wages
MOST IMPORTANT
ONE, THEREFORE,
OME
nO'
the various groups of the rural poor. The assumption was wrong because the economic forces at the root
of poverty are the same. They relate to the universally low levels of income. Therefore, in view of
the common interests that are involved, it appears
rational to encourage the different sections of the
poor to organise themselves into a single organisation
instead of separate
, organisations. Such an effort has
'The attitude of the poor towards life itself is full of despair. Addedto all !his is the
condescendingattitude of the official implementersof the programme, w~lch makes
the poor feel small and humble. Obviouslyefforts have not been made m adeqnate
measure to make the poor Ilooplefeel that they are also human beings and that they
have a right to improve their standards of living.'
Kerala. Obviously, orgamsmg
the
ed d.
succeem
..
rural poor is a complex and difficult task. It IS eaSIer
said than done. The reason is that there are ~evera1
constraints such as their scattered nature, thel[ own
persona! and sentimental affiliations ~ landed .~nd
other interest' groups, lack of coheSIVenessansmg
out of their diverse cultures, castes and customs, lack
of even, elements of mental preparedness and strength
to stand up against injustice and absence of any
October,
1983
Rural' ~industtialisation"
willngQi along'way"
V. VENKAIAH ',;
Faculty .Member, Institute of Public Enterprise, .Hyderabad
'.
~.
J. __.- - ..
~"
!H
t,
'"1
T liE
PROBLEM
OF POVERTY has assumed
serious
.dimensions in India. Studies conducted on this
problem suggest thai there has. been an increase in the
number and proportion of the people living below the
poverty line. A riew type of poverty has been grow.
ing in rural India'in the 'recent years. According to
this, poverty is no longer associated with economic
stagnation inherited from the colonial era, but rather
is ihe prodnct of 'planned' 'agrarian change of rural
development in independent'India.
The gap between"
the' vast growing 'wealth of the few and the' continuing ..
poverty of the' many"has 'been widening and crcating
new sociallensions' and 'conflicts' in rural 'India,
t:
The experience gained from the' above rural development programmes has shown that a sectoral app.
roach is not adequate for overall development of au
area nor for the percolation of the benefits equitably
among the local population particularly of the weaker
scotions of the rural areas. As such the Government
'A new type of poverty has been growing in rural India in the recent years. Accord. ing to this, poverty is no longer associated with economic stagnation inherited from
the colonial era bnt rather is the product of "planned" agrarian change of rural
development in independent India. The gap between the vast .growing wealth of the
few and the continuing poverty of the many has been wideningand creating new social
tensions and conOicts in rural India.'
of India formulated another programme called. the
Integrated Rural Development Programme . (IRDP)
.in 1978-79 for intensification of the existing developmental effort, With the result that today the programmes .under the earlier schemes got merged with
the IRDP which was introduced in all the 5011 blocks
in the conntry sinc~ April 1980.
HE INTEGRATEDRURALDEVELOPMENTCONCEPT
involves a multi-pronged attack on the problems
of rural development. 'Integration' here covers four
principal.dimensions-integration
of sectoral program. mes, spatial integration, integration of social and' economic processes and, above all, the policies with a
view to achieving a better fit between growth, removal
of poverty and employment generation. More specifically, it involves a sharp' focus on target groups
comprising small and J;IIarginal farmers; agricultural
labourers and rural artisans and extremely specific
planning in the rural areas.
The IRDP aims at increasing production and productivity in agriculture and allied sectors and developing rcsoilrces and generate iricomes of the vulnerable
sections of the rural population on all me blocks of the
countri
The programme is mainly oriented to augment the family incomes of those below the poverty
line through reduction of the incidence of chronic
unemployment and underemployment in the' rural'
areas. The' twin objectives of lRDP, therefore, are
52
programmes for small and marginal farmers and agricultural labourers, the IRDP covers' all classes of '-1
people including non-agricultural labourers and rural
artisans who (lre below the poverty line. The significant characteristic of IRDP, as in the earlier program- .
mes, is the mobilisation of institutional credit for individual economic programmes resulting in larger income
accruals thus enabling the individuals to cross the
poverty line. Realising the complexity and magnitude
of the problem and the urgency to solve it, government
has launched different programmes mentioned above
to frontally attack the problem of poverty.
The strategies for taclding rural poverty enunciated
by the government from time to time have been partially successful in achievmg their objectives.
;e~
between them' and allows' the rural economy self-sustaining with improved position of savings and investment. In other words, it would result in higher productivity of abundant local resources. Rural development through planned rural industrialization is advocated on more than one-grounds: (i) rural industries
are suitable to ,rural areas as thcy are raw materialhased; Oi), uplifting rural economy is possible by
establishing small scale industries, as they create
employment opportunities to the over-populated
rural areas and help solving the problem of disguised
unemployment and underemployment; (iii) the locally
availahle resources-human and natural--can be utilised for the improvement in the income levels of the
village economy; (iv) income generation through rural
industries would improve the purchasing power of
rural masses thereby creating potential for demandbased industries and increasing the standard of living;
(v) migration of rural population to urban centres can
be prevented by setting up of industries in rural areas;
(vi) rural industries would achieve balanced growth
,by coordinating agriculture and industry; and (vii)
decentralisation and dispersal of industries would be
achieved to a great extent through the establishment
of small sc'ale industries in rural areas.
oTIe' of the importarit ~rerC{juisites'for solving
the problem of rural poverty in our country is proper
integration" and coordination" between agriculture and
industry' which "ensuresintensive and extensive development of agriculture thereby crea,ting additional employment for the" niral population. Such integration and
coordination' between two sectors is only possible
through rural industrialisation by setting up of agrobased industries in rural areas.
c'
GRG-INDUSTRIAL DEVELOPMENT
implies growth of
industries in rural areas through inter-dependence
of agriculture and industry. In brief, it is a process
of balanced growth of industry and agriculture in which
-t1ieoutput ofagriciIltiJre serves as an, input of industry
,R
URAL INDUSTRIALISATION
is an urgent need of the
hour as it provides equihbrium for the structural
economy of the country which would in turn 'help the
development of both agriculture and industry. It
'makes them useful with the process of coordination
." ~
and vice-versa. . Thus, integratcd rural industrialisation through agro-based industries is a dynamic, interdepending and ,self-generating process. The unique
features of agro-based ,industries in, planned industriali~
zation of the rural areas are analyso<!below.
J,
;"In practice the'different'developmental schemes"meant for::ameliorating the condi, , tions of the rural poor operating in ,the COnlltry,though,;vary'in concept,and content,
were reduced to'mere subsidy-giving progr~mme.,shorn of_any~plannedapproach to
" the betterment of the rural poor as an inhuilt.process,in'.the development oUhe ,area
.. ~n~' its' resources. 'Even the' newly"introdnced, mDP, .""bich'it ,saidito, he'compre" hensive and aims at making a frontal attack on rural poverty cannot ,eradicate. this
prllblem during the 'plan 'period.alone. "
"
sector-resulting irirthe
'~KURUKSHETRA10ctober~
.1-983
.-
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8. Industrial Dispersal.-The
study also substantiated the fact that balanced regional development
can be met by evolving a planned indus.trialisation
through agro-based industries as they have greater
location flexibilities. These industries may be
considered as main instruments .for decentralisect rural indusirialisation. The big cities of India
as we all know, are at prcsent facing the ecological
problems of urbanisation and industrialisation, and
therefote, lndustrial dispersal has become an econOmlc necessity. With frequent shortage of .electricity, water, skilled labour, housing, transport etc., in
urban areas, agro-based irrJustries are forced' to look
for an alternative location in rural areas, and thus
have become prime m'overs for industrial dispersaL.
I.
industries nOd'
T cultivation ofagro-basedagro-based
industrial crops deve- "
HE
DEVELOPMENT
OF
viz" banking,
transport,
communica-
;,.'
'An important drawback of the (IRD) programme is that it does not initiate any inte- '
gration of differentsectors~agricnlture, industry and tertiary-relevant to the rural "
areas. The integration emphasised has been mainly tbe coordination of different
government agencies. Even 'ihisintegration is not forthcoming.'
activities. Thus the establishment and growth of
agro-based industries set in motion the process of
capital formation in the rural areas.
.1' .' I
6. Entrepreneurship.-Agro-based
indnstries' pro- I'
mote. rural and indigenous cntrepr~neurship. Iri
fact, paucity of entrepreneurial talents, particularly .
in rural areas, is one of the basic handicaps of indus-'
trialisation of rural areas in developing countries; It
is observed that agro-based industries acted as j1;ood
nurseries for the growth of rural indigenous entr-e-
",_ '1.11
deve~,~p~~.nt'
of t~e rU:li! are~s:'!, .. ~ ~ .t .0.:. ,.:')
7, Infrastructure.-,-Agro-based
industries operate.
as .catalytic , agents for the development of infra- t
'I ",,',
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,.,.
(ii)' the demand for inputs and services for agriculture including tools and equipment, ,repair services, transport, processing and supporting infrastructure and works etc., which
would .increase with agricultural develop, ment; arid
,(iii) the demand for manufactured goods.
, Some research'sttidies On household expenditure revealed that sigruficant portion of the income was spent
on ,non-food items. The increase in demand for non~
food items stems. from both 'backward' and, 'forward'
linkages with agriculture. The former includes demand'
for tools'and equipment repairs and supply services,
buildings, and, other works; the latter includes processing, transport and marketing of output. Besides the
markets generated by agricultural development, exter
>.
.!
\ .,",~
, ~.
' .
.';
'VOLUNTARY
ORGANISATIONS can usefuIIy
add the task of organising ,the rural poor to their
other functions. Orgauising the rural poor alone cannot itself be a function because the success of the
task depends on the rapport which the voluntary Orgauisations have with the rural and the confidence
and credibility which they are able to create in the
rural people. This, they can achieve ouly when
thrOliih other modes of social and economic upliftrnent
tasks," they creaih: a considerable degree of satisfaction in the people that their interestS are being looked
after. OVer the .'years, voluntary orgauisations have
been contributing their mite for helping the poor to
help themselves. But this is by and large outside
the orbit of 'GoVernment programmes. Ii there is 'to
be any' rneimingful'participation' by !he people in
:UCH
. ~l;
~:. 't}
KURUKSlffiTRAOcto1Jer,1983
k .ok .....:--......
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We can be j~sj}y';~r,~';l~)?!:~,),
: Extension of ir;.rigoationfa,,:il~t!~s:1-"
::1
the encouraging,achievements
f~, I~tegrated Rural
evelopme~~;,i ~,: t'
of the Revised 20'Point "c,
: Rehabilitation of bonded lab()ul'lJ;.
"
Programme-:::thebh.leprint for
I Welfare of Scheduled Castes and :/. :"
progr~ssimdprosperity for the, " , Scheduled Tribes;
, ~\,.
,
masses.;rhe prograritrites in ~':
!,!, Drinking 'water lacir.tie~ in ,probJ~m' :
which we attained 100per cent
I
Villages;
,
""I
I - :free plantahon; and
..
"
(or nore)of the target set out
~ ..
,
"
, ," ~, "~ ...."
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",,1,,Integra,te"d .Child Development, Servi,ce '".,
for' ,1982,83irl(~hid~;
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KURUKSHElRA,October,
/....
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.~.,; ,.;;..._; ,.;'" li,.IC-':.'.
19831.
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MAHADfAby,D,G, Tendulkar.
' mE GANDm STORY
A setln 8 Volumes Dduxe .Rs 100,00 by SaWall!& Badalkar
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MAHADfAGANVHI:
',""'0
",
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::: OF lIlAHADfA GANDHI
;
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~:,R.~.(l~.OO
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" ""
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FREE
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COPY OF
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J
"Government
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J;.o J
.1""
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'-,,-:.
58
-., .. ,~
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H.i.,
KtiRUkSHETRAOctober,
.., .,
1983
~: . ~. :',
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.,,:.;:.;.:~!}
;;';;"?; .. ;
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'"'.-.'
-..=- .'
Regd. No D(DN)/39
RN702/57
..
PUllLlSHED
ny THE
AND PRI;-'TED.BY
BUSINESS
DIRECTOR.
THE
MANAGER:
PUBLICATiONS
MANAGER.
L
R.
DIVISION,
GOVERNMENT
BATRA ASSTT.
NEW
Of' I:"DI.\
DIRECTOR
(;
DELHI-t
10001.
PRESS.
f','RlDAIlAD.
: K.
R. KRISHNAN