31 Introductions to Community Development Programme

Dr. Meenal Dhall

Learning outcomes:

After going through this module, you will be able to-

Provide the overview of community development programme.
Define the concepts of community, development & community development.
Elaborate on the features of the community development programme.
Discuss the aims or objectives of the community development programme.
Give brief account of implementation and conclusion of c.d.p
Provide structural framework of the community development programme.
Detailed overview of fields which are covered in community development programme.
Give emphasis on the essential elements of community development programme.
Discuss the historical perspective of c.d.p in India.
Describe about the importance of development in rural areas within the c.d.p.
Explain the causes of failure of community development programme.
Give a brief summary of the community development programme.

Introduction-

India as a country is represented by its agrarian structure as more than 75% of its population lives in more than 5 lakh villages, which mainly depends on agriculture (occupation) for livelihood. The rural population largely consists of small, big and marginal farmers, agricultural laborers, artisans, various other castes and tribes. And a big part of this rural population (more than 60% of rural population) is still living below the poverty line. India cannot make any progress until its villages are developed. In the past our villages were undeveloped. Due to which ‘our government’ realized that the progress of the country was not possible without the development of our villages. Therefore, plans were made to develop our villages and to improve the living conditions of the people in the villages, which somehow leads to the emergence of few programs like rural development and community development programme.

Because these programs mainly aimed at upliftment of the rural poor and development of areas like agriculture, animal husbandry, roads, health, education, housing, employment, social and cultural activities.

1. Overview Of Community Development Programme:-

The concept of community development starts shaping its existence in India well before the independence. Even during the struggle for independence under the leadership of Mahatma Gandhi considerable attention has been given to the rural development or upliftment of rural areas or villages.

He often instructed the other leaders the true independence can only be achieved with the strengthening of the rural economy and eradication of poverty. British government of India in 1935 enacted an act, which confirming the autonomy of the provinces including the rural development as an important programme.

After the independence, the community development program had been given the high priority and in 1948 a pilot community development project was launched through the etawah project along with 15 other pilot projects for community development by the financial assistance of ford foundation.

Later in 1952, the government of India launched the community development programme officially on pilot basis in 55 districts in which each at least covers about 300 villages or a population of about 30,000. The programme was multi-dimensional but mainly aimed at the socio-economic upliftment or transformation of the rural people. The basic aims of the programme, as summarized by prof. S.C.Dube were as follows-

To provide for a substantial increase in the country’s agricultural production, and for improvements in the system of communications, in rural health & hygiene and in village education.
To initiate and direct a process of integrated culture change, aimed at trans-forming the social and economic life of the villagers.
And in the words of Pandit Nehru; prime minister of India at that time, that these project sappeartome to be something of vital importance, not only in the material achievements but much more to build up the community and the individual, and make the latter a builder of his own village center and of India, inthelargersense.

2. Concept Of Community, Development And Community Development:-

Community generally refers to the agglomeration of families or agglomeration of smaller groups which occupying a common territory whose bonds are not essentially those of kinship, but sharing the same fundamental values, rituals & other practices, and participating in the regular activities in which the frequency of personal encounter and interaction is higher and lives in the natural habitat.

Common residence, common rituals & values and common activities- these form the basic tripod or supporting pillars of the community. These groups may either ‘open’ or ‘closed’. It is a dynamic social unit which is subject to change of “internal or external origin.”

The word ‘community’ in itself is charged with ambiguity; its associations and meanings are many and subtle. Because it’s not represented by certain integrative forces such as shared locality and shared interest but it’s something to be achieved, such as the national or world community.

Whereas development connotes the growth or maturation and is defined as the process which signifies the change from something thought to be less desirable to something thought to be more or highly desirable. It implies gradual and sequential phases of change. It further signifies that it is purposive and the purpose is in human affairs which moulded by individual and social values. Morris Ginsberg has suggested three main and distinct criteria of development such as-

The growth of man’s control over the condition of life. I.e. his natural environment, his society and himself;
The growth of co-operation within and between societies; and
The growth of freedom in co-operative relationships.

Community development refers to the continuous process of social action which describes change from the traditional way of living of rural communities to progressive ways of living; as a method by which people can be assisted to develop themselves on their own capacity and resources; as a programme for accomplishing certain activities in fields concerning the welfare of rural people and as a movement for progress of people with certain ideological content.

While the United Nations defined it as the process by which the efforts of the people themselves are united with those of governmental authorities to improve the economic, social and cultural conditions of rural communities and to enable them to contribute to the national progress.

The planning commission has defined the community development programme in these words: “community development is an attempt to bring about a social and economic transformation of village life through the efforts of the people themselves.”

3. Characteristic Features Of Community Development Programme:-

Community development programme exhibits several characteristics which help in the development of rural communities which are as follows:

It promotes self-confidence among the ruralites.
It was comprehensive in content.
It possesses economic progress as the core objective.
It comprises of flexible programmes and handles posting of a multipurpose worker at the village level.
It develops self-reliance in the individual and initiative in the village community.
The community development programme effects change at the social, cultural and psychological level of the ruralites.
It seeks to create new administrative machinery suited to the manifold needs of the village.
It is pre-eminently people-oriented.
Community thinking and collective action are encouraged through people’s institutions like the panchayats, cooperative societies, vikas mandals, etc.
It helps in development of the rural economy and makes it self-sustainable.

4. Aims Or Objectives Of Community Development Programme:-

As Prof. S.C.Dube highlighted during the launch of community development programme in 1952 that it possesses two basic aims or objectives of community development. They are-

(a) Achieving substantial agricultural production and considerable progress in the sphere of communication, rural health and rural education and

(b) Transforming the socio-economic life of the village through a process of integral cultural change.

The objectives of the community development project within the rural perspective have been divided into two parts. They are referred as short-term objectives and long-term objectives.

4.1 Short – Term Objectives:

To increase the agricultural production or output both quantitatively and qualitatively.
To solve the problem of rural unemployment.
To develop the means of transport and communication within the villages network through repairing old roads and constructing new pucka roads.
To bring about development in the sphere of primary education, public health and recreation.
To assist the villagers to build good and cheap houses with the help of modern plans and with new building methods.
To set up and encourage cottage industries and indigenous handicrafts.
To build-up some rural industries in the near-by area, so that they can serve the need of villagers and their employment.
To bring about a greater socio-economic equity.
To bring about a spatial balance in social and economic development; and
To bring about improvement in the ecological environment so that it may be conducive to growth and happiness.

4.2 Long-Term Objectives

The long-term objective of community development projects were those which considered the holistic or overall development of rural life through proper utilization of physical, natural and human resources. And were basically people’s welfare oriented; to provide all kind of facilities to the ruralites through the hands of the state government or district power intervention.

Long-term objectives were mainly to care of the social, cultural, moral, psychological and financial progress of the villagers or ruralites within the limits of community development projects.

For fulfillment of the long-term objectives; the government of India, launched the first-five year plan (1952-57) along with the 55 community projects within the 55 districts of India in 1952. In first-five year plan, one out of every three villages was brought in the consideration of community development programme.

The first five-year plan basically is to seek the initiation of a process of transformation of social and economic life of the ruralites. Whereas with the introduction of the second five-year plan (1957-1962), the target is to bring the every village of India within the periphery of the community development projects; with about 40 percent of area being brought under the intensive development area for community development projects.

5. Implementation And Conclusions Of Community Development Programme:-

The community development programme was rapidly implemented in 1952, when government of india realized the importance of the project. Initially it was on pilot basis but later on the major basis. The programme was implemented through units of blocks, each community development block comprising of generally of about 100 villages, an area of 400-500 square kms & with at least a population of 60 to 70 thousand.

By the end of first five-year plan period in 1956 there were about 1114 blocks covering 163,000 villages were in operation; which covers approximately 2/5th of total population. By the end of second five-year plan it covered about 3,000 blocks; including about 70% rural areas and by 1964 it covered the entire country.

It was only in 1958 that the importance of movement was realized and had been given the optimum emphasis on it. In the words of u.c.ghildyal, director of national institute of community development, hyderabad; “panchayats as a subject was handled by ministry of health, with no developmental role. It was only in 1958, the panchayats were transferred to ministry of community development, to execute the works on local level (out of schematic budget of community development) was delegated to the panchayats, lead to establishment of panchayati-raj, which later on in 1959, invested in local government bodies with statutory authority”.

And the whole plan defined the central objective of planning as creation of conditions in which living standards can be highly improvised and people or an individual can have full & equal opportunity for growth and justice (Sacchidananda, 1988).

As community development projects were first started on pilot basis along with a major project which was implemented in 1952, brought some conclusions as the output of the projects which are as follows-

When different departments of the government approach the villagers, each from the aspect of their own work, the effect on the villager was confusing and no permanent impression was created.
The peasant’s life is not divided into segments in the way the government’s activities are; the approach to the villager has, to be in a coordinated manner and has to comprehend his whole life.
Programmes which have been built on the cooperation of the people have more chances of success than those which are forced down on them.
Official machinery has to guide and assist the principal responsibility of an individual for improving their own condition which must rest with the people themselves.
Until &unless they feel that the programme is of them and value it as a practical contribution to their own welfare and development, no substantial results will be gained.
Programmes largely dependent on expenditure by the government, in which the elements of self-help and mutual cooperation were only in a nominal degree, due to which they are short-lived.
The essential idea should be the reduction of chronic unemployment which is a feature of rural life—through the introduction of practice of scientific agriculture and cottage and small-scale industries.
Advices are of no use & benefit, unless they are backed by practical aids—supplies of seed and fertilizer, finance and technical guidance for solving the farmer’s immediate problems.
The best results will be only being gained if the programmes are pursued intensively, and practically every agriculturist family has its own contribution to make through a village organization; along with the governmental contribution.
The approach to the villager would be in terms of his own experience and problems, conceived on the pattern of simplicity, avoiding elaborate techniques and equipment until he is ready for them.
The aim should be to create in the rural population a burning desire for a higher standard of living— a will to live better.
There has to be a dominant purpose round which the enthusiasm of the people can be aroused and sustained.

6. Structure Of The Community Development Programme:-

To Implement The Multi-Facet Community Development Programme, A National Extension Service Was Inaugurated In October 2nd, 1953 With A View To Provide The Necessary Manpower For Proper Implementation Of Community Development Project.

6.1 Administrative Structure- the panchayats, for administrative purposes, were grouped into blocks each covering 60,000 to70, 000 people. In turn 15 to 20 blocks constituted a district. Each panchayat was given a village level worker, who had to function as a multi-purpose catalyst and extension agent in between the villagers and panchayat.

At the village level there were various institutions established and sponsored by the panchayats in order to involve the people for the development work in their area. To encourage youth or young individuals for the developmenttheyuvakmandalsandtoencouragethewomentoparticipatewithin the projects themahilamandalswereestablished.acooperativesocietywasestablishedforthe economic and commercial functions.
Aruralworksprogrammewaslaunchedwiththeideaofevokingtheparticipation of the people on a self-help basis aimed at their advancement as well as the advancement of the nation.

After the initial phase of implementation of the project; it was evaluated in 1

Balwant rai committee which gave the community development projects its proper structure as an organization. A framework was established as a three-tier system.
As the organization was established as a three-tier system; it generally comprises of zila parishad at district level, panchayat samiti at block level and gram panchayat at the village level. Thus, there were three constituents in the administrative system at this stage:

1. Panchayati raj;

2. Direct line staff, such as collector, block development officer, & VLWS; and

3. Specialist staff, such as extension officers of different departments.

Each VLW (village level worker) covered a population of 5000-6000, spread over 5-10 villages to implement various development programmes launched by different departments. The vlws were expected to meet the farmers and persuade them to take part in various development schemes.

The extension officers reported primarily to the bdo and to their senior as well, in the respective department, based at the district headquarters. The bdos reported to the district collector, who is the administrator of the district.

The development commissioner, at the state level was responsible for community development by coordinating through the district collectors. At the national level, the administration of the community development programme was entrusted to the planning commission. Here is the representation of administrative heads according to their level of powers-

6.2 Unit Structure-

Within each community project, as at present planned, there will be approximately 300 – villages which working as a unit, with a total area of about 450 to 500 square miles, a cultivated area of about 150,000 acres and at least a population of about 200,000.

The project area is conceived as being divided into 3 development blocks, each consisting of about 100 villages and a population of about 50,000 to 70,000. The development block is, in turn, divided into groups of 5 villages each, each group being the field of operation for a village level worker.

Location of the units for community development projects; is mainly depends on the existence of irrigation facilities or assured rainfall, as increased agricultural production is the most urgent objective of the community development project within an area, which functions as a unit structure. In assessing irrigation facilities and the possibilities of development, irrigation from river valley projects, from tube wells, as well as from minor irrigation works have also been taken into account for the projects.

7. Fields Of Community Development Programme:-

There are various fields which were included in the preferred list of fields for community development projects, so that it helps in overall development off the whole rural community. So the main fields of activity which are considered in projects for community development are as follows-

7.1 Agriculture-

With agriculture there were various provision decided for development in agriculture & allied fields which includes- reclamation of available virgin & waste land; availability of commercial fertilizers & improved quality seeds; promotion of fruit & vegetable cultivation; improved quality of agricultural techniques and proper land utilization; supply of technical information; improved agricultural implements; improved marketing & credit facilities; provision of soil surveys on district level and prevention of soil erosion; encouragement of the use of natural & compost manures and lastly the improvement of livestock, here the principal emphasis being on the establishment of key villages for breeding stock and the provision of veterinary aid, as well as artificial insemination centers. So that it leads to the increase in the milk production.

7.2 Organization-

It includes various form of institutions such as- organization of ‘co-operative service societies’, multi-purpose cooperative societies, ‘marketing co-operatives’ societies and various institutions at centre, district, state and national level, so that it can measure the community development at different levels and perspectives.

7.3 Irrigation-

Within the irrigation field; the programme includes provision of water for agriculture through minor irrigation works, e.g., tanks, canals, surface wells, tube-wells, etc., the intention being that the agricultural lands should be served with proper irrigation facilities, so that it helps in increasing the agricultural production.

7.4 Education-

As we know full community development cannot be assured without the improvement in proper education facilities, alike for men & women. So the community projects have been planned to provide the facilities of social education, expansion and improvement of primary and secondary education and its gradual conversion to basic type, provision of educational facilities for working children and promotion of youth welfare. Vocational and technical training will also be emphasized in all the stages of the educational programme. Training centres which already exist in any area, will be improved or strengthened and developed, and new ones established to meet the requirements of the project area.

7.5 Communication-

Within this field for community development, there were the provision of development of roads, so that proper link can be assured with all the villages within a project unit area upto a maximum distance of half a mile from the village, the latter distance being connected by feeder roads through voluntary labour of the villagers themselves.

7.6 Employment-

The unemployed and the under-employed persons in the village community be provided with gainful employment to such extent as it is possible, by the development of cottage and small-scale industries, construction of brick kilns and saw mills and encouragement of employment through participation in the tertiary sector of the economy. To assure the employment facilities within a project areas for the ruralites associated with the community development project and ensure their proper participation within the project.

7.7 Health-

Health organization were established to ensure the availability of proper health services to the ruralites with the establishment of primary health centre in the development blocks and a secondary health unit equipped with a hospital and a mobile dispensary at the headquarters of the project area and serving the area as a whole.

7.8 Training-

Training centres were established for the proper training of farmers, village level workers, project supervisors and other personnel to be carried out for skill up-gradation and enhanced efficiencies of the project works.

7.9 Housing-

Apart from the provision of housing for community projects personnel, steps will be taken, wherever possible, to provide demonstration and training in improved techniques and designs for rural housing. In congested villages, action in the direction of development of new sites, opening of village parks, new form of houses, playgrounds and assistance in the supply of building materials, may also be necessary.

7.10 Social Welfare-

There were the provisions for audio-visual aid for instruction and recreation, for organizations of community entertainment, sports activities and melas for community interaction and its welfare which includes activities like rehabilitation of old, disabled and destitute, provision for better housing, organization of sports, promotion of cultural activities etc.

8. Essential Elements Of Community Development Programme:-

There are various essential elements which ensures the full & proper functioning and success of the community development programme, which are as follows:-

There must be concerned action for proper establishment and functioning of the multi-dimensional and multi-purpose programme.
Fields of activities which included in the community projects must be ensure and correspond to the basic needs of the community. Always the first project must be initiated according to the expressed needs of the ruralites or community people.
The identification, encouragement and proper training of the local leadership must be taken into consideration as the basic objective of the programme.
A change in the mindset & attitude of the people is the most important factor related to the success of the community development programme, especially during the initial phases of the development projects.
Greater reliance on the participation of the youth and women must be ensured within the community projects; so that they establishes themselves on the wider basis with the projects and ensures the success and expansion of the community development programmes.
Resources of the voluntary organizations like NGOs should be fully utilized in the community development programmes at different levels such as- local, district, state and national.
To be fully effective, community self-help projects requires both kinds of aids such as- internal & external from the voluntary organizations and the government.
An economic and social progress in development at the local level ensures the success or necessitates the parallel development on a wider level or national level.
Community development must aimed at increased, proper & better participation of the people in community affairs & development and transition of the local administration & government to the improved and effective administration.
Implementation of community development programme on a wider, broader or national level requires the adoption of consistent & successful policies, specific administration, recruitment & training of personnel, proper use or utilization of the natural & human resources and organization of the experimentation, evaluation and research.

9. Historical Perspective Of The Community Development Programme:-

1950s-1960s- as government of india launched or initiated the community development projects first on pilot basis and then actually on wider basis in 1952, which shapes properly in the 1960s.the c.d.p comprises of three distinct perspectives such as-

Academic- related to the study of the social work within the community development projects, transition in the academic was slow.
Practice- c.d.p worked as voluntary sector for diverse people and institutions such as-reformers, charity organizations, and locality development & welfare services.
Trends- c.d.p in relation to trends corresponds to the criticism of policies and programme ineffectiveness, with growing political debates on poverty & social justice and social actions on various issues.

With emergence of various other programs within the community development project, it start expanding in the next decades of the 1970s-1980s, which are as follows-

In 1970s-1980s- after introduction of various other programmes in relation to community development project, the programme start expanding due to which various issues and complexities start emerging such as-

In 1970s various social movements and grassroots initiatives & objectives emerges entailing the collective action.
With critique of social work and its politically ‘neutral’ positioning; the western connection start shaping its structure.
While in 1980s, change in the perspective of community organization is observed which draws attention by sectorial developments, political and social debates on ‘development’ and social justice along with the constructive tension of the social work.

We had seen redefined structure of community organization in the decades of 1990s-2000s which somehow related to the-

Deeper faculty engagements in the issues.
Grounding in complexities of field.
Sharper practice perspectives and theoretical underpinnings.
Negotiating the spaces with clearer ideological positioning.

Which somehow leads to the ideological orientation such as- social transformation, access to entitlements, pro-poor, social justice, equality, dignity and rights of marginalized; which finally results in the form of community organization- towards a reflexive posture in social work.

10. Importance of Development in Rural Areas And Its Significance:-

As we have seen that today in developing countries, small rural communities are culturally isolated from the main stream of the national progress or development due to which reduction is observable in the overall development of a nation. So, in the development of a nation and even for the growth and continuance of the cultural heritage of the human race, rural community development is necessary. As community development recognizes the true and vital place of rural reconstruction and development in the total or complete development of a country.

It has been a matter of deep concern over the fact that the masses of people who dwell in the rural areas are living in the conditions of extreme poverty along with the issues like ill-health and illiteracy; are ill-organized for the effective participation in the programmes of their own betterment or development and lack the knowledge and resources for improving those conditions.

Community development within the rural areas focuses attention on the fact that the country as a whole will not progress, no matter what how fast is progress is observed in the fields of industry, transportation, railways, shipping etc.; until & unless the rural areas progresses in the same manner and with the equal speed.

It has been recognizes world-wide that the welfare of the peasant or rural communities must be the first concern of all democratic governments and though various other developments are given high priority but free & stable villages with proper development are essential for a free & stable society throughout the country and must receive first attention in comparison to the others.

Significance of the importance of rural development is assured by the fact that no country will be able to develop completely, until & unless they consider the development of their rural areas equally important with the development of industries.

11. Failure or Causes of Failure of Community Development Programme:-

It had been observed that the community development programme was a complete failure; study on the c.d.p indicates the fact that despite of the some minor contributions, the whole programs failed to involve the people and to obtain the people participation within the community projects; necessarily due to which results were of marginalized nature.

The findings of a nationwide survey conducted by the national institute of community development, Hyderabad in 1966 arrive at various kinds of people opinions for the aims and goals of community development project which indicates the fact that the people completely misunderstood the purposes of the c.d. programme; which makes it a complete failure. Conclusions of the survey are as follows-

Most of the people think that the target of c.d. programme was to increase the agricultural production; and the next important goal was the social welfare, which included a wide range of facilities like roads, schools, health centres, proper sanitation and drinking water and street lights etc.; not the overall development of the ruralites.
Most people thought that social welfare and embracing matters like schools, roads, drinking water, street lighting, health and employment was the main concern of the panchayats; and there was verylittlerecognitionoftheroleofthepanchayatsindecentralizingpoweranddevelopinggrassrootsdemo cracy.

It is evident that people saw the c.d. programme as a task oriented programme in opposition to the process oriented programme; although people were involved by their contribution of labour but they were never real participants. So the main causes of failure along with the ones we shown above-

Uneven distribution of the benefits of the programme.
Absence of clearly defined priorities within the programme.
Failed to evoke the people’s proper attention & response.
Unqualified personnel; without proper education & training.
Lack of the functional responsibilities.
It has remained a government oriented & administered programme without the people’s participation.
There was too much emphasis on the end results and less emphasis was on the correcting the methods.
Lack of understanding of the objectives of the c.d. programme.
Lack of proper and adequate supervision & guidance both administratively and technically at different levels.
Lack of uniform understanding of the concept principle methods& functional roles; at different levels from local to national level.
Lack or absence of the factor of democratic leadership at various levels like local, state or national level.

Summary:-

So, now according to above explanatory text of the module we can summarized the fact that-

C.d. programme mainly came in existence around1952 with some other pilot projects before it.
C.d.p aimed to the transformation of the socio-economic life of the villagers through a process of integral cultural change and to the increase in agricultural production with various other services.
C.d.p includes development of various fields along with the alleviation of the rural economic and social perspectives.
C.d.p fails mainly due to lack of people participation along with various other valid reasons like lack of understanding of the concepts, facilities, and benefits &lack of proper supervision.

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