People’s Plan Campaign 2023-24

सबक योजना सबका िवकास

Preparation of
Panchayat Development Plan
2024-25
 Table of Content

Content Page no.

Chapter-1: Introduction 1-11
1.1 Background 1
1.2 What is People’s Plan Campaign (PPC)/ Objectives of PPC 2023-24 2
1.3 Roles and Responsibilities of different stakeholders of PPC 3
1.4 Timeline of People’s Plan Campaign (PPC) 5
1.5 Reporting and Monitoring the Progress of Campaign activities 7
Chapter 2: Process for preparation of Gram Panchayat Development Plan 12-16
(GPDP)
2.3 The steps to be followed for preparation in GPDP 12
2.3.1 Formation of Gram Panchayat Planning Facilitating Team (GPPFT) 12
2.3.2 Environment creation and Community mobilization 13
2.3.3 Focus Areas in Planning 13
2.3.4 Data Collection–Situation Analysis 13
2.3.5 Development Status Report (DSR) 14
2.3.6 Visioning Exercise 14
2.3.7 Prioritization of Needs 14
2.3.8 Resources Envelope 14
2.3.9 Organizing Special Gram Sabha 14
2.3.10 Preparation of Draft GPDP 14
2.3.11 Final GPDP 15
2.3.12 Uploading Plan on e-Gram Swaraj portal 15
Chapter 3: PRI - SHG Convergence and PVRP for GPDP 17-19
3.1 Background 17
3.2 Actions for convergence of PRIs and CBOs 17
3.3 Village Prosperity Resilience Plan and its integration into GPDP 17
3.4 Objectives of VPRP 18
3.5 Components of VPRP 18
3.6 Process of preparation of VPRP and integration in GPDP 19
Chapter 4 : Gram Sabha for Preparation of GPDP 20-22
4.1 Schedule of Gram Sabha 20
4.2 Gram Sabha Agenda 20
4.3 Steps to be followed for Successful Gram Sabha 21
Chapter 5: Preparation of Block and District Panchayat Development Plan 23-27
5.1 Introduction 23
5.2 Preparation of Block Panchayat Development Plans (BPDP) 24
5.3 Preparation of District Panchayat Development Plan (DPDP) 25
Chapter 6: Capacity Building & Training 28-30
6.1 Introduction 28
6.2 Leadership Role 28
6.3 PRIs as drivers of economic growth 28
6.4 Complexity of CB&T 28
6.5 Challenge of CB&T 29
6.6 Scheme for CB&T (RGSA) 29
6.7 Capacity Building of stakeholders 29
6.8 Training Module for PPC 29
6.9 Capacity Building for VPRP-GPDP integration 30
6.10 Ministry’s Initiatives for CB&T 30
6.11 Exceptions from States/UTs 30
Chapter 7: Localization of Sustainable Development Goals and Integration 31-33
into Panchayat Development Plans
7.1 Introduction 31
7.2 Why Localization of Sustainable Development Goals Important? 31
7.3 Thematic Approaches to Localization of SDGs 31
7.4 Localization of SDG and Panchayat Development Plan (PDP) 32
7.5 Convergence 33
 Chapter 1: Introduction
1.1 Background

1.1.1 Article 243G of the Constitution of India acknowledges Panchayats as institutions of local
self-government and mandates them to prepare plans for economic development and social
justice. As local government, Gram Panchayats (GPs) are responsible for delivery of basic
services to local citizens and address vulnerabilities of poor and marginalized ones. This can only
be achieved through implementation of well thought out plans through efficient and responsible
utilization of available resources.

1.1.2 An efficient and robust planning process as part of GP’s core functioning becomes
necessary. GP development plan should ideally match peoples’ needs and priorities with
available resources. It should be prepared through a fair, inclusive, transparent and participatory
process. The focus should be on local development issues, local perception of need and priority,
local analysis of problems and solutions, local resources management all within a collective local
vision.

1.1.3 Gram Panchayat Development Plans (GPDP) to be prepared for effective implementation
of flagship schemes/ programmes on subjects of National importance. The formulation process
of Panchayat Development Plans (PDP) must be comprehensive and based on participatory
process, which inter alia involves the full convergence of the schemes of Central and State
Governments related to 29 subjects listed in the Eleventh Schedule of the Constitution. Similarly,
Intermediate/Block and District Panchayats are responsible for preparing Block Panchayat
Development Plan (BPDP) and District Panchayat Development Plan (DPDP) at the respective
levels.

1.1.4 The PRIs are mandated for delivery of critical public services including water supply,
sanitation, internal roads, drainage, street lighting, health, education and nutrition etc. up to the
level of Gram Panchayats/ villages. 29 subjects listed in eleventh schedule of the Constitution
are quite relevant for achieving Sustainable Development Goals (SDGs). Hence, role of PRIs
became more important for achievements of SDGs through localization.

1.1.5 It was felt need to take forward the SDGs up to last mile i.e. up to Gram Panchayat level
leveraging wide network and strong institutional mechanism of third tier of Government
including Traditional Bodies of non-part IX areas. Accordingly, Ministry has adopted thematic
approach aggregating 17 Sustainable Development Goals into 9 broad themes to Localize
Sustainable Development Goals (LSDGs) at grassroots level through Panchayats adopting
‘Whole of Government and Whole of Society approach’ and the PDPs will be prepared adopting
thematic approach to achieve localization for SDGs in rural India.

1.1.6 The SHG network across the country is mandated as per the guidelines and advisories
issued by Ministry of Panchayati Raj and the Ministry of Rural Development since 2018 to
prepare the Village Prosperity Resilience Plan (VPRP) through a participatory approach. The

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VPRP components contain elements under the 29 subjects of the Eleventh Schedule, hence
contribute towards the holistic development of the villages.

1.2 What is People’s Plan Campaign (PPC)

1.2.1 The People’s Plan Campaign (PPC) is an effective strategy for ensuring the preparation
of participatory Panchayat Development Plans in a campaign mode with voluntary involvement
of community, elected representatives, frontline workers of respective line Ministries/
Departments, SHGs, CBOs and other related stakeholders. PPC 2023-24 rolled out as ‘Sabki
Yojana Sabka Vikas’ from 4th September, 2023 and will be up to 31stJanuary 2024. During
the campaign, structured Gram Sabha/Ward Sabha/Mahila Sabha/Bal Sabha /Block
Sabha/District Sabha meetings will be held for preparing the GPDP, BPDP and DPDP for the
next financial year i.e. 2024-25. This year PPC rolled out around one month in advance to provide
adequate time to States/UTs, Districts, Blocks and PRIs to provide ample time for suitable
environment creation for preparation of thematic convergent plan at respective level of
Panchayats and getting information from line departments in respect of schemes/ programmes
being implemented by them.

1.2.2 Objectives of PPC 2023

⮚ Preparation of participatory, comprehensive, and convergent GPDP, BPDP and DPDP in

the Gram Panchayats, Intermediate Panchayats and District Panchayats respectively in a
time bound manner across the Country.
⮚ Evidence Based Assessment of Progress made during previous years and consideration of
proposals for 2024-25 in all 29 subjects of Eleventh Schedule of Constitution and covering
9 themes of Localization of Sustainable Development Goals (LSDGs) at the Panchayats.
⮚ Organize Structured Gram Sabha meetings during 4th September, 2023 to 31stJanuary
2024with active participation and presentations by Frontline Workers/Supervisors of all
related Line Ministries.
⮚ Gram Sabha meetings should be preceded by meetings of 'Bal Sabha" and 'Mahila Sabha'
apart from 'Ward Sabha' and the preparation of VPRP- these would facilitate enumeration
and articulation of demands of children and women in addition to community at large.
⮚ Achieving effective Localization of SDGs through seamless integration of 9 thematic
approaches of LSDGs into GPDP.
⮚ Effective integration of Village Prosperity Resilience Plans (VPRPs) prepared by SHG
federations into GPDP.
⮚ Promoting Gender Responsive Governance at the rural areas through effective involvement
of Elected Women Representatives (EWRs), Self-Help Groups (SHGs) and women
members in the community in the planning process.
⮚ Undertake Public Information Campaign with public disclosure on Schemes, Finances, etc.
of all schemes & programmes in Gram Panchayat Office and on Public Information Board.

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 29 Subjects defined in Eleventh Schedule

1. Agriculture. 2. Poverty all eviation programme.

3. Land Improvement. 4. Education.
5. Minor Irrigation. 6. Vocational education
7. Animal Husbandry. 8. Adult and non-formal education
9. Fisheries. 10. Libraries.
11. Social Forestry. 12. Cultural activities.
13. Minor Forest Produce. 14. Markets and fairs.
15. Small scale industries. 16. Health and sanitation.
17. Khadi, village and cottage industries 18. Family welfare.
19. Rural Housing 20. Women and child development.
21. Drinking Water 22. Social welfare.
23. Fuel and fodder 24. Welfare of the weaker sections.
25. Roads 26. Public distribution system.
27. Rural Electrification 28. Maintenance of community assets
29. Non-conventional energy

1.3 Roles and Responsibilities of different stakeholders of PPC

The PPC is a joint effort for preparation of comprehensive, inclusive and participatory PDP,
facilitated by Ministry of Panchayati Raj, related Central Ministries, State Panchayati Raj
departments along with the officers, facilitators and frontline workers of line departments in the
State/UTs. The roles and responsibilities of different stakeholders are as under:

1.3.1 Central Ministry: The Ministry of Panchayati Raj (MoPR) will be the focal point for
launching and monitoring the PPC at the Central level. It will be responsible for the following:
(i) Corresponding with all States/UTs for effective rollout and monitoring of the campaign.
(ii) Corresponding and liaisoning with Central Line Ministries to issue necessary directions to
their counterparts in States/UTs to facilitate effective participation of field staff of their
schemes in the whole GPDP process with all the relevant information like resource
envelope and other benefits available under their schemes.
(iii) Preparation and launch of PPC dashboard along with portal for preparation of GPDP,
BPDP and DPDP.
(iv) Pre-populating relevant data on monitoring platforms e.g. dashboards and portals.
(v) Facilitating appointment of Nodal officers (State, District & Block Level), facilitators etc.
through GPDP portal.
(vi) Preparation of thematic training modules and organize training workshops for nodal
officers and other stakeholders.

1.3.2 State Departments: The PPC will be coordinated by Department of Panchayati Raj
(DoPR) at the State level. The DoPR will be responsible for the implementation of following
activities in a time bound manner:
(i) Setting-up of an empowered committee.
(ii) Framing of detailed guidelines at the State level.
(iii) Creating an enabling environment at the State level.

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 (iv) Setting of support systems for resource envelope and fund flow, coordination
arrangements at district & block level, personnel management, technology support, etc.
(v) Administrative and technical approvals
(vi) Implementation arrangement.
(vii) Monitor the functioning of the State/ District and Block Control Rooms that were set-up
for preparation of BPDPs and DPDPs.
(viii) Accountability systems.

1.3.3 Nodal Officers: The appointment of the Nodal officers will be done at three different
levels where the first level of appointment will be done at the State level. The Department of
Panchayati Raj (DoPR) will appoint the State Nodal Officer (SNO). The second level of Nodal
Officer will be at the District level and thereby followed-up with the appointment of the Nodal
Officer at the Block level. The Nodal officers will be responsible for undertaking the following
activities:
(i) The nodal officers will ensure coordination and monitoring the entire process.
(ii) Ensure convergence inter departmental coordination at all levels.
(iii) Provide support to Gram Panchayat Planning and Facilitation Team (GPPFT)
(iv) Support to Intermediate and District Panchayat Planning Committee and Sectoral Working
Groups (SWG)
(v) Reporting and monitoring before, during and after the campaign.

1.3.4 Facilitators: A facilitator for each Gram Panchayat/Block Panchayat/District Panchayat

will be appointed by the State/UT. The role of a facilitator is very crucial in the preparation of the
Development Plan as they need to work together with communities at the Panchayat level and also
work with all line Ministries simultaneously. States/UTs may consider Community Resource
Persons (CRPs) or SHG federation representatives who have been involved in preparing the VPRP
, trained Social Auditors or other appropriate person including officials, previous Elected
Representatives etc. for nomination as facilitators. The focus should be on personal attributes, such
as people who are involved with community or who are already trained earlier to carry out the
tasks of a facilitator. After selection of facilitators they should be made aware of their roles and
detailed responsibilities. As a part of preparation towards GPDP, facilitators will be required to
undertake following activities on priority basis:
(i) Coordinate with the frontline staff of participating Departments.
(ii) Facilitate the special Gram Sabha for GPDP on the designated day.
(iii) Ensure community mobilization including vulnerable sections like SC/ST/Women/
Minorities/Disabled during the Gram Sabha.
(iv) Community Based Organizations (CBOs) such as SHG/Youth Groups/ Mahila Mandals
and other may be supported to ensure their presence in Gram Sabha.
(v) Submit a report regarding conduct of the Gram Sabha at Gram Panchayat/ Block
Panchayat/ District Panchayat (A template on Facilitators Report is provided as Annexure-
I)
(vi) Supporting the Gram Sabha in preparation of GPDP.
(vii) Support in integration of VPRP into GPDP.
(viii) Uploading of approved GPDP on e-Gram Swaraj portal.

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1.3.5 Frontline Workers: Frontline workers appointed by of all departments play an important
role in ensuring convergence of activities of different schemes in GPDPs. Joint letter of 8
Ministries/Departments (Annexure-II) have been issued to ensure participation of frontline
workers / officers in both the Gram Sabhas organized during PPC for preparation of GPDP
and disseminate features of their schemes, resources, etc. and facilitate incorporating activities
of their Departmental Village Action Plan into GPDP. Following are the responsibilities of
Frontline workers require to undertake during PPC:
(i) Provide status of the proposed activities and fund disbursed in previous FY, the data in
corporate in Detailed Status Report.
(ii) Present a brief structured presentation having details of schemes, activities, resources,
beneficiaries of the department in GS.
(iii) To provide details of activities/works along with details of beneficiaries and resources
spent during current year. The proposed activities/works will be taken up in GPs in
forthcoming year i.e. 2024-25 to be also apprised along with details of beneficiaries and
resources to be spent, so that the same could be incorporated in GPDP of 2024-25.
(iv) The front line workers will read draft GPDP in detail and provide feedback and
suggestions in Development Seminar organized by GP.

(Attached as Annexure-III, the Model Presentation by frontline workers/line departments)

1.4 Timeline of People’s Plan Campaign (PPC)

1.4.1 Central Level: The Ministry of Panchayati Raj to take-up following activities as per
timeline:
S. Activities Timelines
N.
1. Letters from Ministry to all the States /UTs on initiating the process 3rd Week of
of PPC, which includes: August2023
(a) Request for appointment of Nodal officers (State, District &
Block level).
(b) Request for appointment of facilitators for every Gram
Panchayat.
(c) Request for training of stakeholders including facilitators in
cascade mode.
(d) Request for Finalization of schedule of Gram Sabha meetings.
(e) Uploading of Gram Sabha wise calendar on PPC dashboard.
(f) Request for display of Public Information Boards in every GP.
2. Corresponding with Central Line Ministries to issue necessary Last week of
directions to their counterparts in States/UTs to facilitate effective August, 2023
participation and convergence.
3. Activation of all monitoring plat forms like GPDP portal etc. 1st week of
September, 2023
4. State-wise /regional workshops on preparation of GPDP/BPDP/ 15th October – 15th
DPDP for social transformation and economic development. November, 2023

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1.4.2 State level: The PPC will be coordinated by Department of Panchayati Raj (DoPR) at the
State level. The DoPR to take-up following activities as per timeline:

S. Activities Timeline
N.
1. Activation of monitoring platform/portals of PPC:2023-24 8th September, 2023
2. Appointment of Nodal officers (State/District/Block level) 13th September, 2023
3. Appointment of facilitators for every Gram Panchayat 18th September, 2023
4. Introductory workshop/ Orientation and training of nodal 22nd September, 2023
officers and facilitators
5. Finalisation of Schedule of Gram Sabha meetings 25th September, 2023
6. Uploading Gram Sabha wise Calendar on PPC portal 27th September, 2023
7. Display of Public Information Board in every Gram 30th September, 2023
Panchayat
.8 Issuance of deployment order for Gram Sabha meetings Last week of September,
2023
9. -Discussion on preparation of thematic GPDP for FY 2024 2nd October 2023
Sabha by GPs in Special Gram 25
10. Uploading of geo-tagged visuals of Gram Sabha meetings 2nd week of October, 2023
for 1st GS and 2nd Week of
January, 204 for 2nd GS
11. PR department to write to the line departments to share 5th-10th October, 2023
information of major flagship schemes of Central & State
Government
12. Block level workshops of line departments for data/ 25th October to 25th
information sharing in respect of major flagship schemes November, 2023
of Central & State Governments
13. Uploading of Gram Panchayat Development Plan By 31st January 2024
(GPDP) 2024-25
14. Uploading of Block Panchayat Development Plan By 29th February 2024
(BPDP) 2024-25
15. Uploading of District Panchayat Development Plan By 31st March 2024
(DPDP) 2024-25

1.4.3 Gram Panchayat level activities for preparation of GPDP

(i) Gram Panchayat-wise Calendar for holding of Gram Sabhas for the preparation of GPDP
to befinalized at District/State level.
(ii) The calendar prepared during the Campaign timeline from 4th September, 2023 to 31st
January 2024 to be uploaded on the e-Gram Swaraj Portal of the Ministry of Panchayati
Raj.
(iii) The preparation of the GPDP calendar entails presence of the frontline workers of line
departments related to 29 subjects listed in the Eleventh Schedule of the Constitution.
(iv) It is important that frontline workers should attend the Gram Sabha, it is advised that not
more than two Gram Sabha meetings can be scheduled in a day.
(v) The States may schedule more than one Gram Sabha meeting at the block level on the same
date provided presence of frontline workers from line departments in all Gram Sabha
meetings.

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 (vi) Subsequently, another meeting of the Gram Sabha may also be required to be scheduled
within the campaign period for approval of the final GPDP, before the same is uploaded
on eGram Swaraj Portal.
(vii) In case of Gram Panchayats in areas under Fifth Schedule, the Special Gram Sabha would
be conducted as per the provisions of PESA acts of respective States.

Snapshot of People’s Plan Campaign: Activities

● Appointment of Facilitator for every Gram Panchayat/ Rural Local Body

● Finalization of Gram Sabha Wise Calendar for organizing Gram Sabhas
● Appointing Frontline Workers of all Departments related to 29 subjects to be deputed for
structured presentation in Gram Sabha Meetings on the designated days.
● Organizing 2 Special Gram Sabhas for GPDP.
● Display of Public Information Board in every Gram Panchayat and uploading of geo-tagged
photograph so fit on the PPC Campaign Portal.
● Uploading of Geo-tagged photograph(s) of Gram Sabha meetings in progress.
● Preparation of VPRP for integration into GPDP and Gram Sabha for approval of integrated
GPDP
● Preparation of GPDP and Publishing of Approved Plan on e-GramSwaraj Portal.

1.5 Reporting and Monitoring the Progress of Campaign activities

1.5.1 Success of a nation-wide Campaign depends on effective communication, monitoring and

mentoring system. To ensure effective sharing of information from all sides, Ministry has launched
a portal/dashboard ([Link]) to monitor the progress of the campaign. In order to assess
various activities before, during and after the campaign, the States need to provide updated
information in various reporting formats on the portal. The following procedure to be adopted for
creation of nodal officers at different level:

(i) States/UT to appoint Nodal Officers (NO) for the campaign. Username and password to
operate the portal at the State Level by respective NOs will be generated by MoPR at the
Central level.
(ii) For the District, Block and GP Facilitator level, the username and password will be
generated at their next upper level Nodal Officers.
(iii) Similarly, username and password to state level nodal officers of respective line
Departments will be provided.
(iv) The State Level Nodal Officers of line departments will be responsible for appointing and
uploading the names of frontline workers who will be deputed for Gram Sabha meetings
on designated days.

1.5.2 The following existing committees may assist during the process and monitor the progress:

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 (i) The State Level Steering Committee Constituted for LSDGs will also work as mentor for
preparation PDP at respective level aligned with identified themes of LSDGs.
(ii) State Panchayati Raj departments with the assistance of officers, facilitators and frontline
workers of line departments in the State/UTs will anchor the entire PPC campaign for
preparation of PDP.
(iii) The ‘State Level Nodal Officer Monitoring Committee’ (SLNOMC) created for
Incentivisation of Panchayats consisting of following officials will also work as act as State
Level Monitoring Committee for overall mentoring, handholding, training and monitoring
of Quality Panchayat Development Plan (PDP) process at different level:

S. Theme Director/Joint Director/Deputy Director

N. of concerned Departments
1. Poverty Free and Enhanced Livelihoods Rural Development and Panchayat Raj
Village
2. Healthy Village Health & Family Welfare Department
3. Child-Friendly Village School Education Department
4. Water Sufficient Village Public Health Engineering /Drinking
Water & Sanitation
5. Clean and Green Village Public Health Engineering /Drinking
Water & Sanitation
6. Village with Self- Sufficient Infrastructure Rural Development and Panchayat Raj
7. Socially Just and Socially Secured Village Social Welfare Department
8. Village with Good Governance Panchayat Raj
9. Women Friendly Village Women & Child Development

(iv) District Level Monitoring Committee created for Incentivisation of Panchayats consisting
of following officials will also work as act as District Level Monitoring Committee for
overall mentoring, handholding, training and monitoring of preparation of Quality
Panchayat Development Plan (PDP):

Sl. Theme/ Line Departments for Chairperson Members

No. Thematic concerned PDP
Committee
1. Poverty free i. D/o Rural District  District level Officer handling
and Development & Collector/ NRLM
enhanced Panchayati Raj CEO Zilla  District level Officer handling
livelihoods ii. D/o Agriculture and Parishad MGNREGS
Village Farmers Welfare  District Panchayat Officer/ District
Level Officer as Member Convenor
2. Healthy i. D/o Health & District  Chief Medical Officer/District
Village Family Welfare Collector/ Health Officer/
ii. D/o Ayush/ CEO Zilla  District Level Officer from D/o
Ayurveda Parishad Women & Child Development
iii. D/o Rural  Officer from D/o Ayush/Ayurveda
Development &  Faculty (Health & Training Institute)
Panchayati Raj  District Panchayat Officer/ District
iv. D/o Women & Level Officer as Member Convenor
Child Development

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Sl. Theme/ Line Departments for Chairperson Members
No. Thematic concerned PDP
Committee
3. Child- i. D/o Health & District  Deputy Director/District Level
Friendly Family Welfare Collector/ Officer (D/o Elementary Education)
Village ii. D/o School CEO Zilla  District Level Officer dealing with
Education Parishad Reproductive and Child Health
iii. D/o Rural  District Panchayat Officer/District
Development & Level Officer as Member Convenor
Panchayati Raj
4. Water i. D/o Public Health District  District Level Officer nominated
Sufficient Engineering Collector/ from Public Health Engineering
Village /Drinking Water & CEO Zilla /Drinking Water & Sanitation
Sanitation Parishad  District Level Officer nominated
ii. D/o Rural from Rural Development
Development Department
iii. D/o Rural  District Panchayat Officer/District
Development & Level Officer as Member Convenor
Panchayati Raj
5. Clean and i. Public Health District  District Level Officer nominated
Green Engineering Collector/ from Public Health Engineering
Village /Drinking Water & CEO Zilla /Drinking Water & Sanitation
Sanitation Parishad  District Level Officer dealing with
ii. D/o New and renewable energy
Renewable Energy  District Level Officer from Rural
iii. D/o Rural Development Department dealing
Development & with SBM-G
Panchayati Raj  District Panchayat Officer/ District
Level Officer as Member Convenor
6. Village with i. D/o Rural District  District Level Officer from NIC
Self- Development & Collector/  District Level Officer dealing with
Sufficient Panchayati Raj CEO Zilla BharatNET
Infrastructur ii. D/o Electronics & Parishad  District Panchayat Officer/District
e Information Level Officer as Member Convenor
Technology/NIC
iii. D/o
Telecommunications
7. Socially i. D/o Social Welfare District  District Level Officer from Rural
Just and ii. D/o Rural Collector/ Development Department dealing
Socially Development & CEO Zilla with National Social Assistance
Secured Panchayati Raj Parishad Programme (NSAP)
Village  District Level Officer from D/o
Social Welfare
 District Panchayat Officer/ District
Level Officer as Member Convenor
8. Village with i. D/o Rural District  District Level Officer from
Good Development & Collector/ Panchayati Raj dealing with e-
Governance Panchayati Raj CEO GramSwaraj
ii. D/o Electronics & ZillaParishad  District level officer from NIC
Information  District Panchayat Officer/District
Technology/NIC Level Officer as Member Convenor
9. Women i. D/o Health & District  Chief Medical Officer
Friendly Family Welfare Collector/  District level Officer from D/o Rural
Village Development Department

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 Sl. Theme/ Line Departments for Chairperson Members
No. Thematic concerned PDP
Committee
ii. D/o School CEO Zilla  District level Officer from D/o
Education & Parishad Ayush/Ayurveda
Literacy  District level Officer from D/o
iii. D/o Ayush/ Elementary Education
Ayurveda  District Level officer dealing with
iv. D/o Rural SRLM
Development &  District Panchayat Officer/District
Panchayati Raj Level Officer as Member Convenor

(v) Block level Monitoring Committee created for Incentivisation of Panchayats consisting of
following officials will also work as act as District Level Monitoring Committee for overall
mentoring, handholding, training and monitoring of preparation of Quality Block Panchayat
Development Plan (BPDP) and Gram Panchayat Development Plan (GPDP):

Sl. Theme/ Line Departments Chairpers Members

No. Thematic for concerned BPDP/ on
Committee GPDP
1. Poverty free i. D/o Rural Block  Block Level Officer handling SRLM
and Development & Developme  Officer handling MGNREGS
enhanced Panchayati Raj nt Officer  Panchayat Level Extension Officer/
livelihoods ii. D/o Agriculture and Equivalent Officer as Member
Village Farmers Welfare Convenor

2. Healthy i. D/o Health & Family Block  Block Medical Officer

Village Welfare Developme  Child Development Programme
ii. D/o Ayush/ Ayurveda nt Officer Officer (CDPO)
iii. D/o Rural  Panchayat Extension Officer/ Officer
Development & holding Equivalent position in Block
Panchayati Raj as Member Convenor
iv. D/o Women & Child
Development
3. Child- i. D/o Health & Family Block  CDPO
Friendly Welfare Developme  Panchayat Extension Officer/ Officer
Village ii. D/o School Education nt Officer holding Equivalent position in Block
iii. D/o Rural as Member Convenor
Development &
Panchayati Raj
4. Water i. D/o Public Health Block  Block level officer/Junior Engineer/
Sufficient Engineering Developme Assistant Engineer
Village /Drinking Water & nt Officer  Panchayat Extension Officer/ Officer
Sanitation holding Equivalent position in Block
ii. D/o Rural as Member Convenor
Development
iii. D/o Rural
Development &
Panchayati Raj
5. Clean and i. Public Health Block  Officer from Block handling SBM-G
Green Engineering Developme  Panchayat Extension Officer/ Officer
Village /Drinking Water & nt Officer holding Equivalent position in Block
Sanitation as Member Convenor

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Sl. Theme/ Line Departments Chairpers Members
No. Thematic for concerned BPDP/ on
Committee GPDP
ii. D/o New and
Renewable Energy
iii. D/o Rural
Development &
Panchayati Raj
6. Village with i. D/o Rural Block  Nominated Officer from NIC
Self- Development & Developme  Panchayat Extension Officer/ Officer
Sufficient Panchayati Raj nt Officer holding Equivalent position in Block
Infrastructur ii. D/o Electronics & as Member Convenor
e Information
Technology/NIC
iii. D/o
Telecommunications
7. Socially Just i. D/o Social Welfare Block  Social Welfare Officer at Block Level
and Socially ii. D/o Rural Developme  Panchayat Extension Officer/ Officer
Secured Development & nt Officer holding Equivalent position in Block
Village Panchayati Raj as Member Convenor
8. Village with i. D/o Rural Block  Nominated member from NIC
Good Development & Developme  Block Level Officer from BBNL
Governance Panchayati Raj nt Officer  Panchayat Level Extension Officer/
ii. D/o Electronics & Officer holding Equivalent position in
Information Block as Member Convenor
Technology/NIC
9. Women i. D/o Health & Family Block  CDPO
Friendly Welfare Developme  Block Education Officer/ Equivalent
Village ii. D/o School Education nt Officer  Block Medical Officer
& Literacy  Panchayat Level Extension Officer/
iii. D/o Ayush/ Ayurveda Officer holding Equivalent position in
iv. D/o Rural Block as Member Convenor
Development &
Panchayati Raj

11
 Chapter 2: Process for preparation of Gram Panchayat
Development Plan (GPDP)
2.1 The GPDP is the development plan of the GP. It is to be prepared through a participatory
process involving all stakeholders matching people’s needs and priorities with available resources.
The GPDP does three essential things:
i) It provides a VISION of what the people would like their village look like
ii) It sets out clear GOALS to achieve that vision, and
iii) Provides an ACTION PLAN to reach those goals.

2.2 The following are the key components of GPDP preparation cycle:

2.3 The steps to be followed for preparation in GPDP:

2.3.1 Formation of Gram Panchayat Planning Facilitating Team (GPPFT): GPDP is an

important initiative that needs continuous people's active participation. Hence, GPPFT created
with pool of dedicated human resource who can voluntarily devote their services remained
involved at every stage of GPDP starting from environment building for plan preparation to the
approval of the plan at the Gram Sabha and implementation of activities. The representatives of
sectoral / line departments at GP level should invariably be the members of this team. The
SHG/VO members may also be included in the GPPFT, so that the proposed activities of SHG/VO
may directly be discussed. Apart from this, the citizens of the GP who are working/living
elsewhere either in the country or outside should also be invited to become members of the
GPPFT. This is aimed at harnessing their knowledge/skills and expertise for sustainable
development of the GP area. The GP may divide the GPPFT members into "Ward Planning
Facilitating Team" (WPFT) with a minimum of 3-5 members headed by the respective GP ward
members to facilitate community-based planning processes of GPDP. WPFT is responsible to
ensure that all members and residents of their particular wards participate in the planning process
12
actively and without any kind of hindrance and hesitation. To ensure that every thematic area
under GPs are covered, the GPPFT members may further form thematic groups based on their
relevant field experience.

2.3.2 Environment creation and Community mobilization: The environment generation

activities are of immense importance to bring about attitudinal changes, outlook and re-orientation
among the community and governance systems regarding their active participation in the decision-
making process towards their socio and economic development. After the awareness-raising
process, the next step is to mobilize the community to take part in the process of identifying their
needs and address them by preparing a Gram Panchayat Plan. This whole process of awareness-
raising and mobilization comes under the umbrella of environment creation/building. The GPPFT
with assistance from women ward members and Self-Help Groups (SHGs) are involved in the
environment building process for GPDP at the GP level. The date and time of the Gram Sabha to
be suitably disseminated among villagers along with leaders of Village Organization.

2.3.3 Focus Areas in Planning: Gram Panchayats are entitled to provide basic services and take
up development works related to the functions devolved to them as per the Eleventh Schedule of
the Constitution of India having 29 subjects, where GPs could work to ensure economic
development and social justice. However, with the renewed focus on the localization of SDGs,
Gram Panchayats should prepare GPDP adopting following 9 thematic approaches:
Theme 1: Poverty Free & Enhanced Livelihood village
Theme 2: Healthy Village
Theme 3: Child Friendly Village
Theme 4: Water Sufficient Village
Theme 5: Clean and Green Village
Theme 6: Village with Self Sufficient Infrastructure
Theme 7: Socially Just and Socially Secured Village
Theme 8: Village with Good Governance
Theme 9: Women Friendly Village

2.3.4 Data Collection–Situation Analysis: The data collected can be put to use to assess and
analyze the current situation of GP and to identify gaps to prepare Plan to address at the grassroots
level. Therefore, both primary data and secondary data should be collected at the grassroots level.
For primary data collection, methods of Participatory Rural Appraisal (PRA), Focus Group
Discussion (FGD), Household Survey and Neighborhood Survey can be used. In the case of
secondary data, information from Mission Antyodaya (MA), Socio-Economic Caste Census
(SECC), Census and data from different line departments can be used. The VPRP prepared by the
SHG federations can also be considered for analysing the situation. The situation analysis serves
as the basis for setting priorities for addressing the issues to further in corporate in the GPDP. The
processes for situation analysis are:
(i) Existing conditions and development status of the GP related to key areas like health,
education, poverty, the situation of vulnerable groups, etc. must be identified.
(ii) Information about the quality of existing services and quality of life must be collected.
(iii) Critical information on deficiencies and gaps in basic services, infrastructure and amenities

13
 including drinking water, sanitation, drainage, road conditions, cleanliness etc. that exists
in the GP must be collected.
2.3.5 Development Status Report (DSR): On completion of situation analysis, the GPPFT is
to prepare draft DSR as per indicative guidelines of GPDP and place before the Gram Sabha to
make people aware about the exact and real time situation of the community in the respective
thematic areas of economic development and social justice.

2.3.6 Visioning Exercise: Gram Sabha is to undertake visioning exercise on the basis of the
findings of the DSR. The visioning exercise is to ensure objectivity in planning and endow people
with a sense of ownership of the planning process. The vision document is to clearly show the
commitment of GP to make its functions more effective and efficient in improving the quantity
and quality of basic services. It should also help to identify priorities in the identified key thematic
areas and set clear milestones to be achieved by the GP during the plan period.

2.3.7 Prioritization of Needs: Based on the DSR the GPPFT is to guide the deliberations in 1st
Gram Sabha and GP meetings to identify the prioritized needs and crucial issues of the people
to fill up the gaps in local development. Prioritization of needs should be done across the various
identified thematic sectors 29 covering all sections of the GP. Special focus may be given to
‘Sankalp’ taken/ themes prioritized by GPs.

2.3.8 Resources Envelope: GP should know the resources on the basis of which it is to prepare
the GPDP. It needs to consider the financial and human resources already available/expected to be
available along with the resources that can be potentially generated. The resource envelop includes
Central / State Finance Commission Grants, funds under Central/ State Government Schemes,
OSR etc. The funds spent by the higher tiers like District Panchayat and Intermediate Panchayat
in GP should be part of resource of GP/VCs/ADCs. The planned activities need to be matched with
the resources.

2.3.9 Organizing Special Gram Sabha: A special Gram Sabha to be organized after the
collection of primary and secondary data, and other activities as mentioned above. The frontline
workers of each department will give a brief presentation on the activities under taken, funds
utilized for the current year and proposed activities, funds allocated, beneficiaries covered etc. for
the next financial year and a statement of the same needs to be submitted to the GP. Facilitators
appointed shall ensure community mobilization including representation from vulnerable sections
such as SCs/STs/ Women during the Gram Sabha. Village Prosperity Resilience Plans prepared
by Village Organization (VO) can be incorporated in the GP after presentation and deliberations
in the Gram Sabha.

2.3.10 Preparation of Draft GPDP: Draft plan shall be prepared indicating the works identified
in each focus area along with cost estimation/fund allocation, timelines for completion of works.
A development seminar will be organized to discuss the draft in detail to provide feedback and
suggestions. These suggestions will be incorporated in the draft GPDP. A special meeting of the
GP shall be convened to discuss and finalize the changes before submitting the final Draft GPDP.
States are free to customize formats suiting their needs. VPRP prepared by the SHG may also be

14
discussed considering the availability of the budget within the resource envelope of the Gram
Panchayat. Based on the consensus, demands of VPRP may be incorporated into GPDP. The list
of activities under VPRP has been made available in the portal.
2.3.11 Final GPDP: In the presence of officials from all line departments and community
including Panchayat President, Secretary and GP members, the final GPDP including VPRP
activities in the form of a brief Presentation of GPDP document with project-wise details and
discussion on the prepared plan is to be placed before the Gram Sabha by GP and GPPFT members.
This draft goes for approval as per the State guidelines. A model schedule for conducting Gram
Sabha meeting is at Annexure-IV.

During the process, the minutes of the meeting are to be recorded properly, which may include
apart from other proceedings;
(i) Number of Attendees of the meeting
(ii) Agenda
(iii) issues raised
(iv) items / activities discussed and agreed
(v) items / activities discussed and not agreed etc.

2.3.12 Uploading Plan on e-Gram Swaraj portal: The plans prepared through above mentioned
procedure to be uploaded on revamped GPDP portal of e-Gram SWARAJ (eGS) application with
the complete profile of the Gram Panchayat, including Sarpanch & Panchayat Secretary details,
Demographic details, Panchayat finances, asset details, thematic activities to be taken up etc. Hard
copy of the plan may be kept in the office of Gram Panchayat for public disclosure. VPRP activities
has also been made part of the GPDP activity drop down under relevant themes in the eGS portal.
Accordingly, VPRP activities, which has been approved by Gram Sabha may also be included in
portal like other activities. The asset creation activities may be published on Public Information
Board at the beginning of the implementation year. A sample of Public Information Board is
provided as Annexure-V.

Snapshot of the basic requirements for preparation of GPDP

● Thematic GPDP to be prepared with special focus on ‘Sankalp’ taken/ themes prioritized by
GPs.
● GPs may take same theme as a Sankalp/ prioritize same theme for preparation of GPDP
2024-25 with the resolution of Gram Sabha, which was taken for preparation of GPDP 2023-
24.
● GP may also take new Sankalp/ prioritize new theme for preparation of GPDP 2024-25 with
the resolution of Gram Sabha.
● The ‘Sankalp’/ themes prioritization to be carried out on the portal
([Link] and resolution of Gram Sabha also to be uploaded on the same
portal.
● Orientation by MoPR team in States/UTs and uploading feedback on on eGramSwaraj
portal.
● Orientation at State/ District/ Block level on PPC/GPDP team and the information to be
uploaded on eGramSwaraj portal.

15
● Updation of Gram Panchayat Profile. It has been observed that profile is not being updated
properly. The profile to be updated carefully, which is one of the data base of GP not only
for Ministry but also State/ Districts and Blocks etc.
● All flagship schemes, which are being implemented in a GP by other departments to be made
part of GPDP.
● VPRP to be integrated in GPDP. VPRP activities mapped in different themes and included
in drop down in the portal.
● GPs to allocate minimum 25% of untied (FFC/SFC/OSR) resources on the themes on which
the panchayat has taken Sankalp as approved by Gram Sabha.
● At least 25% of the activities of the theme in which GP has taken Sankalp taken to be chosen
from the list of activities of particular theme to be worked on by the GP.

16
 Chapter-3: PRI and SHG convergence and VPRP for GPDP
3.1 Background: The primary objective of GPDP is to develop an integrated plan by the GP
for economic and social development of the local community. It should ideally match people’s
need and priority with available resources. Ensuring active participation of local community is
one of the pre-requisite for understanding the local need, its prioritisation in line with available
resources. SHGs and their federation, as institutions of the poor have a key role in the planning
and implementation of interventions for economic development and social justice. The
responsibilities of the SHG network listed in the NRLM framework include participating actively
in Gram Sabhas and other forums of GPs, providing feedback through community based
monitoring, and supporting GPs in their development initiatives and planning exercises by
preparing Village Prosperity Resilience Plan (VPRP) and its integration in GPDP.

3.2 Actions for Convergence of PRIs and CBOs: In due appreciation of need for
convergence of GP and SHG, following actions may be taken for comprehensive development of
GP are:

1. Inclusion of SHG federation representatives and CRPs in the GPDP planning team/
GPPFT.
2. Creating a co-terminus body where GPs and SHG federations can come together on regular
basis (preferably on a fixed date) for planning, implementing, and monitoring the GPDP
works.
3. Use the SHGs and their federations to strengthen Gram Sabha through informed
participation after prior discussions within SHGs on needs and priorities.
4. SHGs and their federations should actively participate in the GPDP planning process,
specifically in matters related to poverty reduction. Their services may be utilized for
following activities:
a. Preparation of Village Prosperity Resilience Plan (VPRP)
b. Participation in the Mahila Sabhas and Ward Sabhas preceding Gram Sabha
c. Local campaigns for health, education, sanitation etc.; and against social evils like
alcohol and substance abuse, manual scavenging, child marriage child labour and
trafficking of women etc.

5. An institutionalized framework for GP–SHGs interface may be developed and made

operational. This could be through joint meetings on fixed dates, or by instituting
convergence platforms like Tamil Nadu Village Poverty Reduction Committees (VPRC)
or the CDS Evaluation Committees of Kerala. The provision of representation of SHG in
functional committees of the GPs, in task forces /working groups for GPDP and also in
departmental committees such as Village Health Sanitation and Nutrition Committee
(VHSNC), School Management Committee (SMC), Hospital Committee etc. may be
institutionalized as part of the GPDP process. Records of meetings and action taken reports
of these committees may be shared with the SHGs/federations.

3.3 Village Prosperity Resilience Plan and its integration into GPDP

As per the joint advisories issued by the Ministry of Rural Development (MoRD) and the
Ministry of Panchayati Raj (MoPR) in 2018, the SHG network promoted in the villages under
DAY-NRLM have been mandated to prepare their demands and plans in the form of Village
Prosperity Resilience Plans (VPRP) and present the same in Gram Sabhas. The plans are prepared
by the SHG members in the concerned SHGs and are consolidated at Village level SHG

17
federations. The final VPRP compiled at the Gram Panchayat level will be presented and
submitted to GP during Grama Sabha meetings for integration into GPDP. VPRP can also help
the Gram Panchayats in fulfilling their responsibility as entrusted in Schedule XI of the Indian
constitution in implementing programmes for poverty alleviation and for the welfare of women.
The plans are prepared ensuring the demands of the weaker sections of the society even outside
the SHG network through a transparent and participatory process.

3.4 Objective of VPRP: The VPRP is expected to fulfill the following objectives.

1. Engage the women collectives in the local planning process of the village
2. Preparation of an inclusive demand plan of the SHGs to be included in the GPDP.
3. Enhance the interface of the SHG network with the Gram panchayat institutions for poverty
alleviation.
4. Represent the demands of the poorest of the poor in the village through VPRP.

3.5 Components of VPRP: The Village Prosperity Resilience Plan is a comprehensive

demand plan that seeks to target the multi-dimensional factors of poverty. It is, therefore,
categorized under four components that are listed below:

a) Entitlement plan - The entitlement plan captures the individual demands of the SHG
members (and other vulnerable groups in the village) for basic needs and social security
that they are entitled to receive from the central or state government, in the form of
centrally sponsored and state sponsored schemes- such as demands for MGNREGS Job
card, house under PMAY-G, social security pensions under National Social Assistance
Programme, individual household latrines under Swachh Bharat Mission- Gramin, Health
card under Pradhan Mantri Jan Arogya Yojana, the household gas connection under
UJJWALA scheme, etc.

b) Livelihood plan - The livelihood plan captures the demands of the SHG members for
livelihood activities such as farm-based, other farm-based, animal husbandry, non-farm,
and Non-Timber Forest Produce (NTFP). A comprehensive Village Livelihoods Planning
process is used to prepare household level detailed crop wise and activity wise plan for
which the support may be required from GPs and line departments. The plan captures these
different support requirements under different schemes available with the relevant
departments. This also includes the plans of MGNREGS individual asset creation for
livelihoods strengthening.

c) Public Goods and Services, Resource Development plan (PGSRD) - This plan captures
the gaps in the availability and quality of major public goods and institutions like
streetlights, roads, Panchayat office, Anganwadi centre, absence of teachers in schools etc.
It also captures the need for developing the existing natural resources in the village such
as water harvesting structures, land development, building embankments, forest fencing
etc. This includes the demands by the VOs for the community assets for livelihoods
promotion under the permissible activities of MGNREGS

d) Social Development Plan (SDP)- Social development plans are proposals that address
certain social issues specific to the community - related to health, education, social
exclusion, gender issues, environmental-related problems, etc. These plans emerge after
intense discussions amongst the members of the Village Organizations to identify the
issues and the measures to resolve them. It also captures the specific support that can be
sought from the local self-governing institutions and line departments to help the SHG
18
 federations in addressing the problem. The Social Development plans can fall under the
umbrella of ‘Low Cost/ No cost’ demands in GPDP. In certain cases, higher cost items can
also be included, e.g., in Kerala, GPs have given higher budget amounts to meet the
operational costs to run GP level Gender Resource Centres (GRC), infrastructure costs for
establishing and running gym and yoga clubs for improving health and fitness of the
community members, for destitute rehabilitation and women work centres. In Assam, few
GPs have given stationary for the adult literacy classes.

3.6 Process of preparation of VPRP and integration in GPDP

a) Plan preparation: Village Prosperity Resilience plans are prepared through a

participatory exercise involving all the SHGs and their federations. As the plans are
prepared using an application, this will allow for reports to be generated on all the four
components of the VPRP. Elected representatives shall be invited as special invitees to
ensure the process and provide feedback for the same.

b) GP level consolidation and finalisation of VPRP: All four component plans of all VOs
that are existing in the concerned GP will be consolidated and prioritised at GP level by
all VOs with support of the app. First priority will be given to the demands of the ultra-
poor and most vulnerable during the prioritisation and finalisation process. This will help
the VOs to support the GPs in selecting the right beneficiaries for schemes which have
limited funds. Elected representatives shall be invited as special invitees to ensure the
process and provide feedback for the same.

c) Presentation and submission of VPRP in Gram Sabha: The finalized VPRP shall be
presented by SHG federations before Gram Sabha. A discussion can be initiated on the
demands and the availability of the budget within the resource envelope of different
schemes such as FFC, Own source revenue, MGNREGS and funds with line departments.
The CBO shall also share what demands can be met from the own resources available with
the SHG federations. Based on the consensus, a resolution may be passed by Gram Sabha
on agreed demands of VPRP that can be incorporated into GPDP.

d) Visibility of VPRP demands in e-Gram Swaraj portal: The final GPDP will be uploaded
in the eGramSwaraj portal as per the government mandate which makes the information
accessible to common citizens including approved VPRP demands. The VPRP activities
or demands have been mapped with the relevant themes of LSDG in the eGS portal. This
allows GPs to select the approved VPRP demands as per Gram Sabha approval. Thus, an
exhaustive list of VPRP demands will be available on the eGS portal from which the GPs
can select the approved VPRP demands during the Gram Sabha and allocate the funds
accordingly.

19
 Chapter 4: Gram Sabha for Preparation of GPDP
“The Greater the power of the Panchayats, The better for the People”
- Mahatma Gandhi

Gram Sabha is the fulcrum of the Panchayati Raj; a forum for people’s participation in local
governance. It provides an opportunity to the people to get involved in the planning process for
the development of their locality and make the administration more accountable and transparent.
It is the responsibility of elected representatives, functionaries, and community members to see
that the Gram Sabha functions as per the rules and expectations.

4.1 Schedule of Gram Sabha: During the Campaign period, 2 Special Gram Sabhas are
required to be held. The first Gram Sabha should be organized for carrying out the visioning
exercise and prioritization of needs based on the gaps identified in the DSR. The frontline workers
are required to give a brief structured presentation regarding the activities of all line Departments.
In the 2nd Gram Sabha, the draft GPDP, which is inclusive of different sub plans such as VPRP
and Departmental Village Action Plan shall be placed before the Gram Sabha for approval.

Integration of inputs from Ward Sabha, Mahila Sabha and Bal Sabha

To involve all people in the process of decision-making in Gram Sabha, separate Gram Sabha for
women, children and elderly may be conducted prior to main regular Gram Sabha meetings to
ensure better mainstreaming of their issues into the GPDP. To ensure effective environment
building to achieve the objectives and goals of GPDP, appropriate Information, Education and
Communication (IEC)materials and activities should be initiated by the respective GPs. A
successful GPDP depends on the effectiveness of the IEC leading to active people's participation
of all stakeholders in the Ward Sabha, Mahila Sabha and Bal Sabha as well as Gram Sabha.
Integration of the inputs from the Ward Sabha, Mahila Sabha and Bal Sabha along with sub-Gram
Sabha level meetings may be promoted to develop a comprehensive plan. Good practices that
provides for people’s assemblies below the Gram Sabha such as Ward Sabha, Mahila Sabha and
Bal Sabha should be promoted. An advisory on Mahila Sabha and Bal Sabha has already been
issued and is available at Annexure-VI.

4.2 Gram Sabha Agenda: Though the Gram Sabha is free to discuss any issue related to the
Gram Panchayat, there are some agenda which have to be discussed necessarily. These agenda are
as follows:
● The annual statement of accounts of the Gram Panchayat.
● The report of the preceding financial year. Last audit note and replies, if any, by the Gram
Panchayat.
● The budget of the Gram Panchayat for the next financial year.
● The report in respect of development programmes of the Gram Panchayat relating to the
preceding year.
● Development programmes proposed to be undertaken during the current year considering
the grant allocation by 15th Finance Commission and other resources available/expected
at GP level.

20
 ● Reports of the Vigilance Committee.
● The recommendations of the Village Organisation through VPRP.
● The recommendations of the Ward Sabha/Mahila Sabha and Bal Sabha.
● The Gram Sabha can discuss those proposals also which it thinks is important enough for a
Ward although the Ward Sabha has not included it in its agenda.
● Utilization of funds for the plans & programmes.

4.3 Steps to be followed for Successful Gram Sabha: In order to ensure effective participation
in the Gram Sabha all members should be formally and compulsorily in formed in time. Wide
dissemination through use of all available channels including social media should be ensured for
greater community participation. A template of the calendar of the Gram Sabha Planning is
provided as Annexure-VII.

4.3.1 Formal Notification: Before organizing the Gram Sabha, it is important to issue notice as
per the existing norms of the state. Wide publicity must be ensured. The notice of the Gram Sabha
can also be publicized by beating of drums and pasting of the notice at the Panchayat Bhavan,
Schools, offices of VO and CLF and local marketplace.
● All voters must receive the notice of the Gram Sabha at least a week before the scheduled
date.
● The notice should necessarily mention the date, time, venue and agenda of the Gram Sabha.
● The agenda of the Gram Sabha should be written in clear and simple languages that people
can understand it easily.

4.3.2 Ensuring Participation of people from all sections: While preparing village
development plans, focus should be given for the upliftment of people belonging to Scheduled
Castes, Scheduled Tribes, Backward classes and other weaker sections. Their better participation
in the Gram Sabha to be ensured and to provide opportunity for them to freely express their felt
needs and grievances. In order to ensure their better participation, the information regarding the
conduct of gram Sabha should be extensively propagated in areas inhabited by Scheduled Castes,
Scheduled Tribes and other Weaker Sections. If their grievances are redressed before the next
Gram Sabha meeting, their faith on Gram Sabha will increase and they show more interest for
attending Gram Sabha meetings regularly.

4.3.3 Participation of Women and Children through Mahila Sabha and Bal Sabha:
Women’s participation in Gram Sabhas may, potentially, augment the efficacy of Panchayats. It
is another matter that women rarely participate in Gram Sabhas impeded, largely, by social
customs and traditions. In order to give voice to women at the level of grassroots’ democracy, the
Ministry of Panchayati Raj has urged state governments to convene separate Mahila Sabhas or
female assemblies for the female electorate in the Panchayat. The objective is to include women’s
issues in Gram Sabha resolutions especially those issues affecting the women. In organizing the
Mahila Sabhas and in putting forward problems pertaining to women the women self-help groups
in State may be involved to interaction issues for raising educational standards, addressing water
and sanitation problems-areas which were generally not discussed by men. In organizing Mahila
Sabhas, the venue of the meeting is also an important determinant for attendance related decisions
with women are likely to face restrictions or may be in convenience while moving to certain areas
within the village. The Mahila Sabha meetings are to be held at different places depending on
21
availability and other considerations. The representatives of SHG federations to be encouraged to
participate in Gram Sabha in large numbers. The SHG federation has its reach across the Gram
Panchayat and through them participation of women in Gram Sabha can be strengthened.

For making children’s voice to be counted in Gram Panchayat decision making, Ministry of
Panchayati Raj is advising state Governments on organizing Bal Sabhas in Gram Panchayat to
raise children’s issues and concerns. It may be noted that child participation is an important tenet
of the Convention on the Rights of the Child (CRC). Institutionalizing Bal Sabhas to keep the
voices of children from the remotest areas, at the centre of our national planning process is one of
the most effective ways of honoring the commitments that the country has made for children.

4.3.5 Quorum for the Gram Sabha: The quorum for the meeting of the Gram Sabha needs to
be maintained as per the relevant Panchayati Raj Acts of the State. If the first meeting is postponed
for want of quorum the meeting shall adjourn to another date and the procedure shall be as per the
provisions of State Panchayati Raj Act. However, the aim should be to have an attendance of at
least 10% of Gram Sabha to make it a truly meaningful and participative exercise. Further, it may
also be considered the representation of at least one member from each household in the Gram
Sabha as being practiced by some GPs.

22
 Chapter 5: Preparation of Block and District Panchayat
Development Plan
5.1 Introduction: The Constitutional provision is intended to empower all three tiers of
Panchayats by enabling the State Governments to devolve powers and authority including those
matters listed in the Eleventh Schedule for planning for economic Development and Social Justice
and implementation of schemes in their area. This will also include the powers to impose taxes
and provisions of funds to the Panchayats. On the recommendation of the Fifteenth Finance
Commission (XV FC), Government of India has decided to provide grants also to Intermediary
Panchayats (IPs) or Block Panchayats and District Panchayats (DPs) from 2020-21. A Framework
for preparation of BPDP and DPDP prepared by MoPR and circulated among the States/UTs.
Many States have issued guidelines/directions to IPs and DPs for preparation of their Plans. The
processes, structure and system vary widely for preparation of BPDP and DPDP. Further, revised
guidelines along with SoP has also been prepared by the Ministry on formulation of BPDP and
DPDP.

Fifteenth Finance Commission (XV FC)–Implications for GPDP, BPDP and DPDP

XV FC has allocated Rs.2,36,805 crore for Rural Local Bodies (RLBs) to all the tiers of
Panchayats and also to the traditional bodies of Vth &VIth Schedule areas for the period of
2021-22 to 2025-26 of which 40% of the recommended grant will be Untied grants and the
remaining 60% as tied grants except 2021-22, wherein the ratio tied and untied grant was 50:50.
a) Untied grants (40% of total grants) can be used for felt needs under the 29 subjects
enshrined in the XI schedule, except for salaries and other establishment costs. The
expenditure required for auditing of accounts by external agencies approved by State Govt.
may be borne from this grant.
b) Out of Tied Grants (60% of total grants), 30% of the total grants to be utilized for drinking
water, rainwater harvesting and water recycling and the remaining 30 % of the grants to be
utilized for sanitation and maintenance of ODF status. However, if any local body has fully
saturated one category, it can utilize the funds for other category. The respective Village
Assembly/ Gram Sabha to certify this duly confirmed by the supervising authority or the
State Governments.
The allocation amongst the tiers will be in the bands of:
● Gram Panchayats – 70-85%
● Block Panchayats (BP) – 10%-25% and
● District Panchayats (DP) – 5%-15%, total adding upto 100% on the basis of
recommendations of SFC.
In 2 tier States, the bands are 70%-85% and 15%-30% for GPs/ DPs respectively. For traditional
areas / excluded areas, the allocations will be on the criteria of 90:10 for population: area. The
intra-tier distribution should be on the basis of population: area at 90:10 or as per accepted
recommendation of SFC.

23
5.2 Preparation of Block Panchayat Development Plans (BPDP):

5.2.1 BPDP to be prepared through a participatory inclusive and transparent process with
modified bottom up approach. BPDP may arrive at development needs by consolidating gaps
ascertained in GPDPs through Mission Antyodaya data. The BPDP process envisages need based
planning, supplementing GPDPs. Further, it would also strive to contribute to national
commitments e.g. SDGs and national priorities. The plan activities of the line departments
operating at the Intermediate Panchayat level should be integrated into the BPDP, although the
same may be implemented by the line departments themselves. The process, structure and format
of a BPDP may be largely the same as followed for GPDP, which is as under:
(i) After GPDPs are prepared and approved at GP level, the same are to be forwarded by the
GPs to the Intermediate Panchayat.
(ii) Those projects and activities, which are to be implemented in more than one GP area and
which should be implemented at the Intermediate Panchayat level because of its higher
institutional capacity and technical competence, are to be considered by the Intermediate
Panchayat for BPDP.
(iii) The BPDP will be approved by Block Sabha consisting of all Block/Intermediate
Panchayat members, District Panchayat members in the Block Panchayat area, GP
Presidents/Sarpanches of all the Gram Panchayats from the concerned block shall be
convened and this meeting has to be considered as Block Sabha.
(iv) Apart from elected representatives, block level line department officials, leader of SHG
federations, experts, professionals, doctors, etc. should also be nominated as members of
Block Sabha.
(v) There may be total 50-80 persons including aforesaid ones nominated as member of Block
Sabha by President of Intermediate Panchayat.
(vi) The meeting of Block Sabha will be presided by President of the Intermediate Panchayat
and Block Panchayat Officer / Block Development Officer may be nominated as Convener
of Block Sabha.
(vii) The financial matter would be sanctioned by competent authority as authorized by State
Government in Intermediate Panchayat.

5.2.2 Steps for preparing Block Panchayat Development Plan:

(i) Formation of Intermediate-Planning Planning Committee (IPPC) for every Intermediate

Panchayat for shared understanding and facilitation of the entire planning process orienting
and activating them to take up and carry forward the entire process of Block Panchayat
Development Plan.
(ii) Environment creation and community mobilization.
(iii) Collection of primary and secondary data.
(iv) Situation analysis, need assessment and gap identification.
(v) Visioning exercise for goal setting.
(vi) Resources and identification / estimation of corresponding activities – Special Block
Sabha.
(vii) Plan development, prioritization and projectisation.
(viii) Approval of BPDP and uploading on eGram Swaraj Portal.
24
(ix) Implementation, monitoring and impact analysis.

5.2.3 Focus Areas of Planning at Block/Intermediate Panchayat level: Block/Intermediate

Panchayats are also supposed to provide basic services and take up development works related to
the functions devolved to them as per the Eleventh Schedule of the Constitution of India having
29 subjects, where GPs could work to ensure economic development and social justice. However,
with the renewed focus on the localization of SDGs, Block/Intermediate Panchayat should also
focus on 9 thematic approaches while preparing plans in local level.

5.2.4 Tentative Timeline for Block Panchayat Development Plan

Sl. Activities / Steps Time Schedule

No.
1. Initiation of Planning Process at Block Sabha Meetings In month of
November, 2023
2. Sector wise data collection, compilation & situational analysis By December,
2023
3. Sector wise prioritization & fund allocation to the Sectoral Working By January, 2024
Group
4. Sector wise draft Plan & Budget preparation and placement of Draft By 10th February,
BPDP & Budget of Intermediate Panchayat in the meetings of 2024
Intermediate Panchayat Planning Committee/ Standing Committee
5. Placement of Draft Plan & Budget of Intermediate Panchayat in a By 15th February,
Special Block Sabha 2024
th
6. Placement of Draft Plan & Budget of Intermediate Panchayat in the By 25 February,
Block Sabha Meeting for approval 2024
7. Uploading Plan on eGS Portal By 29th February,
2024

5.3 Preparation of District Panchayat Development Plan (DPDP)

5.3.1 As local government, the District Panchayats are also responsible for ensuring delivery of
basic services to local citizens and addressing vulnerabilities of poor and marginalized sections of
the population. This can be achieved only through implementation of need focused plans through
efficient and responsible utilization of available resources and expanding the resources to cater to
their priorities. Further, it has to be ensured that there should not be duplication of its works with
those undertaken /to be undertaken by the Gram Panchayat, Intermediate Panchayat and line
departments. The preparation of the District Panchayat Development Plan for rural area is a time-
bound process. It is an essential part of chain of plans to be prepared in cascading mode. It should
be prepared after completion of GPDPs by the Gram Panchayat and Block Panchayat Development
Plan by the Intermediate Panchayat in their respective area. It should provide building blocks to
Draft District Panchayat Development Plan to be prepared by the District Planning Committee for
district as a whole.

5.3.2 Process of preparation of District Panchayat Development Plan (DPDP)

District Panchayat Development Plan should ideally match with people’s needs, basic services and

25
their aspirations, prioritized in accordance with the available resources. It should be prepared
through a participatory inclusive and transparent process with modified bottom up approach. The
District Panchayat Development Plan process envisages need based planning, supplementing
GPDPs and BPDPs. Further, it would also strive to contribute to national commitments e.g. SDGs
and priorities. The plan activities of the line departments operating at the District level should be
integrated into the District Panchayat Development Plan, although the same may be implemented
by the line departments themselves. The process, structure and format of a DPDP may be largely
the same as followed at GP level for GPDP and Intermediate Panchayat (IP) level for BPDP, which
is as under:
(i) After GPDPs and BPDPs in the area of the district are prepared and approved at GP and IP
levels, the GPDPs and BPDPs are to be forwarded by the GPs and IPs respectively to the
District Panchayat.
(ii) Those projects and activities, which are to be implemented in more than one GP area but
cannot be accommodated in the BPDP and also those projects and activities, which are to
be implemented in more than one block area but cannot be included in the BPDP for want
of technical competencies or lack of resources, are to be considered by the District
Panchayat for inclusion in the DPDP.
(iii) Besides, the District Panchayat Development Plan would include those activities which the
District Panchayat need to implement following the principles of subsidiarity.
(iv) The District Panchayat Development Plan would be approved by District Sabha consisting
of all District Panchayat members, Block Panchayat Presidents and Vice Presidents,
Presidents/Sarpanches of at least five Gram Panchayats from the concerned District, shall
be convened and this meeting has to be considered as District Sabha.
(v) Apart from elected representatives, District level officers of line department, academicians,
doctors, NGOs, representatives of women collectives/ SHG federations should also be
nominated as members of District Sabha.

5.3.3 Steps for preparing District Panchayat Development Plan

(i) Formation of District Panchayat Development Planning Committee (DPDPC) for every
District for shared understanding and facilitation of the entire planning process orienting
and activating them to take up and carry forward the entire process of DPDP for rural area.
(ii) Environment creation and community mobilization.
(iii) Collection of primary and secondary data.
(iv) Situation analysis, need assessment and gap identification.
(v) Development Status Report.
(vi) Visioning exercise for goal setting.
(vii) Resources and identification/estimation of corresponding activities – Special District
Sabha.
(viii) Plan development, prioritization and projectisation.
(ix) Approval of DPDP and uploading on eGramSwaraj Portal.
(x) Implementation, monitoring and impact analysis.

5.3.4 Focus areas of Planning at District Panchayat level

26
In Section 5.2.3 “Focus Areas of Planning at Block Panchayat Level” has been elaborated. These
areas are also the focus area for the District level. However, at District level larger projects may
be undertaken. As decentralized planning travels from Gram Panchayat to District Panchayat the
activities for economic development would come into prominence. Further, most of agencies
implementing Central and state Government schemes are available in district headquarter, where
District Panchayat is also situated; therefore, convergence and collective action and support for
medium and small-scale industries would come to central stage of the development planning.

5.3.5 Tentative Timeline for District Panchayat Development Plan (DPDP)

Sl. Activities / Steps Time Schedule

No.
1. Initiation of Planning Process at District Sabha Meetings In month of
December, 2023
2. Sector wise data collection, compilation & situational analysis By January, 2024
3. Sector wise prioritization & fund allocation to the Sectoral Working By February, 2024
Group
4. Sector wise draft Plan & Budget preparation and placement of Draft By 10th March,
DPDP & Budget of District Panchayat in the meetings of District 2024
Panchayat Planning Committee/ Standing Committee
5. Placement of Draft Plan & Budget of District Panchayat in a Special By 15th March,
District Sabha 2024
6. Placement of Draft Plan & Budget of Intermediate Panchayat in the By 25th March,
District Sabha Meeting for approval 2024
7 Uploading Plan on eGS Portal By 31st March,
2024

27
 Chapter 6: Capacity Building & Training
6.1 Introduction: The Government of India has envisioned multipronged strategies to address
the core issues of rural poverty, inequality, poor human development indices and unemployment.
Recent years have seen a significant increase in public expenditure through Panchayats. The
Government of India provides financial support to PRIs through Central Finance Commission
(CFC) awards, Centrally Sponsored and Central Sector Schemes. States additionally devolve funds
through State Finance Commissions (SFC) and provide financial support under the scheme. Such
a huge devolution of funds from Central & State Governments has created an enormous
opportunity for responsive local governance at the cutting edge institutional level of the Panchayats
through large fiscal transfers. The significant rise in available resources with the Panchayats needs
to be matched with improved service delivery and tangible impact at the local level. Hence,
Capacity Building & Training (CB&T) of Elected Representatives, functionaries, facilitators and
other relevant stakeholders of PRIs is a pre-requisite for better planning, implementation,
monitoring and improved service delivery.

6.2 Leadership Role: An able leadership of the constitutionally mandated Panchayat is critical
to address good governance at the local level, and to attain the 2030 agenda of Sustainable
Development Goals (SDGs) adopting 9 thematic approach of Localisation of Sustainable
Development Goals (LSDGs). It is, therefore, important to build the capacity of Panchayats and
related institutions. In particular, Gram Sabha processes have to be supported for the sake of
transparency, accountability, and efficient delivery of services. The renewed focus is to view
Panchayats as strong units of local self –governance and growth engines rather than just as
implementing agencies through capacitating ERs to assume leadership roles and equipping PRIs
as drivers of economic growth and nodes of spatial development.

6.3 PRIs as drivers of Economic Growth: In order to equip PRIs to develop as drivers of
economic growth and nodes of spatial development, it is necessary to envision CB&T with a fresh
‘eco-system’ approach wherein all stakeholders come together to facilitate and support PRIs to
attain holistic, inclusive and sustainable development. Hence, there is need to equip ERs through
adequate CB&T, who are elected as fresh entrants every five years and all other stakeholders at
different levels of PRIs to enable them to realise the aforesaid vision. In view of the above Ministry
has now been shifting its focus towards capacitating the elected representatives of PRIs for
Leadership Roles to develop effective third tier of Government to enable them to deliver on the
SDGs adopting thematic approach of LSDGs.

6.4 Complexity of CB&T: CB&T of various stakeholders of Panchayats is a complex task, as

it involves large number as well as a wide range of stakeholders. The challenge is to reach out to
this diverse group while ensuring high quality and context specific CB&T. Moreover, as
Panchayats are local governments, the subjects to be covered is also large, ranging from local self-
governance, Panchayat Finance including Public Finance Management System (PFMS), Own
Source Revenue (OSR), e-GramSwaraj, Audit online, Devolution of powers to Panchayats,
Localisation of Sustainable Development Goals (SDGs) especially on 9 themes, Rural Area

28
Development Plan Formulation and Implementation (RADPFI), Carbon Neutrality, Contract
Management or any other training for state specific need.
6.5 Challenge of CB&T: Challenge of CB&T has further increased, in the context of
increasing grants being devolved to Panchayati Raj Institutions (PRIs) by the Finance Commission
(CFC/SFC), preparation of quality Panchayat Development Plan {Gram Panchayat Development
Plan (GPDP)/ Block Panchayat Development Plan (BPDP)/ District Panchayat Development Plan
(DPDP)} at respective level and achievement of SDGs through concerted and collaborative efforts
of Central Ministries and State line departments with ‘whole of Government’ approach at all levels.

6.6 Scheme for CB&T (RGSA): The scheme of Revamped RGSA has been formulated with
the aims to strengthen capacities of institutions for rural local governance to become more
responsive towards local development needs, prepare participatory plans leveraging technology
and efficiently utilize available resources for realizing sustainable solutions to local problems
linked to SDGs adopting 9 thematic approach of LSDGs. The focus of the scheme is on re-
imagining Panchayati Raj Institutions as vibrant centres of local self-governance and economic
growth with special focus on localization of Sustainable Development Goals (SDGs) at grassroots
level adopting thematic approach.

6.7 Capacity Building of stakeholders:

6.7.1 Very often the key stakeholders of CB&T in Panchayats are understood as elected
representatives and support functionaries. However, wide varieties of institutions and human
resources are also involved in CB&T at the National, State, District and Sub district levels in basic
functions of governance, including planning and implementation of development programs. In
case of Block and District development planning the participation of elected representatives,
Panchayat officials, Planning committee members, Sectoral Working Group members, SHG
federation leaders, line department officials, community leaders, civil society organizations and all
relevant agencies is essential. The CB&T should address all these actors and agencies.

6.7.2 The State Government through the respective nodal training institution(s) should build the
capacity all these stakeholders in multiple thematic areas. In the process of preparation of GPDP,
it is vital to ensure the participation and inputs of all relevant stakeholders in a meaningful way
before finalizing the Development Plan with their inputs.

6.7.3 The Elected Representatives and Community Based Organizations (CBOs) such as SHG
federations may be equipped to work in partnership in the Gram Panchayat for the overall
development. As SHG federations play an integral role in the development process, this partnership
will deepen democracy, broaden and activate participation in planning process.

6.8 Training Module for PPC

6.9.1 All the States have to develop an appropriate strategy and action plan for CB&T, for an
effective preparation of GPDP, BPDP and DPDP. The National Institute of Rural Development
and Panchayati Raj (NIRD&PR) should take lead and develop customised Training Modules for
each different Stakeholders in coordination with SIRDs of concerned States. Issues of Planning,

29
good governance, Localization of SDGs, focus areas and issues related to National Importance
should be part of these Modules.

6.9.2 The focus should be on capacitating the Elected Representative, PRI functionaries and
stakeholders to use the “Panchayat Decision Support System (PDSS)”, Planning & Reporting
Dashboards as well as the Gap reports to assess and address the development in critical areas.

6.9.3 In view of Localization of SDGs, State level Master Trainers and key stakeholders must be
given training through customised Training Modules prepared on 9 themes and its implication and
integration mechanism into PDP.

6.9 Capacity Building for VPRP-GPDP integration: To facilitate seamless integration of

VPRP into GPDP, the following interventions are suggested:
(i) SLMTs shall be oriented on PRI CBO convergence, preparation of theme based GPDP,
VPRP-GPDP integration for further training of DLMTs and BLMTs.
(ii) Functionaries and pool of trainers in the SRLMs may also be trained on GPDP concept and
process by DAY-NRLM. Standardised Training modules have been developed for SLMTs
and SRLM functionaries.
(iii) The joint training of Elected representatives, Panchayat functionaries and SHG federation
representatives at Block level on PRI - CBO Convergence and integration of VPRP with
GPDP, shall be conducted by DLMTs/BLMTs and SRLM staff jointly under RGSA and
NRLM/SRLM funds.

6.10 Ministry’s Initiatives for CB&T:

(i) Thematic State Level Mater Trainers (SLMTs) training is being imparted by NIRD&PR
utilizing revised training materials/modules prepared for each themes of LSDGs
(ii) State/UTs Annual Action Plans for 2023-24 have been approved with the focus on training
to prepare thematic GPDP/BPDP/DPDP.

6.11 Exceptions from States/UTs

(i) State to customize training modules developed for the trainings of ERs, Functionaries and
other Stakeholder towards thematic approach of LSDGs.
(ii) Thematic State Level Mater Trainers (SLMTs) trained by NIRD&PR are expected to
provide trainings to the District Level Mater Trainers (DLMTs) and Block Level Mater
Trainers (BLMTs) in cascade mode.
(iii) Expedite the CB&T approved under Revamped RGSA specifically in respect of trainings
of GPDP/BPDP/DPDP including VPRP integration.
(iv) Effective convergence of Training material, infrastructure, IEC materials etc. of other line
departments for better planning process.
(v) Joint trainings of ER, Functionaries, Line Departments, SHG federation leaders and Other
stakeholder for better convergence in planning process.

30
 Chapter 7: Localization of Sustainable Development Goals and
Integration into Panchayat Development Plans
7.1 Introduction

The 2030 Agenda for Sustainable Development, including the 17 Sustainable Development Goals
(SDGs), are global objectives that succeeded the Millennium Development Goals. The 17 SDGs
with 169 global targets and 231 distinct global indicators have been identified by the United
Nations for monitoring the progress of SDGs. In India, for 169 adopted National targets, 306
indicators were identified as per National Indicator Framework to provide appropriate direction to
the policy makers at the National level.

Sustainable Development Goals

7.2 Why Localization of Sustainable Development Goals Important?

India with the second largest population in the world, has a considerable responsibility to global
SDG achievement. Given the federal structure of governance, States and local governments are
crucial to country’s progress, as they are best placed to put people’s aspirations and need at the
forefront. Local governments also play a pivotal role in implementing programmes and schemes
of National Importance. With its emphasis on poverty reduction, food security, health for all,
quality education, gender equality, access to water and sanitation, employment SDGs necessarily
remain connected to the issues and goals of rural development. Considering the significance, the
achievement of the Sustainable Development Goals 2030 Agenda in the villages depends on
progress made in localizing SDGs in PRIs. Localization of SDGs assumes an important role to
reach the goals to the rural areas to ensure no one left behind and no village is left behind.

7.3 Thematic Approaches to Localization of SDGs

Panchayats have been Constitutionally mandated to prepare plans for economic development and
social justice within the broad areas of 29 subjects mentioned in the XI schedule of the
Constitution. In view of achieving SDGs and to make it more local and comprehensible, for the
Gram Panchayats and Elected Representatives to work on, the SDGs that are universal & a
31
blueprint for progress, Ministry of Panchayati Raj based on the recommendations from Expert
Committee has taken a thematic approach that are connected to 17 SDGs. Total Nine (9) themes
have been taken due to these being easy to relate to and for the local elected representatives (ERs)
and the community. The mapping of themes with SDGs, nodal Ministries/Departments and key
department of the State Government is as under:

Theme Theme SDGs Nodal Ministry Key Ministries/

No. mapped Departments
1. Poverty Free and 1,2,3, 4, 5, 6, Rural Agriculture & Farmers
Enhanced 7, 8, 10, 11, Development welfare, Animal
livelihood Village 13 and 15 Husbandry, Fisheries, Skill
Development
2. Healthy Village 2 and 3 Health & Family AYUSH, Women & Child
welfare Development, Drinking
Water and Sanitation
3. Child-Friendly 1,2,3,4 and 5 Women & Child School Education &
Village Development Literacy, Health & Family
welfare, Drinking Water
and Sanitation
4. Water Sufficient 6 and 15 Water Resources, Drinking Water and
Village River Sanitation, Agriculture &
Development & Farmers welfare, Land
Ganga Resources
Rejuvenation
5. Clean and Green 6, 7, 12, 13, Drinking Water & Environment, Forest &
Village 14 and 15 Sanitation Climate Change, New &
Renewable Energy,
Agriculture & Farmers
welfare
6. Village with Self- 1,2,3,4,5,6,9 Rural Rural Development,
sufficient and 11 Development / Electronics & Information
Infrastructure Panchayati Raj Technology and
Telecommunication
7. Socially Just and 1,2,5,10 and Social Justice and Rural Development, Food
Socially Secured 16 Empowerment & Public Distribution,
Villages Tribal Affairs
8. Village with Good 16 Panchayati Raj Electronics & Information
Governance Technology,
Telecommunication,
9. Women Friendly 1,2,3,4,5 and Women & Child Health & Family welfare,
Village 8 Development Rural Development, Skill
Development

7.4 Localization of SDG and Panchayat Development Plan (PDP): Ministry of Panchayati
Raj has been providing support to States and UTs to develop State/UT specific guidelines for
preparation of PDP converging all the resources in setting local development agenda and finding
local solutions to development issues. In realizing Localization of SDGs in rural areas, the PDP is
to be reflective of the thematic goals and targets in a manner in which the local planning and
execution of actions can contribute to the Panchayat in achieving the thematic goals and thus the
32
objectives of SDGs by 2030.
(i) Preparation of PDP should be based on thematic framework of LSDGs.
(ii) MA survey should cover the survey data required for the value of the indicator. Data
required must come from Departments and Gram Panchayats own data.
(iii) Convergent Action should ensure that the various inputs from the schemes of Departments
feed into the preparation of PDP for the indicators/targets.
(iv) Standing Committee of the Panchayats need to be strengthened and capacitated on their
roles & responsibilities for preparation of theme based PDP.
(v) Mapping of Standing Committee with themes of LSDGs would detail various activities to
be taken up in the Panchayats for ensuring comprehensive PDP. (Annexure-VIII)
(vi) Discussion on PDP with Departments concerned in Standing Committees, Scheme
Committees, to be put in the joint calendar worked out with Departments.

Integration of SDGs into the PDP presents a natural synergy between the two initiatives. Effective
localization of SDGs requires linking budgets to the local plans which in turn requires an approach
that fosters vertical as well as horizontal convergence. The tied and untied funds for Panchayats
have provided adequate financial resources for their holistic development. Through PDP
comprehensive development of rural areas is possible and thereby steadily moving towards the
global agenda of SDGs. The focus in PDP should shift from quantity to quality in planning to
achieve the goals in a phased manner. The capacity building and training of the facilitators on the
GPDP preparation process would need to be fully oriented to the thematic framework and they
should be immersed in the process. The adoption of at least one theme achievement in each GPDP
cycle by each Gram Panchayat should be ensured on a mission mode through People’s Plan
Campaign. SHG federations can support the GPs in preparing GPDPs by preparing VPRP in
alignment with the SDG themes of the concerned GP. Theme-wise resources and Low Cost No
Cost Activities are at Annexure-IX.

7.5 Convergence: To achieve the mission of localizing sustainable development goals,

convergent actions is a significant approach to identify partners, mapping of existing resources,
potential resources, and preparing the broad lines of understanding of roles and responsibilities for
preparation of cohesive PDP.
(i) Flagship Schemes of Ministries/ Departments have stated the role of PRIs (focused on
Gram Panchayat) in existing guidelines, specifically the linkages of the scheme
implementation mechanism with PRIs and into incorporation into PDP.
(ii) Convergence with Standing Committees / Sub-Committees/ Local Committees/ working
groups/SHG federations in the process preparation of PDP require to be strengthened for
holistic & comprehensive planning
(iii) Convergent action with all partners at grassroots levels to be focused to embodying the
whole of society approach evolving micro-plans and monitoring progress thereon.

33
Annexures

34
 Annexure-I
Template on Facilitators Report
S. No Field Details Remarks
1. Number of people present in Gram Sabha
2. Number of Schedule Castes present in Gram Sabha
3. Number of Schedule Tribe present in Gram Sabha
4. Number of SHG members present in Gram Sabha
5. Number of Women present in the Gram Sabha
6. Sankalp of Gram Panchayat
6.1 Mapping of Sankalp to Focus Areas
7. Frontline workers present and made presentation
7.1 Department of Panchayati Raj
7.2 Department of Rural Development
7.3 Department of Agriculture
7.4 Department Health & Family Welfare
7.5 Department of Women & Child Development
7.6 Department of Power
7.7 Department of Chemicals & Petrochemicals
7.8 Department of Animal Husbandry and Dairying
7.9 Department of Revenue
7.10 Department of Drinking Water
7.11 Department of New and Renewable Energy
7.12 Department of Education
7.13 Department of Skill Development
7.14 Department of Social Justice
7.15 Department of Food and Supply
7.16 Department of Health
7.17 Department of Finance
7.18 Irrigation Department
7.19 Department of Fisheries
7.20 Department of Forest
7.21 Department of small scale industries
7.22 Department of Khadi/ village industries
7.23 <State> Electricity Board
7.24 Rural Road Development Corporation
7.25 <State> PWD
8. Presentation & validation of Mission Antyodaya Data
9. Presentation by SHGs on poverty related issues & poverty
reduction plans
10. Discussion on GPDP
10.1 Review of current year activities & fund utilised
10.2 Discussion on resources likely to available to the Gram
Panchayats during 2021- 2022
10.3 Discussion on gaps emerged from Mission Antyodaya
survey and proposed interventions
10.4 Resolution passed & recorded by Gram Sabha on GPDP
11. Geotagged photograph of Gram Sabha in progress
12. Geotagged photograph of Public Information Board
13. Video of Gram Sabha in progress (optional)
35
 Facilitators Report- District/ Block Panchayat
[Link] Field Details Remark
s (if any)
1. Number of people present in District/ Block Panchayat
Meeting
2. Frontline workers present and made presentation
2.1 Department of Panchayati Raj
2.2 Department of Rural Development
2.3 Department of Agriculture
2.4 Department Health & Family Welfare
2.5 Department of Women & Child Development
2.6 Department of Power
2.7 Department of Chemicals & Petrochemicals
2.8 Department of Animal Husbandry and Dairying
2.9 Department of Revenue
2.10 Department of Drinking Water
2.11 Department of New and Renewable Energy
2.12 Department of Education
2.13 Department of Skill Development
2.14 Department of Social Justice
2.15 Department of Food and Supply
2.16 Department of Health
2.17 Department of Finance
2.18 Irrigation Department
2.19 Department of Fisheries
2.20 Department of Forest
2.21 Department of small-scale industries
2.22 Department of Khadi
2.23 <State> Electricity Board
2.24 Rural Road Development Corporation/ PWD
2.25 <State> PWD
3. Discussion on District/ Block Panchayat Development
Plan
3.1 Review of current year activities & fund utilised
3.2 Presentation & Discussion on resources likely to
available to the District/ Block Panchayats during
2021- 2022
3.3 Discussion on gaps as emerged from Mission
Antyodaya survey and proposed interventions
3.4 Resolution passed & recorded in District/ Block Sabha
meeting
4. Geotagged photograph of District/ Block Sabha in
progress
36
 Annexure-II

Joint letter of 8 Ministries/Departments regarding PPC for preparation of GPDP

37
38
39
 Annexure-III
Model Presentation by frontline workers/line departments

40
 Annexure-IV
Model Schedule for Conduct of Special Gram Sabha for GPDP

41
42
 Annexure-V

Illustrative design of Public Information Board

43
 Annexure-VI

Advisory on Mahila Sabha and Bal Sabha

44
45
46
47
48
 Annexure-VII
Template of the calendar of the Gram Sabha Planning

Template of the calendar of the Gram Sabha Planning

State:-
District:-
Block:-
Gram Panchayat:-
Gram Sabha:-
October November December
Sl. week- week- week- week- week- week- week- week- week- week- week- week- week-
Particulars 1 2 3 4 5 6 7 8 9 10 11 12 13
No
Events
1
undertaken
Subjects
Covered(As
2
per XIth
Schedule)
Line
3
Departments
Total
4
Member
Ready to
5 update in
portal

49
 Annexure-VIII
Role of Sub-Committees of GPs with SDGs

50
 Annexure-IX
Theme-wise resources and Low Cost No Cost Activities

Theme Resources available Low Cost No Cost Activities

Theme-1: Poverty ● Mahatma Gandhi National Rural ● Formation of Self-Help Group: In the
Free Village Employment Guarantee Act village level SHG Federation at GP
(MGNREGA) Level
● Deen Dayal Antyodaya Yojana (DAY)
-National Rural Livelihood Mission ● To support SHG movement in
(NRLM) different issues
● Pradhan Mantri Awaas Yojana–
Gramin ● To arrange scheme based training and
● National Social Assistance Programme construction of training space for
(NSAP) trainees & SHG members
● Market Intervention Scheme and Price
Support Scheme (MIS-PSS) ● Promotion of various economic
● Development of Skills (Umbrella activities through: Bank linkages for
Scheme) loan
● Prime Minister Employment ● Entrepreneurship development
Generation Programme (PMEGP) ● Focusing on Ease of doing Business
● Pradhan Mantri Rojgar Protsahan for Trade Registration Certificate
Yojana ● Market linkage for best return of the
● Employment Promotion Scheme produces
● Pradhan Mantri Mudra Yojana
● Pradhan Mantri Jan Dhan Yojana ● Facilitating special economic activity
● Umbrella Programme for Development and their convergence with fund and
of Scheduled Castes and Other functionaries at GP level
Vulnerable Groups
● Special Central Assistance to Tribal
Sub-Scheme (SCA to TSS)
● Assistance to Disabled Persons for
purchase of Fitting Devices (ADIP)
● Umbrella Programme for Development
of Minorities
● Umbrella Programme for Development
of Scheduled Tribes
● Formation and Promotion of 10,000
new Farmer Producer Organizations
(FPOs)
● Income Generating schemes under
Dept. of Agriculture, Horticulture,
Fisheries, Animal Husbandry and Food
Processing
● E-Shram
● Pradhan Mantri Krishi Sampada
Yojana
Theme-2: ● National Health Mission ● Organise Health Camp
Healthy Village ● Intensified Mission Indradhanush ● Promote early identification, early
● National AYUSH Mission diagnosis and timely treatment
● Umbrella ICDS ● Distribution of sapling in the name of
● Pradhan Mantri Matru Vandana Yojana the baby
(PMMVY) ● Campaigning through miking
● Poshan Abhiyan
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 ● National AIDS Control Programme ● Maintain cleanliness in the
● Swachh Bharat Mission (SBM) – Rural community
● National Health Protection Scheme ● Organise Healthy Baby Show
(Ayushman Bharat) ● Identification of the vulnerable
population through social mapping
● Organise Meeting with Frontline
Grassroots level Workers
● Organise social audit on different
aspects of health
● Organise talk show / workshop on
adolescent health
● Wall Writing on preventive measures
Theme-3: Child ● National Health Mission ● Organize Healthy Baby Show / Talk
Friendly ● Poshan Abhiyan Show on nutritional needs of the
Panchayat ● Beti Bachao Beti Padhao children/workshop on adolescent
● Samagra Shiksha mental & health
● 1098 Child Helpline ● Awareness Campaign / Rallies / Wall
● Mid-day-Meal Scheme Writing on child marriage/
● Ayushman Bharat (National Health trafficking/ violence & abuses / legal
Protection Mission) provision for children
● Umbrella Integrated Child ● Track the migratory families to
Development Services (ICDS) Scheme reduce the child labor
● Integrated Child Protection Scheme ● Plantation of Nutri Garden in the
● Khelo India AWCs & Schools
● Fit India Movement ● Organize Bal Sabha
● 15th Finance Commission Grants ● Provide educational support/coaching
● State Finance Commission Grants support to the students of weaker
● MGNREGS sections of the society
● School Health Program
● Scheme for Adolescent Girls (SAG)
● Mission Vatsalaya
● Sukanya Samriddhi Scheme
Theme-4: Water ● Jal Jeevan Mission ● Collect samples of water for testing
Sufficient Village ● National Rural Drinking Water and transfer to the water testing lab
Programme (NRDWP) ● Organise awareness activities on
● Swachh Bharat Mission (Rural) water related issues
● Mission for Protection and ● Identify all sources of drinking water
Empowerment of Women ● Ascertain drinking water adequacy at
● National River Conservation HH
Programme (NRCP) ● Tariff collection from every HH for
● River Basin Management maintenance
● National Ganga Plan and Ghat Works
● National Water Mission
● Interlinking of Rivers
● Flood Management & Border Areas
Programme
● MGNREGS
● PMKSY
● Development of Water Resources
Information System
● Rurban
Theme-5: Clean ● National River Conservation ● Nursery Raising under Gram
and Green Programme (NRCP) Panchayats
Village ● Pradhan Mantri Krishi Sinchayee ● Group Meeting
Yojana(PMKSY)

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 ● National Water Mission ● Collection of Waste From
● Interlinking of Rivers Households
● Mahatma Gandhi National Rural ● Labor Donation for Watershed
Employment Guarantee Scheme Management
(MGNREGS)
● Deen Dayal Upadhayaya Gram Jyoti
Yojana (DDUGJY)
● Swachch Bharat Mission
● National Afforestation Programme
● Integrated Watershed Management
Programme (IWMP)
● National Rural Drinking Water
Program
● Grid Connected Solar Rooftop
Program
● Development of Solar Parks
● PM-KUSUM
● National Biogas and Manure
Management Programme (NBMMP)
● Green India Mission
● 15th Finance Commission Grants
● State Finance Commission Grants
Theme-6: Village ● MGNREGS
with self ● Pradhan Mantri Gram Sadak Yojana
Sufficient (PMGSY)
Infrastructure ● PMAY (Gramin)
● Jal-Jeevan Mission
● Swachh Bharat Mission (Gramin)
● Shyama Prasad Mukherjee Rurban
Mission
● Special Accelerated Road
Development Programme for North
Eastern Region (SARDP-NE)
● National Handloom Development
Programme
● National Rural Livelihood Mission
● Grid Connected Solar Rooftop
Program
● Development of Solar Parks
● Samagra Shiksha
● 15th Finance Commission Grants
● State Finance Commission Grants
● PM-KUSUM
● Own Source Revenue
● Dairy Entrepreneurship Development
Scheme (DEDS)
Theme-7: Socially ● Pradhan Mantri Shram Yogi Maan- ● Proactive disclosure of the
Secured and Dhan (PM-SYM) information for transparency
Socially Just ● National Social Assistance Program ● Awareness Campaign on different
Village (NSAP) social security schemes
● Mahatma Gandhi National Rural ● Organize Gram Sabha for effective
Employment Guarantee Act decentralization of rural governance
(MGNREGA) ● Organize talk show/awareness
● Deendayal Antyodaya Yojana campaign / rallies on rights of the
National Rural Livelihood Mission women & children

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 (DAY-NRLM) ● Provide support to the differently
● Pradhan Mantri Rojgar Protsahan abled person
Yojana ● Formation of SHG & organize
● Employment Promotion Scheme training on entrepreneur skill for
● National Career Services livelihood
● Prime Minister’s Employment
Generation Programme (PMEGP) and
other Credit Support Schemes
● Pradhan Mantri Mudra Yojana
(PMMY)
● North East Region Livelihood Project
● (NERLP)
● Women’s Helpline
● Childline 1098
● Integrated Child Development Scheme
● Samagra Shiksha Abhiyan
● One-Stop Center
● Integrated Child Protection Scheme
● Poshan Abhiyan
● Beti Bachao – Beti Padhao
● Coaching, Guidance and Scholarships
for SC and Other Backward Classes
● Scheme for educational and economic
development of Denotified Nomadic
Tribes
● Umbrella scheme for development of
ST communities
● Umbrella scheme for development of
minority communities
Theme-8: Village ● Rashtriya Gram Swaraj Abhiyan
with Good ● 15th Finance Commission Grants
Governance ● State Finance Commission Grants
● Deen Dayal Antyodaya Yojana (DAY-
NRLM)
● Mahatma Gandhi National Rural
Employment Guarantee
Scheme(MGNREGS)
● Deen Dayal Upadhyaya Grameen
Kaushalya Yojana (DDU-GKY)
● State Poverty Eradication Missions
● National Social Assistance Programme
(NSAP)
● Pradhan Mantri AwasYojana (PMAY)
● Public Distribution System (PDS)
● Rashtriya Swasthya Bima Yojana
(RSBY)
● Swachh Bharat Mission (SBM)
● Jal Jeevan Mission
● Deen Dayal Upadhyaya Gram Jyoti
Yojana
● State sponsored schemes and
programmes on Health, Nutrition,
Agriculture, Animal husbandry,
Horticulture and Livelihoods

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Theme-9: Women • MGNREGS ● Free Health Camp
Friendly Village • Mission Vatsalya ● Bankers Campaign for small credit
• Mission Shakti to SHG
• Kishori Shakti Yojana ● Free distribution of books to the
• Mission Poshan 2.0 students
• National Rural Livelihood Mission ● Organize awareness camp on
• National Health Mission different issues of women and child
• Beti Bachao Beti Padhao development
• Samagra Shiksha ● Awareness camp on legal provision
• Pradhan Mantri Mahila Shakti Kendra for women
(PMMSK) ● Distribute Nutri Mix to the tribal
• Ujjawala, One Stop Centre children
• Nirbhaya ● Campaign for ODF
• 1098, Women Helpline, SWADHAR ● Wall Writing on social message
Greh ● Organise Mahila Sabha
• Pradhan Mantri Matru Vandana Yojana
(PMMVY)
• Umbrella ICDS
• Support to Training and Employment
Programme (STEP)
• National Scheme for Incentive to Girl
Child for Secondary Education
(NSIGSE)
• PRAGATI (Providing Assistance for
Girls’ Advancement in Technical
Education Initiative)
• Integrated Child Protection Scheme

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