Community Development Programme

The Community Development Programme (CDP) was one of the earliest and most significant post-independence initiatives launched by the Government of India to promote rural reconstruction and socio-economic transformation. Introduced on 2 October 1952, the programme aimed at holistic rural development through people’s participation, decentralised planning, and multi-sectoral activities. It laid the foundation for India’s later rural development policies and the Panchayati Raj system.

Historical Background

At the time of India’s independence in 1947, nearly 80% of the population lived in rural areas, dependent largely on agriculture and lacking basic amenities such as education, healthcare, irrigation, and infrastructure. The newly independent government recognised that national progress would be impossible without improving rural livelihoods.
The First Five-Year Plan (1951–56) identified rural development as a national priority. Influenced by earlier rural reconstruction movements led by Mahatma Gandhi and experiments such as Sriniketan (by Rabindranath Tagore), Marthandam (by Spencer Hatch), and Etawah Pilot Project (by Albert Mayer and Horace Holmes), the Government of India formulated the Community Development Programme as an integrated approach to uplift rural communities.
The programme was formally inaugurated on 2 October 1952 (Gandhi Jayanti), symbolising Gandhiji’s ideals of rural self-reliance and community cooperation.

Objectives of the Programme

The Community Development Programme aimed at comprehensive rural development through coordinated efforts in multiple sectors. Its key objectives were:

1. To improve the living standards of the rural population.
2. To promote self-reliance and self-help among villagers through community participation.
3. To increase agricultural productivity and promote modern farming methods.
4. To expand rural infrastructure—including roads, schools, health centres, and water supply.
5. To enhance educational and health facilities in rural areas.
6. To encourage cooperative organisations and democratic decentralisation.
7. To provide employment and social welfare opportunities in villages.

Essentially, the programme envisioned transforming villages into self-sufficient and self-governing units of development.

Organisational Structure

The CDP was designed as a multi-level administrative system, integrating central, state, district, and local governance structures.

1. National Level:
   • The programme was launched under the guidance of the Planning Commission of India.
   • A Central Committee for Community Projects coordinated policy direction and funding.
2. State Level:
   • State governments implemented the programme through the State Development Departments.
   • A State Development Commissioner supervised progress and coordination.
3. District Level:
   • The District Collector served as the coordinating officer for planning and administration.
   • Each district was divided into several Community Development Blocks (CDBs) for operational convenience.
4. Block Level:
   • The Community Development Block was the core unit of implementation, covering approximately 100 villages and about 60,000–70,000 people.
   • Each block was managed by a Block Development Officer (BDO) assisted by extension officers for agriculture, animal husbandry, education, health, and social welfare.
5. Village Level:
   • Village Level Workers (Gram Sevaks) served as the link between administration and the people.
   • Village Panchayats and cooperative societies were encouraged to facilitate local participation.

Phases of Implementation

The programme was launched in three main phases:

1. Pilot Phase (1952–1953):
   • Began with 55 Community Development Projects covering 300 development blocks.
   • Each block was allocated ₹12 lakh over a period of three years.
   • The objective was to test feasibility and develop a working model.
2. Extension Phase (1953–1956):
   • Expanded to 248 blocks, covering a larger rural population.
   • Emphasis was placed on training local personnel and institutional development.
3. Nationwide Phase (1956 onwards):
   • Following the success of initial phases, the programme expanded to cover the entire country.
   • By the end of the Second Five-Year Plan, nearly all districts had community development blocks.

Major Components and Activities

The CDP integrated diverse sectors of rural development, addressing both economic and social aspects:

1. Agriculture:
   • Introduction of improved seeds, fertilisers, and irrigation systems.
   • Soil conservation, crop rotation, and demonstration farms for modern techniques.
2. Rural Industries:
   • Promotion of small-scale and cottage industries such as weaving, pottery, and handicrafts.
3. Irrigation and Infrastructure:
   • Construction of wells, tanks, rural roads, and community centres.
4. Education:
   • Establishment of primary schools and adult literacy centres.
5. Health and Sanitation:
   • Setting up of health sub-centres and campaigns for hygiene, vaccination, and clean water.
6. Social Welfare:
   • Development of cooperatives, youth clubs, and women’s self-help initiatives.
7. Housing and Communication:
   • Rural housing schemes and promotion of community radio and information services.

Funding Pattern

Funding for the CDP came from both central and state governments on a shared basis.

• The Central Government contributed a major portion for initial blocks.
• State Governments financed subsequent expansions.
• Community contributions in the form of labour, materials, or local funds were also encouraged to ensure people’s participation and ownership.

Role of People’s Participation

A key philosophy of the programme was “development by the people, of the people, and for the people.” Villagers were encouraged to identify their own needs, contribute labour (shramdaan), and participate in planning and execution. This participatory approach was seen as essential to building self-reliance and community spirit.

Evaluation and Achievements

The CDP achieved several important milestones in the early years:

• Established the Community Development Block system, which became the basis for all future rural development programmes.
• Created extensive rural infrastructure including roads, irrigation works, and schools.
• Spread awareness about modern agricultural practices and cooperative institutions.
• Fostered rural leadership and laid the groundwork for Panchayati Raj Institutions (PRIs).

However, the programme also faced several challenges and limitations:

1. Limited People’s Participation: In many areas, villagers remained passive recipients rather than active participants.
2. Bureaucratic Dominance: Excessive administrative control reduced local autonomy.
3. Inadequate Resources: Financial and human resources were often insufficient to sustain projects.
4. Uneven Implementation: Regional disparities led to varied results across states.
5. Lack of Coordination: Poor integration among departments hindered efficiency.

Impact on Rural Development Policy

Despite its shortcomings, the Community Development Programme became the cornerstone of India’s rural development framework. Its organisational structure and participatory philosophy inspired several later initiatives, including:

• National Extension Service (1953) – to complement CDP by expanding outreach.
• Panchayati Raj System (1959) – to institutionalise democratic decentralisation.
• Integrated Rural Development Programme (IRDP) and Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA) in later years, which built on similar principles of community participation and self-help.

Significance

The significance of the CDP lies in its long-term contributions to India’s rural transformation:

• It introduced a multi-sectoral and integrated approach to rural development.
• It established administrative structures such as BDOs and development blocks that still exist today.
• It emphasised people’s participation and local self-government, setting the stage for decentralised planning.
• It generated awareness and mobilisation among rural populations, fostering grassroots leadership.