82

CHAPTER III

REGIONAL PLANNING IN INDIAN PLANNING

NEED FOR REGIONAL PLANNING IN INDIA:

In India the claim for regional planning is based

on several considerations• Geographically the country

comprises a vast area with significant variations in its

natural environment* Climate and soil differences are

very pronounced In different parts of the country deman­

ding different patterns of economic development* Soci­

ally the country is highly differentiated in terras of

language# religion and culture. Prom the economic stand­

point the factors of production are not equally dis­

tributed* Capital and enterprise are available in large

measures in certain areas enabling them to steal a march

over the others in exploiting the available resources*

Dr. Y. Venugopal Reddy rightly observes that “in such

a situation# it is axiomatic that unilevel centralised

planning would be relatively inefficient to comprehend

and deal with such a diversity of factors* It would be

particularly difficult to deal with enormous and diverse

non-quantifiable socio-economic situations within a demo­

cratic framework**1 In addition to this argument a
_ ^ mt mm ^ \*» ee
1 Venugopal Reddy# *.# Multilevel Planning in India (New
Delhi# Vikas Publishing House Private Ltd*# 1979 )#,p* l*
 83

number of other reasons can be a adduced for adopting

regional planning* It will enable peoples participation
and better mobilisation of local resources* Moreover#
it will help to reduce regional tensions* Regional
planning will also inject dynamism in backward regions
and stimulate the process of growth*

REGIONAhlSATION IN THE CONTEXT Of INDIAN PLANNING*

m the context of Indian planning# it is sugges­

ted to have the following systems of regions which must
be eventually brought together to produce a common
system* (I) Economic regions * To achieve the maximum
rate of growth in the shortest possible time# these regions
have to be demarcated on the basis of resource potentials
and existing stocK of human# infrastructural and capital
resources* (2) Social regions* Social and economic
dualism exists in India in a variety of forms* There is
rural and urban dualism and cultural dualism manifesting
in varying educational and employment achievements* Our
caste structure provides another example* In addition#
there is the economic dualism between the haves and the
have-nots forming different groups* Based cm these dua—
list 1c factors# areas can be demarcated as urban and rural

2 R*P* Misra §t al*# Op* cit*# p* 35*

regions, socially backward ones such as tribal regions#

and economically poor ones having very low percapita

income* (3) Environmental regions* Bivironmentally

regions can be distinguished as those marked by environ­

mental destruction# those needing environmental preser­

vation and those having special environmental problems*

(4) Administrative regions* They are already there

carved out from historical and administrative processes

in the last several decades* At present# as in the past

they can be taken as units for formulation and implemen­

tation of plans* (5) Planning regions proper* There is

no definite method to define their scope* According to

V.b*S. Prakasa Rao "In a region for regional planning

the different regional factors interact and operate in

mutual actions and reactions# and any change in one nor­

mally leads to changes in others, thus setting up a cnain

reaction* Intact# there is a two-way chain reaction* one

internal within the region and the other external with

the neighbouring or farther regions"• However Planning.

regions may be conceived as synthetic regions fusing and
♦

blending into a whole the concepts of economic# social

environmental and administrative regions*

3 V.L.S* Prakasa Rao# "Regional Planning", Indian Statis­

tical Institute* Culcatta (I960), p* 2*
 85
i

INDIAN PLANNING! MORE SECTORAL THAN SPATIAL*

But Indian Planning had not devoted due thought

in carving out the regions on the above basis* It had
teen essentially normative single-level economic pla­
nning with a heavy reliance on the sectoral approach*
Sectoral plans, integrated into a single whole and fitted
into the framework of national goals and objectives, were
prepared and implemented since 1951, the year when the
first Five Year Plan was launched* Indian planning even
today is marked by centralisation at the national level*
until very recently no serious attempt is made to prepare
plans at lower territorial levels such as the State,
District/development block or region with the same cana­
pe ta nee and seriousness as at the national level* "Even
\

the State plans were nothing but catalogues of demands*

Grass-roots planning, which was supposed to form the
4
basis of national planning has teen conspicuously absent “*j
For all practical purposes, planning in India continues
to be sectoral and is almost devoid of spatial dimensions*
The existing centralised and normative sectoral process
cannot adequately and simultaneously take care of achie­
ving the triple goals of Indian planning i*e*, (1) economic

4 Metraux, A., “Planning in India”, Harllan (9 January#

1959), p. 458*
 86

development (2) social justice and (3) improved environ­

ment. It is possible only when our planning philosophy

and methodology undergoes a change and lays emphasis on

multi-level regional development planning.

INDIAN PLANNING* MORE CBSTRAUSED THAN REGIONAL IS EDI

Another characteristic feature of Indian planning

is that it is more centralised. A brief review of regi­

onal planning in India reveals the fact that no positive

action has, as yet been taken to make it a part of the

Indian system of planning* It is true that the Central

Government exercises control on industrial licensing

system and incentives for industrial development in back­

ward areas. But all these measures fall short of regional

policies. The case for a regional framework as a means

for guided policy is yet to be accepted. The planning

process in India is still highly centralised. The nati­

onal plans prepared by the Planning Commission and appro­

ved by the National Development Council have so far been

essentially sectoral. The regional or spatial breakdown

of sectoral plans have so far neither been attempted nor

thought necessary. The regional dimensions have been

left for the State Governments to incorporate into the

State plans. They continue to be merely uncosordina ted

aggregations of the claims on plan resources by Indivi­

dual departments.

THE POUR-TIER COMFbBC OF INDIAN PLANNINGt

In the four tier complex of Indian Planning

the Centre is at the top, the State is in the middle and

the District and Block are at the bottom. At the Central

or national level the Planning Commission is the chief

planning authority. Its important role is to promote

scientific planning at the State and other territorial

level. It assists in developing planning capabilities

at the State# District and Block levels.

At the State level there is no expert body to

formulate State plans. Even though each State has a

plan, "it is nothing more than the sura of sectoral needs

5
as claimed by the departments concerned"• If the de­

mands are more than the financial resources, as if often

the case, they are cut down here and there without much

concern for inter-sectoral implications and the unity

5 V.G. Patel. An Analysis of Plan toplementatlon to Inflla

(Ahmedabad, kitab Publications, 1969), p. 74. .
Ibid., P» f&m
 88

of the plan* The whole State-level planning process la

mechanical* The Implementation of plans at the State
level is equally defective* Tbe member of the civil ser­
vice who is responsible for implementation is restricted
by institutional regidities which inhibit his enthusiam*
In the view of Misra and Sundaram, "The remedy lies in
delegation of powers to the adninlstrative personnel#
minimising political interference and maintaining an
expert body to look after the planning at the state
level"*6

"At the district and block levels the posi­

tion is much worse. The local Initiative is deplorably
lacking. The vision of the officials and non-officials
involved in planning and development is very narrow". 7
Very often local and personal gains are the chief forces
influencing decisions. Misallocation and misuse of re­
sources are most glaring at the district and local levels*
The officer’s functional as well as administrative juris­
diction at the district and block levels is too large*
His training in planning and developmental work is in­
adequate* The facilities which he is provided with# to

6 Misra# R*P* and K.V* Sundaram# Multi-bevel Planning and

Integrated Rural Development in India (Mew Delhi* Heri­
tage Publishers# TS6'6)# p* S6* ■_
7 See Ishwar Dayal# et al.# District Administration# &
Survey for Reorganisation l Delhi# Macmillan# 1976)# p*80*
 89

perform tasks assigned to him are meagre* All these

factors are responsible for the weakness of regional
planning in our country*

The foregoing analysis gives an idea of the

present condition and limitations of regional planning
in India* Regional problems cannot be successfully
tackled through fragmentary action arrived at stimula­
ting economic activity in depressed areas or at reducing
the economic and social costs of gigantism in our metro­
politan areas. T*N* Sachdeva is of the opinion that
"These problems have to be dalt with# in a more corrpre­
hen sive manner through a rational development of regional
resources to maximise the rate of growth of the whole
H 8
economy"*

URBAN AND METROPOLITAN PLANNING! A PRECURSOR TO REGIONAL

PLANNING IN INDIA*

After a brief account of the present condition

of regional planning in India, it is necessary to trace
its origin for the purpose of our study* Regional pla­
nning in India received great impetus from the urban
planning fosnulated for the development of important me­
tropolitan cities like Delhi, Cuicutta and Bonfcay. Giving

8 T*N. Sachdeva, Indian Planning (New Delhi, Sudha Publi­

cations, 1978), p* ii*
 90

a sample of metropolitan planning in these pages, is not

out of place as it is the forerunner and las laid the

foundation for regional planning in India* Following the

partition of India in 1947 and its disastrous effects

on the city of Delhi and around, the Government of India

set up the Delhi Development Authority in 1955 to pre­

pare a master plan “for indicating optimum directions of

growth and expansion of the city*'*** The master plan for

Delhi viewed the city's problems in their regional

setting and thus sought to go to the roots of the prob­

lems of urban development, population growth and migration*

The work initiated in Delhi has been followed

up in other metropolitan cities like Calcutta and Bombay*

For Calcutta, the Calcutta Metropolitan Planning Organi­

sation was set up in 1961* For developing the city of

Calcutta, it prepared a plan representing an approach in

“Metropolitan planning” quite different from the conven­

tional “master plan" approach* "It is, in no sense, a

detailed plan for the physical development of the Calcutta

region, but indicated certain basic policies to guide the

authorities in preparing area development plans and

10
immediate action programmes"* Closely following the

9 Delhi Development Authority, Delhi Master Plan, voi* I,

(New Delhi, 1961), p* 3*
10 Calcutta Metropolitan Planning Organisation, Basic
Development Plan for Calcutta Metropolitan District

Fcal'cStta," l§66>,"p.’83 . -
 91

85250

preparation of the Calcutta plan# some steps were initiated

to ensure adequate planning and development measures for

some important growth nodes in the district which included

the setting up in 1964 of the Asansol Planning Organ i'­

ll
sation with jurisdiction over the entire subdivision*

Next major attempt in area planning was in the

case of Bombay* The Government of Maharashtra set up a

Committee in 1965 to formulate broad principles of re­

gional planning for the Bombay^PaHvel and Poona regions*

On the recommendations of the Committee the Maharashtra

Regional Town Planning Act was passed in 1966* 12 under

the provisions of this Act, the Bombay Metropolitan Re­

gional Planning Board which was constituted in 1967# pre­

pared a draft plan of Bombay Metropolitan Region* This

plan seeks to tackle the physical problem of congestion

in greater Bombay through the development of a new metro­

politan centre to take out of Bombay a part of administra­

tive conplex and business and commercial function* The

concept and strategy adopted in this plan "was actuated

by the need to effectively disperse the industrial and

economic activities concentrated in greater Bombay and

13
surrounding areas"*
11 Asansol Planning Organisation* interim Development Plan*
Asansol-Durcrapur (Calcutta, I960)*
12 Government of Maharashtra# Report of the Qommittee
appointed for Regional Plans for Bombay-Panvel Regions*
(Bombay 1967)•
13 Bombay Metropolitan Regional Planning Board* Report of
the Bara ft Regional Plan of Bombay Metropolitan Region*
vois* t & fl* (Bombay* OToH
AN ANT AP UR-515003
 92

The Delhi plan influenced regional thinking at

the national level and the Government of India# set up a
Central Regional and Urban Planning Organisation# now
called the Town and Country Planning Organisation to act
as a technical advisory organisation# to lay dowu national
policies for urban region planning# to coordinate the
activities of the central and state agencies# to advice
State Governments and local bodies and to undertake urban
and regional research* This organisation has been
instrumental in pushing through urban and regional deve­
lopment programmes in the country and in shaping Govern­
ment policies in this regard*

REGIONAL PLANNING IN THE FIRST FIVE YEAR PLAN (1951-56)*

Even though the metropolitan and urban planning#

has greatly influenced regional thinking at the national
level# "the first Five Year Plan" (1951-56)# according to

Prof* Sundaram "tended to emphasize housing and relegated

urban and regional planning to a secondary position* 14
The reasons are not far to seek* The period 1947-51
brought with it pressing problems of rehabilitation and
settlement of displaced people from Pakistan* This Ini­

tiated certain programmes directed towards refugee

14 K*v* Sundaram# Urban and Regional Planning in India
(New Delhi# Vikas 1979)7 P* 13*
settlement# A number of townships had to be built# They

were initially conceived as residential suburbs# but

subsequently planned as self contained townships provi­

ding employment opportunities in industry, trade,and

commerce* Hence# it is no wonder that the First Five Year

Plan gave priority to housing schemes rather than to

regional plans. No doubt# the plan mentioned the need

for micro level planning at the district# taluk and

village levels but no effort was made therein to inte­

grate regional planning in the national planning# The

plan,having clearly recognised the conflict between rai­

sing production and removing the existing regional in­

equalities# has preferred in the first instance to place

emphasis on the former objective# It is because or the

need to develop agricultural and irrigational sectors in

order to solve the pressing problem of food which had

arisen due to the large junk of irrigated area going to

Pakistan# Huge amounts had also to be earmarked for in­

creasing the production of capital goods to reduce the

heavy dependence on imports# Hence “the question of re­

gional development did not receive emphasis and the pro­

blems of social justice and environmental quality did not

15
influence the choice between alterative policies" in

15 R#P. Misra et al## Regional Planning in India (New Delhi

Vikas# 197417 P# 106.
 94

the First Five Year Plan. Thus of the efforts of the

geographers and regional planners did not succeed In
introducing regional planning in the first-ever attempt
made at national level planning in India and their ar­
guments became a cry in the wilderness. It is evident
in the following confession made in the Draft outline
of the First Five Year Plan, "the limitation of sesources
... have left little scope for Initiating schemes for the
specific purpose of correcting regional disparities".*6

REGIONAL PLANNING IN THE SEC30ND FIVE YEAR PLAN (1956-61)I

The second Five Year Plan largely guided by the

idea of "socialist pattern of society" which the Indian
Parliament adopted in December 1954, had as its twin
objectives the reduction of excessive concentration wealth
at higher levels and raising the incomes in general, par-
ticularly at lower levels. 17 It must be noted that the
stress here was on social justice and equity and the
balance implied was confined to social and economic sectors.

The Second Plan laid emphasis on development of

industries. It resulted in the upshot of industrial areas

16 Government of India* Planning Commission, The First

Five Year Plan - Adpraft Outline (New Delhi, Publica­
tions Division, 1951), p* 43*
17 Government of India, Planning Commission, Second Five
Year Plan (New Delhi, Publications Division, 1955), p.33.

J
 95
»

of various dimensions and nodal points as their hubs of

activity* A few examples of such nodes are Madras,
Bangalore, Bombay, Ahmadabad, Calcutta, Delhi and Kanpur*
"The emergence of these prosperous growth poles has no
doubt increased the industrial output, but it brought in
its trail, the problem of increased differences in the
IQ

levels of economic development of different regions"*

Due to the adoption of the concept of the "Socialist
Pattern of Society" tne main thrust has been the reduction
of income inequalities and establishment of social jus­
tice; regional justice therefore failed to receive its
required attention*

It can be said, therefore, that the 1’irst Five

Year Plan clearly recognised the conflict between "raising
production" and "removing existing Inequalities", but
preferred in the first instance to place emphasis on the
former objective* The Second Five Year Plan was in no
way different* Its ideal of establishing the "socialist
pattern of society" has kept at a distance the idea of the
18 R*P. Misra et al*. Regional Planning in India (New Delhi,
Vikas, 1974), p. 106*
19 Cf. R*P. Misra, K*V* Sundaram, v*b*S* Prakasa Rao, Re­
gional Development Planning in India (Delhi, Vikas Publi­
shing House lPvt*l*td*. 1§74), p. 140* "3b the first and
second firve year plans, the efforts made in the dire­
ction of urban and regional development were feeble and
halting* The plan documents merely contained platitudes
and pious statements too vague to be action programmes*
Neither the central government nor the state governments
initiated any specific programmes, or provided for specific
financial allocation under a separate head* These two plans
by and large, tended to emphasise housing and relegated ur­
ban and regional planning to a secondary position*
pattern of society” has kept at a distance the Idea of
the deduction of regional inequalities in India. Its

obsession with social justice and equity has denied the

spatial equity# its rightful place* Both the plans thus
failed to apply any serious thought for spatial diver­
sification of economic activities and for regional dis­
aggregation of national plans. Their main concern had
been what to produce# how much to produce and how to pro­
duce rather than where to produce.

REGIONAL PIANNING IN THE THIRD FIVE YEAR PLAN I

The emergence of the Third Five Year Plan (1961-

66) has been the dawn of regional development on the

national horizon. Regional planning which was hazy till
then# had become a distinct policy of the-Oav eminent., The
Third Plan made a significant departure# unlike its pre­
decessors and devoted in its draft an exclusive chapter
on "balanced regional development". It clearly enunciated
policies and programmes intended to reduce "existing dis­
parities in levels of development of different regions"
extension of the benefits of economic progress to the less
developed regions and widespread diffusion of industry in
 20
the various parts of the country"* The plan stated that

these objectives could be achieved "through the balanced

and coordinated development of the industrial and agri­

cultural economy of each region and through planned ur­

banisation and the development of economic and social

services"• It stressed the importance of (1) carrying out

systematic surveys to identify the problems of different

regions (2) careful watching of progress in different

regions and taking steps to speed up development in areas

found to be lagging seriously behind and (3) the need for

balance between national and regional development"* "The

concept of balance implied not merely one of securing a

certain desirable proportionality of investments in indi­

vidual sectors of the national economy# but also on achi­

eving a widespread dispersal of economic activity# so as

to prevent spatial lags in development"• 21 In view of the

inherent difficulties in achieving efficiency and equity

at the same time# particularly in tne early phases of eco­

nomic development# the plan set "balanced regional deve­

lopment " as the long term goal of the nation*

/

20 Government of Inoia# Planning Commission# The Planning

Process (New Delhi# Publications Division, 15*64)#
p* 13*
21 K.V. Sundaram, Op* cit*# p* 389,
 98

The third plan, for the first time made a spe­

cific provision of rupees 30 million for the preparation

of comprehensive development plans for urban and regional

development* The assistance was not confined to the pre­

paration of plans for major cities and towns, but also

extended to include planning for river valley regions,

industrial regions and resource regions* The Central

Government provided the State Governments with the nece­

ssary funds for the purpose. It gave a strong impetus for

the preparation of comprehensive development plans for

cities towns and regions* As a result 72 projects were

taken up by the town planning departments in the various

states during third five year plan period. The projects

dealing with "urban development" included preparation of

plans for major metropolitan centres, state capitals,

port towns, rapidly growing industrial towns and pilgrim

tourist centres. "The areas selected for regional deve­

lopment included priority areas wnere there was an urgent

need to control the direction of the developments sparked

off by major plan projects like the multipurpose river-

valley projects, location of steel plants, and other

large-scale industries in the public sector". 22

22 R.P. Misra, et al*, Op. cit*, p* 141.

 Even though regional focus in the Third Plan

became more explicit# the basic issue of regional equity

as an important socio-economic goal was not squarely

met* Besides# the roie of regional planning as an In­

strument of national development was not recognised*

'In fact the two were treated as antithetical"* This

confused thinking is apparent in the following para­

graph reproduced from the draft of the Third Five Year

Plan*24

23 R.P. Misra# et al«# Op* cife*# p. 107.

24 See Planning Commission# Third Five Year Plan (New

Delhi# Government of India# Publications Division#
1961)# p. 153.
"Development of region and of the national economy as
a whole have to be viewed as parts of a single process*
The progress of the national economy will be reflected
in the rate of growth realised by different regions
and In turn greater development of resources in the
regions must contribute towards accelerating the rate
of progress for the country as a whole. Ekcessive
emphasis on the problem of particular regions and
attempts to plan for their development without relating
to their needs to the requirements of the national eco­
nomy have to be guarded against# for# in the final
analysis it is an Integral part of the country# that
different regions can best hope to realise their full
potential for growth* Balanced regional growth emerges
eventually for a whole series of connected developments
many of which are of a long term character. Over a
short period# advance towards the goal will frequently
seem small and incomplete* This is true for indivi­
dual regions and equally for the national economy as
a whole. Whatever the present shortcomings# the aim
must be that over a reasonable period all regions in
the country should realise their potential for economic
development and should attain levels of living not far
removed from those of the nation as a whole".
 100

Because of the guarded approach to regional

planning and the evasive natAre of centre's responsibility
in removing spatial inequalities, the attempts made in
the plan were half-hearted* It lead to uneven growth of
the regions and to social and political tensions in the
areas. Thus it became necessary to take a close look at
the problems arising from the differentiation of areas in
terms of the levels of their economic development and to
devise suitable measures for correcting these imbalances.

REGIONAL PLANNING IN THE FOURTH FIVE YEAR PLAN* (1969-74)8

The Fourth Five Year Plan took note of the draw­

backs of its predecessor and adopted a realistic approach
to regional development* It can be said that "it marked
a watershed in Indian planning" 25 as it spelt out boldly
some distinct regional policies and took some concrete
steps towards balanced regional development. It made
explicit the policy relating to the backward regions in
the following words.26 "Balanced regional development and

dispersal of economic activity are closely interrelated.

Growth and diversification of economic activity in an

25 K.V* Sundaram, Op. eit*, p. 29.

26 Government of todia, Planning commission. The Fourth Five
Year Plan-Draft (New Delhi, Publications Division, 1969),
p. 38. ..
 ioi

undeveloped area can take place only if the infrastructure

required for this is provided in an adequate measure and
programmes for conservation and development of natural
resources undertaken* Within a state development planning
has to satisfy these primary needs of each region or
area. Proper attention must be paid to development of
agricultural production in all areas and situations* In
the development of animal husbandry# attention must be
on the broadening and strengthening of the economic base
of small farmers and other rural producers* An important
aim of industrial development must be to meet local de­
mand throuc^i local processing and utilisation of locally
available material* Diffusion of industrial activity
will be facilitated by the rural electrification programme
o.i which large outlays are proposed"*

The Fourtn Plan# having in mind the spatial im­

balances that were responsible for violent agitations like
Telangana movement in Andhra Pradesh demanding separate
state# altered the original practice of treating States
as planning units. It adopted the regional approach# by
taking smaller areas as the units of planning* Therefore
the Fourth Plan can be said to have laid the foundation
for regional planning by Initiating it at the gross root
level under the appellation of "area development"•
 102

AREA I^SLOPMiNT PLANNING IN THB FOURTH PLAN*

The Plan felt that integrated development at the

area level is essential for carrying the benefits of deve­
lopment to the more backward sections of the community and
also for Increasing agricultural production and strength­
ening rural economy* It was on this assumption that
stress had been laid on the preparation of district and
block plans. The main objective of the "area development
plan" was to provide a concrete and well organised pro­
gramme for sustained and integrated development of the
area through active participation of and collaboration
between official non-official and voluntary agencies and
citizens. The approach was based upon the feeling that
development programmes formulated at the state level did
not and often could not take into account the local varia­
tions of resources, both physical and human. This change
might be seen as a shift towards more enlightened app­
roaches to the regional problem leading to a more obje­
ctive assessment of local and regional needs and approach
to programmes chat might benefit local areas or regions.
The beginnings of the area approach to planning could be
$traced to Industrial Estate Programme# the Intensive
Agricultural Development Programme and the Tribal Develop-

\
 103

ment Programme which were introduced in the Third Plan

period. In all these programmes, the enphasis was on en­

suring the provision of a certain package of inputs in

the selected areas intended to make a deep developmental

thrust* in the opinion of A* Ramaswami "the integrated

area planning approach adopted during the Fourth Plan

period has emerged as a result of the experience gained

during the Third Plan"*^

REGIONAL PRIORITIES AND PROGRAMMES IN THE FOURTH FIVE YEAR

PLAN *

The area approach brought realisation that in­

dustrialisation, and migration of rural population to

urban areas would raise many problems such as the need

for a balanced distribution of population and the provi-

28
sion of employment apportunities in composite regions*

It expected that these problems would assume greater ur­

gency with the rapid progress of urbanisation* The plan

suggested that regional studies and planning had to be

related to the increase in population and increase in the

size and number of cities. The situation in metropolitan

centres was already so difficult as to make it almost a

27 Ramaswami, A., "The Problem of Spatial Development",

Southern Economic Review, Vol. I, No* 1 (1971), p. 87.
28 Fourth Five Year? Plan 1969—74 — Draft, Op. cit*, p* 316*
 104

law and order problem. It was not only necessary to

think of preventing congestion in the existing cities
but also to plan suitable new centres in the region for
the likely spillover. The plan therefore gave priorities
(1) to the dispersal of population through the suitable
creation of smaller cities (2) to provide by law that
the plans formulated by the regional authority are im­
plemented by the local authorities (3) to make provision

for expenditure on specific schemes such as roads# se­

werage and water supply (4) to prepare long-term plans
for development of cities and town on a self-financing
basis and (5) to evolve a radical policy of housing for

the poor classes.

The plan.provided Rs. 136.70 crores for urban

development# housing and metropolitan schemes# Rs. 40
crores to be spent on water supply schemes sewerage and
drainage in the Calcutta Metropolitan region. The scope
and effectiveness of these provisions was enlarged by
integrating their use with that of other provisions for
land development in sectors such as industry# uroan water
supply# roads, social and educational institutions. It
was hoped that states would utilise all the relevant
allocations for integrated programmes. Such programmes
could in turn be related to complementary effort in the
 105

cooperative private sectors. The Fourth Plan expected

that "such a comprehensive planning could bring about
the most efficient and economical layout of land and
services within the framework of social objectives". 29

ASSISTANCE TO STATES FOR REGIONAL DEVELOPMENT:

The Fourth Plan conceived the allocation of

central assistance and the promotion of industries as
the major instruments for narrowing down the disparities
between regions* It devised a new formula known as
Gadgil formula30 for tee allocation of central assistance

to the States giving weichtage to backward areas* Thus

a more concrete step was taken during this plan by see­
king to link up a regional balance policy to the policy
of investment allocation. In order to promote indus­
trialisation in backward areas, a set of financial and
fiscal incentives to prospective entrepreneurs was devised.
Some adjustments in procedures and policies >ncclonal
and financial and other institutions were made to benefit
in a large measure, the backward regions in the States.

29 Ibid., p. 318.
30 This formula gives the following weightages to the various
desiderata* population - 60 per cent; percapita income
for States below the national average - 10 per cent; tax
effort in relation to percapita income - 10 per cent;
outlays required for selected continuing irrigation and
power projects costing over Rs* 20 crozes each — 10 per
cent; existence of specific special problems in the
States - 10 per cent*
 106

REGIONAL. PLANNING IN THE FIFTH FIVE Yi&R PLAN (1974-79 );

Regional planning which was in raw form till

the Third Plan, was put in the proper mould of the Fourth
Plan, and given good shape during the Fifth Plan. It
adopted the approach that "the accelerated development
of backward areas is a cooperative endeavour in which the
State Government will play the pivotal, role, while the

Central Government, the research institutions, the fi­

nancing and other State and Central Corporations, the
Cooperative Organisations, and the private sector will
also make their contributions in accordance with a well-
formulated and integrated plan of action*'* 31 For formu­
lating of operational programmes,backward areas were
grouped broadly in two categories* (1) areas with unfa­

vourable physico-geographic conditions, terrain, climate

and regions inhabited by people with typical cultural
characteristics. These include hill areas, drought prone
areas and tribal areas. (2) economically backward areas
marked by adverse land-man ratios, lack of infrastructure
or inadequate development of resource potentials.

31 Government of India, Planning Commission, Draft Fifth

Five Year Plan, 1974-79. Vol. II (New DeluT, Publica­
tions Division, 1974), p. 285*
 107

THE PLAN POLICIES FOR REGIONAL DEVEUPPMENTl

1* THE SUBPJuAN APPROACH?

An important development that had taken place

during the Fifth Plan was the preparation of sub-plan for
selected tribal areas# hill areas# 'drought-prone areas*,

to ensure their development out of state-plan funds

supplemented by special central assistance taking into
account the local resources and problems of the area*
These plans envisaged anple scope of development in the
fields of agriculture and animal husbandry and on bringing
up a cooperative structure in the area* So far as tribal
areas are concerned the sub-plan approach is altogether
a new strategy introduced to narrow down the gap between
tribal and other areas# to improve the quality of life of
the tribal communities, and to achieve social and cultural
integration of tribals with the rest of the society* 32

2. MINIMUM-NEEDS PROGRAMME;

A national programme of minimum needs has been

launched during the plan period for ameliorating the socio­
economic conditions of the weaker sections of the community

32 Ibid*# P* 285*
 108

in specific regions. The programme included provision of

facilities like elementary education, public health,
drinking water, all weather roads, house sites and houses
for slums and rural electrification. The areas with con­
centration of scheduled castes and scheduled tribes have
been given a specially favoured treatment in implementa­
tion. The Draft Fifth Five Year Plan asserts that the
Minimum-Needs Programme is “the most significant develop-
33
raent in respect of the reduction of disparities".

3. SPECIAL AREft PROGRAMME!

Area development planning was confined to sele­

cted tribal and hill areas of the country, like the hill
areas in Uttar Pradesh, Assam Hill areas# the Darjeeling
district in West Bengal and the Nilgiris district in
Tamil Nadu. The programme placed emphasis for the deve­
lopment of horticulture, plan cations, animal husbandry,
poultry, bee-keeping, soil conservation and suitable
cottage industries. Strengthening of the cooperatives bad
been given great importance* Plantation of coffee and
rubber had been emphasised in forestry programme. Mar­
keting was tied up in horticultural programme. The per­
spective plans were drawn up for the hill areas, and as
their fore-runner techno-economic surveys were conducted

in.those areas.
33 Ibid., p. 284.
 109

4. TRIBAL AREft DEVELOPMENT PROGRAMME*

Tribal Area Development Programme was conceived

as an integral one for areas with 50 per cent or more
tribal concentration, with the object of narrowing the
gap between the levels of development of tribal and other
areas and to improve the quality of tribal life* The
areas had been identified in 16 States and 2 Union Terri­
tories and extensively in Madhya Pradesh, Orissa, Maha­
rashtra, Gujarat, Andhra Pradesh and Rajasthan* The re­
sources for this programmes came mainly from the State
plan funds* And to this is added a special allocation
for the central sector*

5. DROUGHT-PRONE AREA PROGRAMMES I

Drought-Prone Agea Programmes (DPAP )we*e4started

with the basic objective of providing employment to the

rural people in drought-prone areas with inadequate natu­
ral resources, and at the same time, creating productive
effects which will mitigate the effects of droughts* As
a curative, it takes up works under scarcity relief
operations? as a preventive, it undertakes works to in­
crease the productivity of land and labour and contribute
to the mitigation of scarcity* Initially it laid enpj^sis
 110

on the construction of labour intensive civil works of

permanent nature Later on the emphasis was shifted to

irrigation projects, land ceveiopraenc programmes, affo­

restation, grassland development, rural electrification

and other programmes for infrastructural development re­

lating to roads, markets, credit, servicing and processing*

The DPAP, except accidentally, does not cover the entire

district, but only a part: of the district or in some

cases# contiguous parts of two or more districts* Here

again, the DPAP does not get integrated with the district

plan and in the opinion of Prof K*V* Sundaram "tends to

34
hang loose from the State level programmes

6. THE SMALL FARMERS* DEVELOPM£NT AGENCY AND MARGINAL, FARMERS

and AGRICULTURAL LABOUR PROGRAMMES:

The small farmers' Development Agency and Marginal

Farmers and Agricultural Labour Programmes (SFDA/MFAL) are

intended to give assistance to small and marginal farmers

to take up schemes like land development, soil conservation,

minor irrigation, horticulture, dairying, poultry# piggery

etc* Even though these programmes were started in the

Fourth Plan# the Fifth Plan laid enphasis on crop husbandry

programme which included Intensive agriculture, multiple

cropping, introduction of high yielding varieties and water

harvesting measures*

34 Sundaram, K*V., Op. cit*, p* 36*

 r Ill

REGIONAL PLANNING W THE SIXTH FIVE YEAR PLAN (1980-85)I

The Sixth Five Year Plan took up from where the
Fifth Plan left* According to Mrs. Indira Gandhi "the
continuity of the planning process with its thrusts and
eneaks has helped, • to the uplift or the most backward
regions •••• The Sixth Plan envisages a significant augu-
mentation in the rate of the growth of the economy with
an annual growth rate of over 5 per cent# In this five
year period we expect to see progressive reduction in the
incidence of poverty and unemployment and also in regional
inequalities'*. 35 The Planning commission has realised that
there are still vast areas in the country which have re­
mained backward over the years and to tackle it,1s noth a
challenge and an opportunity•

OBJECTIVES OF REGIONAL DSVSLOPMEyrT IN THE SIXTH FIVE Y£AR PLAN*

The Prime Minister's hope of the progressive

reduction in regional inequalities may be realised through
the fulfilment of the objectives' laid out in the plan. The
following are the cardinal aims and objectives* 36 of tne
regional development policy in the Sixth Plan. (1) bringing
about a progressive reduction in regional inequalities in
mm mm rnm mmmmmmm^^mmmmmmmmmmmmmmmmmmmmmwmmmmmmmmmmmmmmmmm mm mm mm W

35 See Indira Gandhi, Foreword to the Sixth Five Year Plan

1980-85 (Government of India, Planning Commission,
Publications Division, New Delhi, 1981), pp. iii-iv.
36 Ibid*, pp. 86.
 112

the pace of development and In the diffusion^technological

benefits (2) upgrading the development process in the back­

ward regions rather than curtailing the growth of these

regions which have acquired a certain momentum* (3) pur­

suing of measures for reduction of regional inequalities

consistent with the general objective of achieving a 5
per cent growth rate in the economy as a whole* (4) Di­
ffusion of skills and technology to these areas to bring
forth a proportionately greater improvement in producti­
vity* (5) strengthening of specific programmes meant to

deal with the deficiencies of scanty rainfall, frequency

of floods, difficult terrain, desert conditions and so on.
(6) transferring of resources to areas afflicted with
backwardness which does not recognise state boundaries*
(7) paying adequate attention to tne backward areas by the
relatively richer states within their territories* (3)

sustaining the ciait.is o_: the poorer stac.es on the oasis

of proven programmes introduced by them for the benefit of
the weaker segments within their territories and (9) bring­
ing to light, through the District and Blockwise planning,
the nature of the specific problems in each area and the
manner in which they need'to be dealt with*
 113

THE ROM] OF CEMTRM. ASSISTANCE Bt RESIONAI. DEVBX1PMMTI

The Plan intends to tailor suitably, the Central

policies with respect to resource transfers to the benefit
of backward regions and broadly in relation to the effort
made by the States in this regard* 37 The Planners have
realised that there are obvious limits to the role of
Central assistance in the promotion of backward areas and
reduction of regional imbalances in development. The
problem of regional disparities has several dimensions and
action on several fronts is indicated if there is to be a
perceptible decline in such disparities* Moreover an in­
crease in the flow of resources to the backward States
does not necessarily inply that adequate provisions will
be made for the backward regions. State Governments have
a crucial role to play in evening out inter-state dispa­
rities, identifying local development potential and provi­
ding the administrative and financial support needed for
local programmes. It is also felt that the special pro­
grammes for backward regions have to be dovetailed with
the overall development plan in order to make them cost-
effective* Thus mechanisms of area planning have been
adopted in the plan, to provide an integrated approach to

37 Ibid*, p. 87.
 114

the problems of regional inequalities and the sub-plan

approach has been introduced to integrate fully the area

plans with the national development plan*

THE SCHEMES UNDER THE SIXTH FIVE YEAR PLAN l

1* HILL AREA DEVELOPMENT PROGRAMME (HASP) AND INTEGRATED

TRIBAL DEVELOPMENT PROGRAMME (ITS?)*

The HA0P# the ITOP and specific programmes handled

38
by the North East Council have all been evolved for in­

clusion in the Sixth Plan* The objectives of the Hill

Area Development and Integrated Tribal Development Pro­

grammes are to develop the hill and tribal areas without

causing destruction to their ecology* The schemes were so

formulated that they aim at better land-use and control of

soil erosion through watershed management, afforestation,

silvi-pasture development, replacement of annual crops with

perennial shrubs and plantation crops, and fores try an#

39
steep slopes*
38 See Ibid*, p* 413. "For the integrated development of the
Hill States and Union Territories of the North Eastern
Region, the Central Government set up the North-Eastern
Council in 1971 which started functioning with the comme­
ncement of the Fifth Five Year Plan. The Council takes up
such schemes as are of common interest to more than one
State or union Territory and to the region as a whole
under its development plans. The Council has played an
important role in the development of interregional pro-
graraes ot power generation and transmission, construction
of roads, agriculture, animal husbandry, fisheries etc*
It has been supporting research and experimental projects*
A training infrastructure is being built up for manpower
development in the region under the auspices of the Council
39 Government of India, Planning Commission, Sixth Five Year
Plan — Mid-Term Appraisal (New Delhi, August, i983), p*107*
X 115

2* FORMULATION OF SUB-PLANS t

The concept of the sub-plan has bean developed

in the Integrated Tribal Development Programme for the
development of backward areas both at the State and Central
levels* In the sub-plan approach weighted allocation is
proposed to be given to the backward area from the divi­
sible part of the plan of the development department. The
programme of Tribal Sub-plans consists of increasing the
productivity levels of agriculture and horticuxture, ani­
mal husbandry, forestry, small and village industries and
, . 40
marketing.

3. CREATION OF SPECIAL ADDITIVE FUN Pi

Even though the divisible part of the State Plan

Is allocated to the projects, the sheer Inertia of on­
going programmes will have very little scope to the local
planning group to adjust the funding to local requirements
of an integrated development approach at the local level*
Special steps will therefore, be taken to force gradually
a discretionary allocation to the local planning of
greater and greater magnitude gradually. In addition, to
expedite the development of backward areas, a special allo­
cation of Rs. 5 lakhs per year for each block in the project

40 Sixth Five Year Plan - 1980-85, Op. cit., p* 420*

 116

area will be made available as a special additive for the

plan period.

4. FINANCIAL DISCIPLINE:

There is always the tendency to divert funds

Intended for backward and difficult areas to more forward
areas and easier programmes. Therefore financial dis­
cipline will be imposed to ensure that the funds included
in the Sub-Plan for the development of backward areas and
allocated to the projects in the backward area by the
various departments and the additives are spent properly
within the year in the project area*

5. PROJECT-BASED IMPLEMENTATION:

Hie development programmes for backward areas

are proposed to be implemented through project authorities
for groups of two or three blocks# the actual size being
left to the States# depending on the local conditions.
Hie chief executive of the project will coordinate the
work of all development functionaries in the project and
have the powers to issue orders to them for action on

agreed programmes.
 117

6. INCENTIVES TO STAFF!

The most serious problem of backward area is

that the hierarchies of development departments that
should be working In those areas generally have lots of
gaps because of the unwillingness of staff to go to those
backward areas* lack of housing# health and educational
facilities for children are three serious constraints to
/

free movement or staff to those areas. In addition to

providing them# monetary incentives# promotional incen­
tives will be given to ensure that the backward areas get
their fair share of development staff and technical aid*

7* INCJSNTXVSS FOR JN VESTMENT*

Central policies have also been designed to pro­

vide incentives to private entrepreneurs through schemes
of concessional finance seed* as well as margin money sche­
me* investment subsidy schemes* tax reliefs* specific in­
terest subsidies for engineer entrepreneurs and so on*
Those schemes are evaluated and after making the required
modifications for their effective implementation* are
introduced during the Sixth Plan Period*
 118

The Sixth Plan draft mentions certain common

problems with regard to modalities of implementation*

Some of them are the weaknesses of the administrative

structure# both, in the hierarcnical insufficiency of te­

chnical personnel and in horizontal coordination# diver­

sion of sectoral provisions to no re developed areas where

they can be more readily spent, insufficient delegation of

power to local authorities and unwillingness of staff to

serve in the area* The architects of the Plan rightly

observe that "the special programmes for area development

41
will come to nought unless these problems are tackled"*

The foregoing review of the plan policies shows

that our planners and administrators had been 4ogged with

the intrigruing problem of regional imbalances that per­

sisted for generations in the past. In recent years this

problem# "has attracted some active theoritical discu­

ssions# empirical research and especially political con­

cern "• Our successive Five Year Plans# no doubt have re­

cognised the complexity of the problem and adopted some

measures to tackle it# but the results achieved are not

commendable* Their attempts to concretize the vague

notion of "balanced regional development" have not su­

cceeded* It must be admitted that very little progress

41 Ibid*# p* 87.

v
 119

has been made in formulating and testing a general expla­

nation for inequality in the spatial distribution of
national income and evaluating the efficacy of the di­
fferent policies pursued at the various levels of national
development# The concept of "regional balance has eluded
the grasp of the central and State Ctoveinments and it is
high time that we come to grips with it by adopting
proper strategy"• 42

THE FUTURE COURSE OF ACTION :

Any attempt to redistribute the available eco­

nomic activities by "robbing" the rich regions to "pay"
to the Peters of their poor counterparts provides only a
43
short-run solution# It will not lead to the maximisa­
tion of social equity# Our approach should be to reinforce
the developmental process in the weeker regions while at

42 V.b.S. Prakasa Rao et al., "Regional Disparities in India"

Paper presented to IGU Commission Meetings, Rio-De-Janeiro
(April 1971)
43 C£* Planning Commission, Government of India, Sixth Five
Year Plan (1980-85) p. 88# "The transmission of growth
'Impulses from the developed to the backward regions is
only one part of the process of reduction of regional
disparities: generation of growth impulses within the
backward regions is an equally important part# It will
be necessary to strengthen the arrangements for area
planning so as to enable financial institutions, commer­
cial banks and cooperatives to augument substantially
their lending in the backward regions in agriculture and
allied activities as well as for village and small
industries"*
 120

the same time discourage investments In the richer regions

beyond what is necessary to maintain the tempo or economic

growth* Inducing economic and social development in a

traditionally weaker region requires setting in notion

the institutional and infrastructural changes which can

sustain and facilitate economic development* h sound

regional planning must therefore develop, growth poles

wherever necessary# decentralise the existing growth con­

centrations and encourage promotion of viable small towns

in rural areas by adopting the policy of wide spread

ind us trialis ation•

1* DEVmOFMINT OF GROWTH FOCIi

The concept of growth foci provides the frame­

work for the development of these institutional and in­

frastructural bases. Our plans neither recognised the im­

portance of growth foci nor intended to go beyond the se­

ctoral planning process* except in a very limited sense*

For instance this is evident from the lack of attention

to urbanisation and regional development in all the Five

Year Plans* Sectoral programming for agriculture* industry

transportation, power etc*# commanded exclusive attention

But tnese activities operate very little in space and

 121

their lack of space orientation in tne planning has fur­

ther accenterated spacial disparities in the country*
Therefore it is necessary to recognise the importance of
the development of growth foci based on a study of areas
with social, economic and spatial inter-relationships.
This leads to spatial planning* m such planning we cut
actfross the boundaries of the present administrative and
other formal regions and steer clear of the con trovers ies •

But Regional inequalities cannot be reduced

so long as a few metropolitan centres have a lion's share
of the country's total investment* This is one reason why
even in countries like the United Kingdom and Prance
efforts to achieve regional balance have been ineffective.
It has also been the experience of many western countries
that growth foci cannot simply be created anywhere and
everywhere we would like' to have them* "The questions of
what the spacific number of growth foci should be# how to
derive that number and how to determine future requirements
nave to be answered to ensure a successful application of
the growth-focus strategy for regional development

planning".
 122

2* DECENTRALISATION OF GROWTH CONCENTRATIONS:

As human activities usually tend to be concen­

trated in growth centres there shooii&d be decentralisation

of such concentrations* How much decentralisation should

be attempted and at what stage is a question that demands

proper answer* "To decentralize everything is anarchy*

To centralize everything spells both despotism and

44
anarchy"* The degree of decentralisation which is desi­

rable can be considered from the angle of scale. Suppose

there is a growth centre and a set of growth points arra­

nged in a line* It is necessary to fill the gaps between

these points by proper policy of decentralisation. In the

initial stages it is best to attempt to fill the major

gaps. As the generative capacity of the economy increases,

smaller gaps can be filled in stages* It means that growth

centres and growth points should get priority in planning

for regional development* The growth points, if well

planned will be catalists of rural change, having a signi­

ficant impact on agricultural development. It is therefore

necessary that in a country like India, the development

of growth points and growth centres should be given priority

44 C.E. Merriam cited in Pacific North West Regional

Planningi A Review (1963), p* X*
 123

In the short and medium terms. Our efforts so far have

been aimed at the growth of large urban centres and the

cost of smaller ones. Such tendency should oe counter

balanced by the forces of deconcentration and the exis­

ting urban patterns should be changed. It is the easiest

way to bring about the centrifugal growth through the

development of intermediate and smaller towns and have

even distribution of economic opportunities in the re­

gional context.

3. PROi-PTIOM OF VIABuE SMUA. TOWNS IN RUSAL. AREAS'.

At present about one-fifth or 20 per cent of

IAdia's population lives in cities and towns* With the

progressive industrialisation of the country# this pro­

blem will rise substantially# which will simultaneously

impinge upon the problem of town building. Viewing the

town building process in terms of requirements of eco­

nomic growth# its major proolems can oe analysed into

two categories: (1) The need for a sufficiently exten­

sive network of towns to achieve a proper marketing in­

tegration of the economy and (2) the need of towns as

“centres of in industrial growth". To achieve a mar­

keting integration of the economy# the need is clearly

 124

for large number of intermediate sized towns, suitably

inter-spaced all over the country* For industrial growth

we can think in terras of an alternative between manufac­

turing mostly concentrated in large cities, and manu­

facturing relatively widely distributed between cities

and towns* Under conditions of spontaneous growth, the

former type will be fostered* But there is need to

foster the growth of the latter type of towns by proper

regional planning devices. There" what is required at

this stage of Indian economic development is the promo­

tion of viable small towns in the rural areas. As Dr*

A* Ramaswami observes "it will bring about not only an

integration of the economy through a network of towns

serving as a suitable marketing channel but also an equi­

table spatial distribution of industries over a wide re­

gion and avoid drain of resources from rural to metro-

45
polltan centre"*

4. WIDESPREAD INDUSTRIALISATION;

Widespread industrialisation is the essence of

any plan for regional economic development* State policy

plays a vital part in creating the conditions needed for

45 Ear* Ramaswami, A., "The Problem of Spatial Development",

Southern Economic Review, Vol. 1, No*l (October, 1971),
p. 68*
 125

such spread of Industrial activity* According to Prof.

D.R. Gadgii "it is the state that has to provide all the
public goods services and conveniences needed to make
widespread industrialisation possible". 46 Other things
being equal, places where industrial activity is concen­
trated will be found to enjoy superior advantages in res­
pect of transport, power and water supply, credit and
marketing facilities, availability of technical experts
and of labour supply etc. Having granted that large
centres of population will inevitably enjoy some relative
advantage, public policy has to see that if it cannot
countervail this, it does' not at least worsen the situa­
tion. Today the dice are loaded entirely against the
smaller localities and the more backward regions. They
do not get even a proportionate share of the expenditure1
required for the building up of the conveniences and the
external economies. Transport systems are built chiefly
for connecting important and populous distant centres
and not for developing intermediate regions* Power trans­
mission and the public utility rates structure are largely
directed towards immediate revenue receipts. Therefore
the existing centres and customers get preference ana dis­
parities are intensified. Here deliberate action for

46 Prof. Gadgii, D.R., Planning and Economic Policy in India

(Poona, Gokhale Institute of Politics and Economics,
1972), p. 240.
 126

development of backward areas and disregard of immediate

gains are obviously needed. In this regard a change of
policy that is required must itself be built round a

pattern or a model of development* A decision must be

taken in relation to the number and the pattern of disper­
sion of centres of industrial activity creation of which
is taken as the objective of state plans of expenditure.

5. RE-ARTICULATION OF INVESTMENTS IN SOCIAL CAPITA!* AND

INFRASTRUCTURE: - ■ ■

There is need for the re-articulation of current

as well as future investment in social capital and infra-
\

structure* This implies that these facilities ought to

be provided in advance of their demand in order to encourage
investments in relative^by backward regions. We need de­

pendable projections and estimates of the regional economy

before such investment decisions can be made* It has
been realised that a provision of a primary school, a
public park, a link road and a cooperative even in small
villages has become a wasteful investment in social capital
in India. Even Japan did not make such investments in the
early stages of development. Only after the economy reached
a certain stage of development, social capital and infrastru­
cture investment, were given priority. This is a good
example for India to adopt.
 127

6* STRENGTHENING OF PANCHftYAT INSTITUTIONS*

The inadequacies of the infrastructure chara­

cteristics of our villages and small towns are well known*
Dr* IC*N. Raj is of the opinion that it "can be attributed
partly to the weaknesses inherent in the local self-
government system, particularly in tne rural areas". 47
Even today village Panchayat institutions are in the em­
bryonic stages of development and have yet to acquire the
status of experience to influence investment decisions at
local and subregional levels. Unless they become suffi­
ciently powerful to influence national and state policies
and investment decisions, regional inequalities are bound
to continue.

7. OOLiLBCTION OF PROPER EftTA FOR MEASURING REGIONAL DISPARITIES

The techniques and methods used in measuring re­

gional disparities in India are still far from perfect.
The main constraint here appears to be the lack of rele­
vant data, particularly broken down at the smallest area
level. Data on many relevent factors, such as income per
capita, investment by area or employment in various sectors

47 Raj, K.N., "Planning From Below", Economic and Political

Weekly, Vol. VI (19/1), p. 52.
 128

are not readily available. In some cases, data eor-tected

tty official agencies is governed by restrictions about

their use, making analytical research based on such data

impossible. Very often our techniques of analysis have

to be tailored to data availability. Tuere is thus a

great need for "intermediate teenniques of analysis" to

be developed for understanding the problems of backward

regions ana planning for their development.

8. INTEGRATION OF SBCTORAb AND SPATIAL. PLANNING;

Of the various differences between the sectoral

and spatial planning, the one that needs to be emphasised

is the difference In their scope and goals even though

they are both based on the same value premises. Dr. T.

Singh observes that "sectoral planning is more aggrega­

tive, whereas spatial planning on the other hand is more

disaggregative. There is need to integrate the two to

achieve balanced regional development". At each spatial

level, the relative importance of the sectors has to be

worked out. In addition to this, the inter-relationships

among the sectors and how they vary between eacn spatial

level has to be understood. The sectoral and spatial re­

lationships should be explored more deeply in order to

48 Singh, T., "Planning for Economic Development of India",

Planning for Economic Development, Vol. ii (1970), p. 63*
 129

identify the sectors or the mix of sectors irnportant at

different territorial levels in varying situations. In

India, the techniques of integration are still vague and

there is great need for further research in that direction.

9. OTHER MEASURES FOR ACHIEVING RBGIuNAr. EQUALITY*

Finally for effective approach to the problem of

regional balance the following measures may be adopted.

(1) At the national level the Central Government should

formulate regional policies and consciously adopt a re­

gional approach to development problems in the various

sectors of the economy. Cb) Inter-State regional planning

should be initiated by the Central Government whenever

inter-state proolems arise and call for effective inter­

state coordination. i3) At the State level also, planning

should be guided by regional approach. (4) At the sub-

State level, regional planning should be introduced for

a group of inter-related districts. The formulation of

regional policies and attention to problems on a regional

scale at the national level, will provide the means of

counteracting centripetal forces inherent in economic

and technological developments which tend to widen the

existing disparities between one part of the country and

another.
 130

CONCLUSIONS

India# comprising geographically a vast area

equal to a sub-continent# and consisting of significant
environmental# economic and social variations is most
suited for regional planning to reduce spatial inequali­
ties. But Indian planning has been more sectoral than
spatial and more centralised than regionalised. In India#
regional planning was first attempted at metropolitan and
urban level selecting a few cities like Delhi# Bombay and
Calcutta for development. Even though it influenced the
Government *in thinking in terms of regional development#
the First and Second Five Year Plans preferred raising
agricultural and industrial production to removing the
existing spatial inequalities. The Third Five Year Plan
made a significant departure by enunciating clearly the
policies and programmes in that direction. But it failed
to achieve the object as it did not recognise the role
of regional planning as an instrument of national deve­
lopment. The Fourth Five Year Plan spelt out boldly some
distinct regional policies and took some concrete steps
towards balanced regional growth. The Fifth Five Year
Plan followed its foot steps and progressed further# by
formulating an integrated plan of action in which the
State Government was given the pivotal role with the Centre
 \

131

contributing its share of financial and technical assistance

for the implementation of regional schemes* The Sixth Five
Year Plan envisaged progressive reduction in the regional
inequalities and tailored suitably the Central policies
with respect to resource transfers to the benefit of back­
ward regions and broadly in relation to the effort made
by the States in this regard. As regional planning is a
continuous process, it is suggested, it should, in the
Indian context, concentrate in future on the development
of growth foci in suitable areas, decentralisation of the
existing growth concentrations, promotion of viable small
towns in rural areas, widespread industrialisation of the
country, rearticulation of investments in social capital
and revitalisation of the local self-government system
particularly in the rural areas*