Policy Update
Bhavya
Introduction
Mission Antyodaya is a government initiative started in the 2017-18 budget. Its mission is to transform rural India through an accountability and convergence framework. It aims to improve how money and resources from 26 government departments are used to help develop villages. The idea is to get better results by working together and ensuring efforts are well-managed.
It is strongly rooted in the Gandhian idea of ‘antyodaya’, or upliftment of the poorest, and also reflects Pandit Deendayal Upadhyaya’s philosophy of ‘Integral Humanism’. (Chathukulam et al., 2021)
It targets one crore households across 50,000 Gram Panchayats (GPs), organized into 5,000 rural clusters. The states lead this initiative, with the Ministry of Panchayati Raj and the Ministry of Rural Development as nodal agencies.
Every year, a survey is done in these villages. This survey helps villages create their development plans by involving local people in the planning process. The plans thus developed are known as the Gram Panchayat Development Program (GPDP).
The Mission Antyodaya survey covered 2.67 lakh Gram Panchayats in 2019–20. It assessed 29 functions with over 100 indicators, allowing the generation of Composite Indicators and Gap Reports. This approach supports targeted micro-planning and resource allocation.
Background
For many years, the Planning Commission used an old method to measure poverty — based on how much food people can afford, i.e., the calorie-income measure. This failed to serve as an effective policy tool.
In 2011, the government developed the Socio-economic and Caste Census (SECC), which showed a much more precise and serious picture of rural poverty. It highlighted that:
- Over 8.88 crore households were facing severe hardships—not just low income, but also poor housing, no land, being headed by single women or people with disabilities, or belonging to SC/ST groups.
- 90% of rural families had no member with a regular salaried job.
- Over five crore families had no land to farm.
- Almost 7 million households run by women had no other adult support.
- Half of rural families were poor in more than one way—no job, inadequate housing, low education, etc.
- Over half survived only through daily wage labour.
- Nearly 2.4 crore families lived in one small room or had no proper room.
The results were shocking, given that the government spends more than Rs. 3 crore yearly on rural development through various schemes and loans. The money wasn’t reaching or helping the people who needed it most.
Furthermore, Articles 243G and 243W of the Indian Constitution require local governments to create and carry out plans to promote economic growth and fairness in society. The government set up the Gram Panchayats, the District Planning Commission, and the State Finance Commission to support this. (Oommen, 2022)
The 73rd and 74th Constitutional Amendments, enacted in 1992 and operational from 1994, gave constitutional status to local governments, intending to deepen democracy and promote social justice at the grassroots level.
However, horizontal equity — ensuring equal development across regions within a state — remains elusive, and disparities in per capita income across states have grown since liberalisation. (Oommen, 2022)
Mission Antyodaya marks a turning point in India’s approach to rural development. It provides a scientific platform for decentralized planning using big data and is one of the most comprehensive grassroots development efforts globally. (Chathukulam et al., 2021)
Objectives of the Scheme
- Create focused micro-plans for every deprived household to support long-term, sustainable livelihoods.
- Conduct an annual survey to measure progress in each Gram Panchayat, helping track how well development efforts are working.
- Support participatory planning through the Gram Panchayat Development Plan (GPDP), which improves local services, strengthens citizenship, encourages collaboration among community groups, and improves local governance.
- Encourage partnerships with professionals, institutions, and businesses to speed up the transformation of rural livelihoods.
- Address multidimensional poverty using a region- and need-specific approach.
Another important goal is to ensure the effective use of large public expenditures through evidence-based convergence planning at the GP level, supporting better governance and service delivery.
Functioning
Implementation Strategy
Mission Antyodaya follows a seven-step approach:
- Identification of GPs by state governments.
- Baseline data collection using SECC and other tools.
- Mapping growth hubs and economic drivers.
- Participatory planning via Gram Panchayat Development Plans (GPDP).
- Aligning financial, human, and technical resources.
- Convergent implementation of development activities.
- Continuous monitoring and adaptive strategy changes.
Funding and Resource Allocation
While it has no separate budget, Mission Antyodaya relies on converging funds from existing schemes. States are encouraged to use unspent administrative funds and mobilize human resources from SHGs, NGOs, and trained professionals at the grassroots level.
Monitoring and Accountability Tools
A key feature is the integrated monitoring dashboard, which consolidates data from multiple schemes and provides stakeholders with a clear view of progress. The district-level DISHA committees and mobile apps like Gram Samvad ensure transparency and accessibility of information to citizens.
Strengthening Institutions
The Sumit Bose Committee recommendations have guided improvements in human resource deployment:
- Appointment of full-time Secretaries and Technical Assistants in every GP.
- Deployment of qualified staff in engineering, IT, and accounts for clusters of smaller Panchayats.
- Leveraging SHG networks and other civil society actors for service delivery.
Focused Intervention Areas
The mission emphasizes inclusive development in:
- Backward districts and SECC-identified vulnerable households.
- Physical infrastructure, like roads, power, housing, and the internet.
- Social sectors such as health, education, and sanitation.
- Economic sectors include agriculture, manufacturing, and non-farm livelihoods.
Convergence in Action
Mission Antyodaya integrates flagship schemes such as MGNREGS, PMAY-G, NRLM, SBM-G, and PMUY. It also supports innovative state-level programs like Telangana’s Gram Jyoti and Andhra Pradesh’s Smart Village initiatives to consolidate these efforts for greater impact.
Outcome-Based Planning
Development indicators are tracked across the dimensions of infrastructure, social development, and economic empowerment. These include access to clean water, electricity, education, health services, and income-generation opportunities.
Performance
Mission Antyodaya data was collected on 48 parameters in 2017. By 2019 and 2020, data were available on 143 parameters, covering public services, infrastructure, human development, economic activity, etc. In 2022-23, data were collected on 216 parameters based on SDG localisation. Every Gram Sabha is supposed to hold an annual meeting where vulnerable groups are monitored, and all the proceedings are uploaded on the official website of Mission Antyodaya. It is noted that these meetings have become an annual feature, and Gram Sabha attendance is increasing. (Sinha, 2025)
Despite this rich data, studies reveal a poor linkage between Mission Antyodaya Gap Reports and the GPDPs, with less than 1% of Panchayats incorporating the gap analysis until 2020. This disconnect has severely undermined the transformative potential of the program. (Chathukulam et al., 2021)
Impact
The first census in 1951 estimated India’s rural population to be approximately 300 million. Since the last census was in 2011, to know the impact, one can look at the data collected under Mission Antyodaya under the Ministry of Rural Development. The number of villages has increased from 2011 to 2022, from 597,608 to 648,548, respectively. Three Indian states account for 30% of India’s villages, namely Uttar Pradesh(16%), Rajasthan(7%), and Bihar(7%).
Mission Antyodaya data puts the rural population at 1.03 million, which has increased by 197 million since the census of 2011. Compared to the 2001 and 2011 censuses, the rural population increased by only 90.4 million. Critics find it difficult to explain why the increase is twice that of the earlier decade and question the reliability of Mission Antyodaya data. (S Chandrasekhar, 2023)
A recent academic study using Mission Antyodaya data has led to the development of the Rural Deprivation Index(RDI). It offers a comprehensive, data-driven lens to evaluate rural service deficits. Constructed using 22 indicators across infrastructure, education, and health provisioning, the RDI reveals wide disparities both across and within states. For instance, while Kerala ranks as the least deprived state, Arunachal Pradesh tops the list in terms of deprivation levels. Interestingly, even relatively developed states like Maharashtra show notable rural shortfalls, ranking 21st. (Guha, Hatekar, Jyotishi, 2024)
Kerala, for instance, consistently scored above the national average in Mission Antyodaya surveys, with over 96% of its panchayats scoring above 60 points in 2018. However, even in Kerala, MA remains a poorly understood initiative at the Panchayat level. (Chathukulam et al., 2021)
The focus on “provisioning” indicators rather than outcome metrics makes the RDI a pragmatic tool for policymakers, aligning well with the decentralised and participatory ethos of Mission Antyodaya.
Emerging Issues
- Poor Village Infrastructure
The Mission Antyodaya survey (2019-20) collected data from over 2.67 lakh Gram Panchayats, covering more than 6 lakh villages. The survey gave each Panchayat a score out of 100 to show how developed it is. It was found that no state reached the top score of 90–100, and 1,484 panchayats scored the lowest. In the 80–90 range, no Union Territory or 10 major states even appeared. Kerala had the best results, but even there, only about 35% of its panchayats scored in the 70–80 range. The national average for this level is only 1.09%. - Poor Performance Overall
While only 15 panchayats scored below 10, a large number (over 20%) scored below 40. Except for Kerala, most states’ panchayats struggle even to cross the 40-point mark. This shows that even after decades of local governance reforms, true development and justice at the village level are still far off. - Disconnect Between Planning and Reality
Panchayats are supposed to make development plans (GPDPs) based on real data from the Mission Antyodaya surveys. However, in most cases, these plans do not match the actual needs identified in the survey. Even where surveys were done, many panchayats ignored the Gap Reports when making their final plans.
The main criticism is that Mission Antyodaya has become a bureaucratic exercise with low awareness and ownership among Panchayat functionaries. In field studies, even GPs with high Mission Antyodaya scores were unaware of their rankings or how to use Mission Antyodaya A data in planning. (Chathukulam et al., 2021)
Way Forward
Mission Antyodaya offers a powerful framework to transform rural India, but its success depends on bold, coordinated actions across policy, planning, and practice.
1. Integration of Resources and Schemes
Programs such as MGNREGS, NRLM, PMAY-G, and SBM-G must be effectively aligned under the Gram Panchayat Development Plan (GPDP). Mission Antyodaya’s data should serve as the basis for identifying gaps and setting priorities, ensuring better resource utilization, and avoiding duplication across schemes.
2. Effective Deployment of Fiscal Resources
Despite generating extensive rural data, Mission Antyodaya has not been integrated into fiscal transfer mechanisms. State Finance Commissions (SFCs) should use this data to ensure intrastate equity in fund allocation, bridging development gaps across and within districts.
3. Institutional Capacity and Digital Tools
There is a pressing need to strengthen institutional capacity at the GP level. Deployment of full-time secretaries, technical assistants, and trained personnel in planning, IT, and finance must be prioritised. Tools like the PlanPlus software, if scaled up with real-time data integration, could enhance planning.
4. Simplifying Guidelines and Raising Awareness
Field studies reveal that Mission Antyodaya remains poorly understood at the panchayat level, even in high-performing states like Kerala. Guidelines must be simplified and translated into regional languages. Capacity-building programs, IEC campaigns, and sustained political attention are critical to generating ownership and accountability.
5. Political Commitment and Policy Continuity
The mission needs consistent political support and stable timelines. Abrupt changes to goals and deadlines, such as extending the 2019 poverty-free panchayat target to 2022, weaken credibility. Monitoring must be rigorous, transparent, and citizen-focused.
In conclusion, Mission Antyodaya is more than a scheme—it is a vehicle to deepen democratic decentralisation, ensure social justice, and enable data-driven, citizen-led planning. With the right reforms, it can truly become the cornerstone of India’s rural transformation.
References
- Ministry of Rural Development. (n.d). Mission Antyodaya Framework. https://rural.gov.in/sites/default/files/MissionAntyodayaFrameworkPRCPresentation16Nov2017.pdf
- Oommen, M. (2022). ‘Mission Antyodaya’ should not fall by the wayside. The Hindu. https://www.thehindu.com/opinion/op-ed/mission-antyodaya-should-not-fall-by-the-wayside/article65357697.ece
- Chathukulam, J., PhD, Joseph, M., Rekha, V., Balamurali, C. V., & Thilakan, T. (2021). Mission Antyodaya: Well envisioned but poorly understood [Journal-article]. Gandhi Marg Quarterly, 151–186. https://crmindia.org/wp-content/uploads/2021/12/CHAPTER-2-FINAL.pdf
- Oommen, M. (2022). The Mission Antyodaya Project. Economic and Political Weekly. https://www.epw.in/journal/2022/35/commentary/mission-antyodaya-project.html
- Guha, P., Hatekar, N., & Jyotishi, A. (2024). What does Mission Antyodaya data say about rural deprivation? Ideas for India. https://www.ideasforindia.in/topics/governance/what-does-mission-antyodaya-data-say-about-rural-deprivation.html
- S Chandrasekhar. (2023). Know the India that still lives in its villages. The New Indian Express. https://www.newindianexpress.com/opinions/2023/Oct/01/know-the-india-that-still-lives-in-its-villages-2620001.html
- Sinha, A. (2025). Community validation for inclusive outcomes: Mission Antyodaya for SDGs. Business Standard. https://www.business-standard.com/economy/analysis/community-validation-for-inclusive-outcomes-mission-antyodaya-for-sdgs-125011400977_1.html
About the Contributor: Bhavya is a research intern at IMPRI Impact and Policy Research Institute, a third-year undergraduate pursuing a double major in Economics and Sociology at Christ University, Bangalore, Central Campus.
Acknowledgment: The author thanks Aasthaba Jadeja, internship coordinator, for her guidance and support, and Meyhar and Fatima Firdas for their valuable feedback on earlier drafts.
Disclaimer: All views expressed in the article belong solely to the author and not necessarily to the organization.
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