Dist Dev. Plan-GuidelineManual
Dist Dev. Plan-GuidelineManual
dP
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Planning Department, Government of Maharashtra
Table of Contents
1. Introduction .................................................................................................................................. 4
2. Setting the Context ....................................................................................................................... 5
3. Guidelines for District Development Strategy (DDS) Preparation Process .................................. 7
3.1. Planning Phase ................................................................................................................ 7
3.2. Approval of DDS at District Level by the DPC.................................................................. 7
3.3. Submission of Provisional DDS on Online Portal ............................................................ 8
3.4. Scrutiny of DDS by the State Level Executive Committee (SLEC).................................... 8
3.5. Final Submission of the District Development Strategy ................................................. 8
3.6. Consolidation of the DDS ................................................................................................ 8
3.7. Approval of the Consolidated DDS at the State Level by the Apex Committee ............. 9
4. Guidelines & Template to Prepare the District Development Strategy Document ................... 10
Chapter 1 – Stakeholder Identification ..................................................................................... 12
Template for Chapter 1 – Stakeholder Identification .............................................................. 12
Chapter 2 – District Profile ........................................................................................................ 13
Template for Chapter 2 – District Profile ................................................................................. 13
Chapter 3 – SWOT Analysis of Districts ..................................................................................... 16
Template for Chapter 3 – SWOT Analysis of Districts .............................................................. 16
Chapter 4 – District Vision & Mission ....................................................................................... 19
Template for Chapter 4 - District Vision & Mission ................................................................. 19
Chapter 5 – Identification of sub-sectors as economic drivers ................................................ 21
Template for Chapter 5 - Sub-sectors selected as economic drivers ...................................... 21
Chapter 6 – Sub-sector Self-Assessment & Action Plan............................................................ 24
Template for Chapter 6 – Sub-sector Self-Assessment & Action Plan..................................... 26
Template for Action Plan ......................................................................................................... 26
7. Annexures ................................................................................................................................... 27
a. Indicative list of Sub Sectors for each Sector ................................................................ 27
b. Sector specific Indicative list of Self-Assessment parameters for each enabler........... 27
c. List of Sustainable Development Goals......................................................................... 32
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Abbreviations
Abbreviations Full Form
DLEC District Level Executive Committee
DPC District Planning Committee
SLEC State Level Executive Committee
EMDE Emerging Market and Developing Economy
GDP Gross Domestic Product
GSDP Gross State Domestic Product
DDP District Domestic Product
DC District Collector
ACS Additional Chief Secretary
S Secretary
PS Principle Secretary
CEO Chief Executive Officer
w.r.t With Respect To
KRA Key Result Area
DDS District Development Strategy
SWOT Strength, Weakness, Opportunities & Threats
ESG Environment, Social & Governance
GoM Government of Maharashtra
SECC Socio Economic and Caste Census
GDDP Gross District Domestic Product
BPL Below Poverty Line
SMART Specific, Measurable, Achievable, Relevant and Time Bound
SDG Sustainable Development Goals
IT Information Technology
PPP Public Private Partnership
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1. Introduction
The last decade has seen the Indian Economy travel a long way from being clubbed in the Fragile
Five to being the fastest growing economy of the seven largest emerging-market and developing
economies (EMDEs). The outcome of the continuous economic reforms has made India aspire to
become $5 trillion economy by 2025 and has paved the way for India to become a developed nation
by the year 2047. To achieve these ambitious targets would require a participative approach and a
rapid transformation of the economy. As per the NITI Aayog, Strategy for New India @ 75, there is a
need to steadily accelerate the gross domestic product (GDP) growth rate and India is likely to be the
fastest growing major economy in the world. To achieve the target of $5 trillion economy
‘Cooperative Federalism’ model encompassing the Bottom-Up approach should be implemented to
strengthen the idea of “Strong State Makes Strong Nation”.
On the other hand, Districts are key drivers of economic growth in the State. The bottom-up
planning approach of development although begins at the Panchayati Raj level, the district becomes
a major nodal point for developing a visionary growth strategy for the overall district. The same has
been enshrined in the concept of “District as a fulcrum of growth”. The District Development
Strategy provides the starting point for formation of a long-term growth-oriented vision for the
districts. The document also guides the DCs in formation of action plans and strategies which could
be adopted for achievement of the growth vision.
1. Prepare an all-inclusive profile of the districts that would include conducting a SWOT
analysis.
2. Outline the growth-oriented vision for the districts enabling them to become a “Viksit
District” by or before year 2047
3. Identify and classify sub-sectors under headings such as “Growth” and “Aspirational”, based
on the ecosystem support in the district.
4. Develop a time-bound action plan for strengthening the ecosystem for various sub-sectors
selected for driving growth in the district.
5. Identify policy gaps that would be detrimental to the growth agenda and bring them to the
notice of policy makers in the State.
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2. Setting the Context
Maharashtra is one of the most prosperous states in India and is a significant contributor to the
country's economic growth. The state has a diverse economy with a mix of agriculture, industry, and
services sectors. Maharashtra has a Gross State Domestic Product (GSDP) of approximately USD 435
billion (2022-23), which makes it the largest economy in India. Maharashtra's contribution to India's
growth is significant. The state accounts for 12.92% of India's GDP and has a per capita income that
is higher than the national average. The state's economic growth has been driven by its strong
industrial base, a skilled workforce, and a favorable business environment.
The state has a diverse range of industries, including automobiles, textiles, chemicals, and
pharmaceuticals, which contribute significantly to its economic growth. The state's capital, Mumbai,
is the financial capital of India and is home to the Bombay Stock Exchange and the National Stock
Exchange, which are among the largest stock exchanges in the world.
Agriculture is an essential sector in Maharashtra's economy, and the state is a major producer of
fruits, vegetables, cotton, and sugarcane. The state has adopted modern agriculture techniques such
as drip irrigation, hybrid seeds, and organic farming, which have increased productivity and helped
the state become self-sufficient in food production.
Maharashtra is also a leading state in the services sector, with Mumbai being the hub for the
banking, finance, and insurance sectors. The state has a large pool of skilled professionals in the IT
and IT-enabled services sector, which has attracted several multinational companies to set up their
operations in the state. The state has also been promoting tourism, which has become a significant
contributor to its economy.
Maharashtra although is one of the most prosperous states in India and is a significant contributor to
the country's economic growth, the economic growth of Maharashtra has not been evenly
distributed across all its districts. Some districts have lagged, while others have grown rapidly. The
major economic legwork is being done by districts such as Mumbai, Pune, Nashik, Aurangabad and
Nagpur. Almost half of the 36 districts in the state are below the median in their contribution to the
GSDP of the state. On the other hand, Maharashtra has set a target of becoming a USD 1 Trillion
economy by 2027. This level of growth is only possible when all the districts participate equitably in
the States growth and make substantial contribution to the GSDP.
Maharashtra's economic growth can be driven by the development of various districts in the state.
Each district has its unique strengths and can contribute to Maharashtra's economy in different
ways. In the coming years, it is essential to focus on the development of all districts in the state to
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ensure that the economic growth is inclusive and sustainable. The government is committed to
provide the necessary infrastructure, incentives, and policy support to promote investment in
various sectors in different districts of Maharashtra. District Development Strategy will provide the
guiding vision and the supporting action plan to the district administration for achievement of the
growth objectives.
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3. Guidelines for District Development Strategy (DDS) Preparation
Process
Developing a DDS requires a comprehensive approach that involves stakeholders and actions at
different levels. Below are some steps for guiding the whole process:
District Collector shall identify various members of the District Level Executive
Committee (DLEC) and formulate the Committee.
The DLEC shall meet within the first week of formation and deliberate on the DDS
requirements and delegate responsibilities amongst the members with regards to the
same.
The DLEC shall identify various resources that would be required for the preparation of
the DDS.
The DLEC shall propose a schedule for the visit of the State Level members within the
first month of the preparation of the DDS.
The DLEC shall propose a schedule for a meeting for reviewing the progress of the DDS
document. It is suggested that such meetings must take place fortnightly under the
chairmanship of the District Collector.
The DLEC shall consolidate the DDS document as per the given timelines and place it
before the DPC for appropriate approvals
It may be noted that there might be suggestions on the DDS by the DPC. Hence, the
DLEC must plan for the approval process accordingly.
This development strategy will be prepared in 3 Stages, and the chapters it will be
covering, are as depicted below –
District Collector must place the consolidated DDS before the DPC for deliberation and
approval.
The DPC may provide suggestions, if any, based on the initial draft submitted.
The DPC shall be the final authority for approving the DDS before it is submitted by the
DLEC to the SLEC for further process.
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3.3. Submission of Provisional DDS on Online Portal
Planning Department, GoM shall provide an online portal for submission of the
Provisional DDS.
The online portal shall have sections like the template of DDS Document provided along
with the guidelines to prepare the DDS and Action Plan
The sections on the online portal shall have to be filled through the District Collector
login in the manner prescribed in the portal and as per the guidelines mentioned in this
document.
The District Collector shall have to upload documentary evidence (signature on file,
minutes of meeting of DPC, etc.) for confirming the approval from DPC.
Post the submission of the DDS sections on the portal, a consolidated pdf documents
shall be generated on the portal that can be downloaded by the districts.
The portal shall be accessible for making changes only till it is reviewed by the DPC. Once
DPC approves the DDS and Action Plan, no further changes will be allowed to be done
on, unless suggested by the SLEC or Apex Committee.
The SLEC shall schedule scrutiny meetings for the DDS submitted by the District
Collectors through Secretary level sub-committees.
The District Collectors shall be invited to make presentations on the DDS and the action
plan submitted by the collectors
The Scrutiny Committees shall submit their feedback and inputs to the SLEC, which shall
be communicated to the District Collectors for making revisions, if required.
The District Collectors shall note the feedback and inputs received from the SLEC and
make appropriate changes in the DDS
The changes made in the DDS must be submitted to the DPC for a final review and
approval
The DDS, post approval from the DPC, must be uploaded as a final document on the
portal.
The SLEC shall review and consolidate the DDS and action plans received from the
districts post the final submission phase
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The SLEC shall grant provisional approval to the DDS and action plans and submit the
same for final approval from the Apex Committee.
3.7. Approval of the Consolidated DDS at the State Level by the Apex Committee
The SLEC shall present the Consolidated Action Plan for all the Districts to the Apex
Committee for their review and feedback
Based on Apex Committee’s feedback/inputs, if any, alterations to the Action Plans shall
be made by the SLEC
Post approval of Apex Committee, the District wise Development Strategy and Action
Plan shall be published for further implementation and monitoring.
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4. Guidelines & Template to Prepare the District Development
Strategy Document
The process presented in this manual is based on the concept of strategic planning for a bottom-up
approach for achieving the state’s economic development targets. The participatory and
collaborative District Development Strategic Planning methodology detailed in this guideline
document is designed to facilitate the district administration in developing focused plans that can be
operationalized in a timebound manner for increasing the District Domestic Product (DDP).
Below given set of guidelines provide an indicative methodology by way of which the District
Development Strategy and the corresponding action plans must be formulated. The District
Development Plan document, when prepared must contain the following major aspects:
1. A brief insight into the district based on its demographic and economic profiles.
2. A thorough assessment of the Strengths, Weaknesses, Opportunities and Threats faced by
the district based on various parameters
3. A well formulated vision and mission statements focused on inclusive and sustainable
economic growth
4. Identification of sub-sectors that are coherent to the districts strengths and are most likely
to drive the desired economic growth in the near and long term.
5. Specific development objectives and interventions identified based on the vision statement.
These objectives and interventions should be SMART (specific, measurable, achievable,
relevant, and time-bound).
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Stage 1 - Where is the District now?
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Chapter 1 – Stakeholder Identification
This chapter helps to identify the stakeholders required for the preparation of the DDS. The
template for the Stakeholder Identification is provided below. It is envisaged that the process of
preparation of the DDS & Action Plan, be a participatory and collaborative exercise. Below
mentioned are the considerations for the identification of Stakeholders.
Considerations -
Participation and inputs from prominent and relevant stakeholders from industry
associations, experts from field of research and academia, economists, line
departments, subject matter experts, etc.
Identification of these individuals /institutions must be done at the start of the
preparation phase of this strategy document to foster a collaborative approach to
planning.
The District Collector can also propose invitee members for participating in the
discussions and preparation of the District Development Strategy.
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Chapter 2 – District Profile
As a part of this Chapter, it is expected that all the requisite information regarding the district’s
demographic, socio-economic and ESG profile, are listed. The details provided as a part of this
chapter will help DLEC to conduct SWOT of their district
Considerations –
Data to be captured in section should be gathered from sources, such as - the Economic
Survey prepared by Directorate of Economics & Statistics, GoM, data published by line
Departments, Census data, SECC data, surveys done by the districts, data available with
District Planning Committee, etc.
Date of capture of the data for each parameter, must be mentioned
In case of non-availability of data, the same may be mentioned in against the parameter
as a remark.
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S.N. Indicator Details Source of Data Data as on –
(Date)
11. No. of workforce in Tertiary
Sector
12. Working People Population
(as % of Total Population)
13. HDI
ESG
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S.N. Sub-Parameter Details Source of Data Data as on –
(Date)
3 % of Population Residing in Rural
Area
4 Women Labor Force Participation
Rate
5 Existing Social Impact Bonds
6 Current Total No. of Human
Rights Violation Cases
7 Sex Ratio
8 Total no. of Sexual Harassment
Incidents Registered
Governance
1 No. of grievance received in a
year
2 Current Total No. of anti-
Corruption Cases + Enquiries
3 Total No. of Officials Charged
with Corruption
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Chapter 3 – SWOT Analysis of Districts
This chapter helps assess the strengths, weaknesses, opportunities, and threats of the district from
an economic and growth perspective. The objective of conducting a thorough SWOT analysis for the
district, is to create a level of self-awareness that would help the DLEC in formulating inclusive,
sustainable, and growth-oriented Vision for the district. It is expected that the DLEC identifies at
least 8 to 10 areas under each of SWOT categories
Considerations -
Strengths Weakness
1. 1.
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2. 2.
3. 3.
Add Add
Opportunities Threats
1. 1.
2. 2.
3. 3.
Add Add
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Stage 2 - Where does the District want to
go?
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Chapter 4 – District Vision & Mission
DLEC is expected to define the Vision of the district from economic growth perspective targeted to
becoming a developed district by or before the year 2047.it is envisaged, that once approved and
adopted, the vision statement should be widely communicated and embraced by the community to
ensure its successful implementation.
Considerations
Vision
Statement
Mission 1.
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Statements 2.
Add
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Chapter 5 – Identification of sub-sectors as economic drivers
As a part of this Chapter, the DLEC must identify subsectors under primary, secondary, and tertiary
sectors. The sub-sectors identified as economic drivers for the district in this Chapter, would then be
evaluated in detail in the subsequent chapters.
The subs-sectors must be identified through extensive consultation and brainstorming sessions
among the member of the DLEC. During this exercise, the DLEC should evaluate the presence/
maturity of the available ecosystem for the sub-sectors and consider at the contribution of the sub-
sectors to the DDP. An indicative list of Sub-Sectors is mentioned under Annexure 7a.
Considerations –
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Sector Growth Sub Sectors Aspirational Sub Sectors
Secondary
Tertiary
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Stage 3 – How will the District reach
there?
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Chapter 6 – Sub-sector Self-Assessment & Action Plan
The purpose of this Chapter is to conduct a deep dive into the sub sectors, identify gaps and
prospective avenues of development, which would further strengthen the presence of this sub-
sector in the district as well as increase the contribution of the sub-sector to the Districts Domestic
Product.
Key enablers to facilitate the progress of any sector are the following -
Doing a self-assessment for every shortlisted sub-sector, for these listed enablers, would help the
DLEC to understand the existing the gaps in the ecosystem of the sub sector, and subsequently
identify specific initiative to plug these gaps.
For the convenience of the DLEC, sector specific parameters (Primary, secondary & Tertiary) have
been already identified under each enabler and is available under Annexure 7b.
The ratings for each enabler must be given by evaluating the current scenario in the
district for each of the parameters.
In absence of data points, the DLEC is advised to use expert advice from various sources
for conducting such self-assessment.
Based on if the sub-sector is present in the Primary, Secondary or Tertiary sector, the
relevant parameter for that sector is to be selected for the Self-assessment of that
specific sub-sector.
For example – if the Sub sector selected for self-assessment is Horticulture, then the
parameters listed for Primary Sector must be considered.
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Similarly, if the sub sector selected is Iron & Steel industry, then the parameters listed
for the Secondary Sector must be considered.
The DLEC must provide relevant justification for the rating given against every enabler
for the specific sub-sector.
Based on the self-assessment results, the DLEC will be able to identify gaps to be fulfilled
in the sub sectors ecosystem and formulate development objectives for strengthening
its ecosystem.
A minimum of 3 initiatives for each sub-sector must be listed based on the gaps
identified after the self-assessment for it. Following which, an action plan needs to be
prepared to for the initiatives for the shortlisted sub-sectors.
The action plan should be SMART (specific, measurable, achievable, relevant, and time-
bound).
The DLEC is expected to draft specific actions point for each of the initiatives, through
which the development objectives shall be achieved. The action points proposed must
be categorized in short term (to be achieved till 2027), medium term (to be achieved by
2037) and long term (to be achieved by 2047).
The initiatives for sub-sectors identified under “Growth” category of Chapter 5, could be
directly included under the “Short Term Goal” category of Action Plan, because, these
subsectors are already substantially contributing to the District Domestic Product, and
by plugging the gaps identified after its Self-assessment, will further increase the Sub-
sectors contribution to DDP.
The initiatives for sub-sectors identified under the “Aspiration” category of Chapter 5,
could be included under the “Medium Term OR Long-Term Goals”. However, the district
must start planning initiatives for the development of such subsectors immediately.
Hence, the timelines for achieving such objectives must be recommended accordingly.
The progress of specific initiatives mentioned in the Action Plan, will be monitored
through a standard monitoring and evaluation system.
While formulating the action plan, the DLEC must be able to link the Action Plan with
priority programs of GoI or GoM. These priority programs could be “Aspirational
Districts,” “Aspirational Blocks,” “Sustainable Development Goals,” “15th Finance
Commission Objectives”, etc.
The DLEC should also identify policy gaps detrimental to the achievement of objectives
and suggest the re-engineering desired that would enable the meeting of the objectives.
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The DLEC must consider ESG as well as SDG parameters while formulating the Action
Plan. List of SDG parameters have been mentioned under Annexure 7C.
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7. Annexures
a. Indicative list of Sub Sectors for each Sector
# Sector Sub-Sector
Primary Sector
Enabler Sub-enabler
Cost of doing business Cost of / Access to supportive infrastructure and technology
Cost of affordable land
Cost of affordable water
Cost of affordable electricity
EODB Getting electricity
Getting credit
Marketing Reforms
Reducing cost of inputs
Governance and Land reforms
Risk Mitigation
Increasing production/productivity
Investment in and for sector
Provision of supportive policies, subsidies and incentives
Linkages and Value Chain Availability of Quality raw material
Availability of necessary ecosystem (climate/ soil condition/
distribution system)
Livelihood generated through forest produce
Availability of potential market platforms
Connectivity and network for purchase and sale
Existence of FPOs/SHG's in district for the Business
Scope for market linkage and growth
Availability of livestock/ bovine support services (feed, health care,
sheds)
Proximity and Ease of market and domestic demand
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infrastructure Status of availability of resources like Irrigation Infrastructure, water
Raising Capital Availability of shops for raw material and mechanical service centers
in the district
Royalty generated out of major and minor mining in the district
Skilling & Capacity Building Scope for financial and educational inputs specific to sector
Development
Effectiveness of Institutional Support (schemes and financial support)
from Agriculture Dept.
Secondary Sector
Enabler Sub-enabler
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Availability to cheap land, water and electricity
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Raising Capital Scope for Foreign funding
Quality Assessment
Tertiary Sector
Enabler Sub-enabler
Cost of doing Business Availability of affordable land, labour, water, power and
resources
Creating Infrastructure (buildings, roads, machinery, capital
assets) for sustainable business
30
Ease of doing Business Government policy amendments, subsidies and incentives
Logistics and Infrastructure Availability of Godowns, cold storages, dry storage spaces
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Construction of ports, cargos and trading infrastructure
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14 Goal 14 – Life Below Water
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