Twenty-five years after its launch, the Pradhan Mantri Gram Sadak Yojana (PMGSY) stands as one of independent India’s most consequential rural infrastructure programmes. Conceived at a time when physical isolation defined village life, it fundamentally altered how rural India connects with markets, services, and opportunities. Yet, as the programme enters its next phase, the challenge is no longer expansion alone, but durability, accountability, and long-term impact.
Why rural roads were a development bottleneck
When PMGSY was launched in December 2000 under the leadership of Atal Bihari Vajpayee, nearly half of India’s villages lacked all-weather road connectivity. With over 70 per cent of the population living in rural areas, this meant hundreds of millions were effectively cut off from schools, hospitals, markets, and administrative services.
The absence of roads was not merely an infrastructure gap; it was a structural constraint. Poor connectivity raised transaction costs, limited mobility, reduced access to non-farm jobs, and reinforced intergenerational poverty. PMGSY was designed as a direct intervention to break this isolation.
The design and phased rollout of PMGSY
The programme adopted a phased approach. In its initial stages, it prioritised larger habitations—first villages with populations above 1,000, then those above 500. Recognising regional inequities, tribal, hilly, and difficult areas were allowed lower population thresholds from the outset.
Now in its third phase, PMGSY has shifted focus from mere expansion to last-mile connectivity, upgrading, and repairing roads built earlier. As of December 2024, around 95 per cent of Phase I and 97 per cent of Phase II works had been completed, with active construction continuing in roughly 25,000 villages.
With cumulative spending of about ₹3.96 lakh crore, PMGSY ranks among the most expensive centrally sponsored schemes in India’s history.
How roads reshaped the rural economy
Evidence suggests that the economic returns have been substantial. Studies consistently show that villages connected under PMGSY experienced growth in non-agricultural employment, greater adoption of modern agricultural practices, improved market access, and stronger performance of informal firms and MSMEs.
Better roads reduced price dispersion between villages and towns, improved food availability, and encouraged more diverse and nutritious diets. These outcomes highlight how connectivity functions as an economic multiplier rather than a standalone asset.
Social outcomes beyond income gains
The impact of PMGSY has extended well beyond markets. Improved road access has strengthened healthcare utilisation, especially for women, by reducing travel time and uncertainty. Educational outcomes have also benefited—school enrolment among girls has risen, mobility constraints have eased, and exposure to external opportunities has contributed to gradual shifts in gender norms.
These changes point to deeper social transformations, where infrastructure alters behaviour, aspirations, and long-term human capital formation.
Persistent implementation and quality concerns
Despite its achievements, PMGSY has been plagued by chronic weaknesses. Implementation delays, substandard construction, and weak monitoring have undermined outcomes in several regions. Independent assessments have found instances where roads reported as “completed” either did not exist or were unusable.
Rapid deterioration due to poor materials and inadequate maintenance remains a major concern. Allegations of political interference in tendering and contract allocation further raise questions about competition, transparency, and value for money.
The maintenance challenge: from creation to care
The central issue now confronting PMGSY is maintenance. Roads are not one-time achievements. Without regular upkeep, they deteriorate quickly, especially under monsoon conditions and heavy use.
A sustainable rural road network requires:
- Dedicated and predictable funding for maintenance.
- Clear institutional responsibility for inspections and repairs.
- Integration of maintenance planning into the original project design.
Treating PMGSY as a “build-and-forget” programme risks eroding the very gains it created.
Accountability and the role of technology
Strengthening oversight is equally critical. From tendering to execution, each stage requires tighter monitoring. Digital tools—such as geotagged photographs, GPS-based tracking, and real-time dashboards—can help ensure that roads exist and function on the ground, not merely in official records.
Community-based reporting mechanisms can further improve accountability by giving local users a direct voice in monitoring quality and usability.
Rethinking how success is measured
PMGSY’s success can no longer be judged only by kilometres built or funds spent. More meaningful metrics are needed:
- Are roads usable year-round, including during monsoons?
- Can children reach schools consistently?
- Are farmers able to transport produce reliably and on time?
Shifting evaluation from outputs to outcomes is essential for the programme’s next phase.
What to note for Prelims?
- Launch year and objectives of PMGSY.
- Phased structure and population thresholds.
- Current focus on last-mile connectivity and upgradation.
- Role of rural roads in economic and social development.
What to note for Mains?
- PMGSY as an example of infrastructure-led rural transformation.
- Economic and social spillovers of rural connectivity.
- Challenges of maintenance, governance, and quality control.
- Need to shift from expansion-focused to sustainability-focused infrastructure policy.
PMGSY has helped weave India’s villages into the national fabric, giving millions a genuine chance at mobility and inclusion. Whether the next 25 years deepen these gains will depend on whether policy moves decisively from building roads to sustaining them.
