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Kanpur Philosophers
ISSN 2348-8301
International Journal of Humanities, Law and Social Sciences
Published Biannually by New Archaeological
&
Genological Society
Kanpur India
Vol IX, Issue XII, December 2022
76
PEOPLE’S PARTICIPATION IN RURAL DEVELOPMENT: A STUDY WITH SPECIAL
REFERENCE TO PULWAMA DISTRICT OF JAMMU AND KASHMIR
Dr. Younis Ahmad Sheikh
Assistant Professor, Department of Political Science, Kargil Campus, University of Ladakh
Dr. Roohullah Sadiq
Lecturer, Political Science, Government Degree College Bandipora
Abstract
India, since last seven decades has contributed a lot to develop the rural areas by adopting many
schemes in order to improve the living standard of rural masses. In Jammu and Kashmir Rural
Development Department, over the period, has assumed a key position in the socio-economic
development of rural areas in view of magnitude of funding provided by the government of India and
the state government under different schemes. But still the issues like unemployment, poverty,
malnutrition, illiteracy, gender inequality etc prevails. The reason behind this all is the lack of people’s
participation in formulation, implementation, and monitoring of these programmes at the grassroots
level. Against this backdrop, the study is designed to investigate the people’s participation as well as
to fully understand their attitude and perceptions towards rural development. The design of the study
is exploratory in nature. Beneficiaries of rural development programmes remained the unit of
observation. For the data collection, the tools to be used for obtaining information was interview
schedule, emerging trends were crosschecked with respect to facts, point of view, perception and
attitude towards rural development and people’s participation.
Introduction
Kashmir is known to be the crown of India. It is often termed as the “Paradise on earth. All
the beauties of Kashmir have been the cause of its outer intervention in cause of her history. Currently
one third of Kashmir is under the occupation of Pakistan and the rest constitutes an integral part of
Indian Union. Now it became an issue, called Kashmir issue between of the two countries. As per the
census 2011, the state of Jammu and Kashmir is divided into three divisions; Jammu, Kashmir and
Ladakh, comprising 22 districts. Jammu and Kashmir region having 10 districts each and Ladakh
division having two districts. Prior to 2001 census there were 14 districts in the state. Kishtwar,
Ramban, Reasi, Samba, Bandipora, Gandarbal, Kulgam and Shopian are newly formed districts
(Census 2011). 31 October 2019, Jammu and Kashmir ceased to be a state and two new Union
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Vol IX, Issue XII, December 2022
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Territories were formed -Union Territory of J&K and UT of Ladakh. India, since last seven decades
has contributed a lot to develop the rural areas by adopting many schemes in order to improve the
living standard of rural masses. In Jammu and Kashmir Rural Development Department, over the
period, has assumed a key position in the socio-economic development of rural areas in view of
magnitude of funding provided by the government of India and the state government under different
schemes. But still the issues like unemployment, poverty, malnutrition, illiteracy, gender inequality
etc Prevails. The reason behind this all is the lack of people’s participation in formulation,
implementation, and monitoring of these programmes at the grassroots level. Thus, there is the need
of more involvement of people in developmental activities. The overall development of rural areas is
not possible unless and until people will not participate in the rural developmental activities. So, the
people’s involvement is very necessary. For successful implementation of rural development
programmes and to make government more democratic and legitimate peoples participation is utmost
important.
Objective
1. To find out the people’s participation, perception and attitude towards rural development.
2. To provide valuable suggestions for proper implementation of Rural Development
Programmes.
Methodology:
The study is conducted in the Pulwama district of Jammu and Kashmir. The design of the study is
exploratory in nature and the major concern of the study was to investigate the people’s participation
as well as to fully understand their attitude and perceptions towards rural development. Data was
collected from both primarily as well as secondary sources. Beneficiaries of rural development
programmes remained the unit of observation. In the Pulwama district of Jammu and Kashmir, there
are 5 blocks and five villages were chosen purposively for study from each block. From each selected
village, 5 Beneficiaries of rural development were selected randomly for intensive study. Thus, from
25 selected villages of 5 blocks the sample of 125 beneficiaries were taken. For the data collection, the
tools to be used for obtaining information was interview schedule, emerging trends were crosschecked
with respect to facts, point of view, perception and attitude towards implementation of various rural
development programmes and people’s participation.
Historical Backdrop of the State
The state of Jammu and Kashmir is one of the crowns of Asia. It is often termed as the “Paradise
on earth”, was until the partition, the largest among the princely states (Khan, 2011). Historically the
term Kashmir was used to refer to the valley lying between the Great Himalayas and the Pirpanjal
range. Today Kashmir refers to a larger area that includes the Indian administrated regions of Kashmir
valley, Jammu and Ladakh, the Pakistani administrated regions of northern areas and Azad Kashmir,
and the Chinese administrated regions of Aksai Chin. The state of J&K in total covering an area of
2,22,236 sq.kms, of which 78,114 sq.kms, are under illegal occupation of Pakistan and 37,555 sq.kms
under china. In addition to this, 5180 sq.kms of J&K was illegally ceded to China by Pakistan under
the March 1963 Sino-Pakistan Boundary agreement. The state shares 221km international boundary
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78
with Pakistan in Jammu region and 365 km with China in its Ladakh sector. The Line of Control
(LOC) which divides the Indian and Pakistani parts of the state is 1001km long (Jammu 205km, Valley
460km., and Ladakh/ Siachin area 336kms (Sadiq, 2016).
Kashmir is noted for its beauty and boundary. All the beauties of Kashmir have also been the
cause of its outer intervention in cause of her history. The Tartars and other Hindu Princes, the
Mughals, the Durranies of Kabul, The Sikhs and finally Maharaja Gulab Singh, the Dogra have
successfully subjugated the beauties of the land. Finally the state of J&K was created in 1846, when
British East India Company handed over it to Maharaja Gulab Singh in lieu of 75 lac rupees under the
Treaty of Amritsar. The treaty was a turning point in the history of J&K as its social, economic and
political spheres changed drastically and abruptly.
Dogra rulers always considered the valley of Kashmir as a purchased state and they treated
with Muslims differently as compared to previous rulers. During their region the Muslims were
discriminated both in education as well as in economic field. Much has taken place in the socio-
political life of the people of J&K state before the freedom struggle took its birth in July 1931. This
movement of Kashmir in the first instance took the form of demand for a better life in their own
country. Sheikh Mohammad Abdullah then founded in Oct., 1937, the All Jammu and Kashmir
Muslim Conference, which then changed into the Jammu and Kashmir National Conference in June
10, 1939.
The most important event was the historical announcement of India’s Governor General Lord
Mountbatten, with regard to the date of British withdrawal from India on August 15, 1947, conceded
the league demand for Pakistan and provided for the partition of Punjab and Bengal. After getting
independence in 1947 the ruler of the princely state of Jammu and Kashmir Maharaja Hari Singh,
refused to accede to either India or Pakistan. When Pakistan invaded Kashmir in 1947, the ruler of
Kashmir sought the help of the India government. The Government of India informed him that the
Indian troops could not entre the state, unless he signed the ‘Instrument of Accession’. Maharaja Hari
Singh signed the ‘Instrument of Accession’ on 26 October 1947. On 27 October 1947, the Indian
troops entered Kashmir and checked the Pakistan aggression and drove away the infiltrators. Thus,
Kashmir becomes an integral part of India but Pakistan disputed the accession of Kashmir to Indian
union. A UN ceasefire on 1January 1949 saw the end of fighting and created the first Line of Control.
As a result, one third of Kashmir was under the occupation of Pakistan and the rest constitutes an
integral part of Indian Union. Now it became an issue, called Kashmir issue between the two countries.
Population
As per the census 2011, the state of Jammu and Kashmir is divided into three divisions; Jammu,
Kashmir and Ladakh, comprising 22 districts. Jammu and Kashmir region having 10 districts each and
Ladakh division having two districts. Prior to 2001 census there were 14 districts in the state. Kishtwar,
Ramban, Reasi, Samba, Bandipora, Gandarbal, Kulgam and Shopian are newly formed districts
(Census 2011).
According to census 2011 the population size of J&K is 12,541302 i.e., 1.035 percent of total
India’s population (1210569573), out of which population size of male is 6640662 i.e. 52 percent and
female is 5900640i.e. 47.04 percent. Rural population is 9108060 i.e. 72.6 percent and Urban
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79
population is 3433242 i.e. 27.3 percent.
As per census 2001, the population size of J&K state was 100699107 which shows a gradual
increase in population in 2011 census. Table 3.1 shows population growth in J&K from 1901-2011.
Table 3.1
Population Growth in Jammu and Kashmir 1901- 2011
Year Population Absolute
Change
J&K India Average Annual
Growth Rate
1901 2139362 0 0 0 0
1911 2292535 153173 7.16 5.75 0.69
1921 2424359 131824 5.75 -0.31 0.56
1931 2670208 245849 10.14 11.00 0.97
1941 2946728 276520 10.36 14.22 0.99
1951# 3253852 307124 10.42 13.31 1.00
1961 3560976 307124 9.44 21.64 0.91
1971 4616632 1055656 29.65 24.80 2.63
1981 5987389 1370757 29.69 24.66 2.63
1991* 7718700
1731311 28.92 23.86 2.57
2001 10069917 2351217 30.46 21.54 2.69
2011 12,541302 2471385 24.54 17.64 5.65
Source: Census of India, J&K, 2011
# There was no census in1951. The figure given by the census department is the authentic mean of
1941 and 1961 population.
* The 1991 census was not held in J&K. The population of India includes the projected population of
J&K as on 1.3.1991 made by the Standing Committee of Experts on Population Projections (Oct.
1989).
Rural Development and People’s Participation in J&K
Since the beginning of First Five Year Plan in 1951-52, the centre and state governments have
launched various rural development programmes from time to time. Some of the earlier centrally-
sponsored Schemes (CSS) now got merged with other schemes. These are as:
Community Development Programme (CDP)
Intensive Agriculture District Programme (IADP)
Operation Flood (OF) programme launched in 1970
Integrated Rural Development Programme (IRDP)
Minimum Need Programme (MNP)
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Rural Development in J&K- An Overview
The main aim of Rural development programmes are to reduce the number of people living
below poverty line, to provide them better livelihood opportunities, to provide better health, education
and infrastructure facilities through different schemes.
In Jammu and Kashmir Rural Development Department, over the period, has assumed a key
position in the socio-economic development of rural areas in view of magnitude of funding provided
by the government of India and the state government under schemes. The rural development aims at
developing the rural economy and upliftment of rural masses. It has become an effective tool for
reducing the number of people living below poverty line and also narrowed down the income
inequalities between haves and the have-nots in rural sector (Govt. of J&K, 2015).
Despite of huge allocations made by Government through State and Centrally Sponsored
Schemes in Jammu and Kashmir, there is a general feeling that the development in basic infrastructure
and improvement in amenities/facilities has been quite inadequate especially in rural areas of the State.
Further, the standard of living of the people has not improved much and the employment opportunities
for the youth are still limited and inadequate.
Administrative Setup
There are two Directorates of Rural Development in the state, one for Kashmir and other for
Jammu Division. The Department of Rural Development is headed by Minister for Rural Development
and Minister of State for Rural Development who is assisted by Secretary to Government Rural
Development Department who is of the rank of IAS. Below him there are three Additional Secretaries
of the rank of senior KAS officers and two Under Secretaries.
At the provincial level, the Directorate is headed by the Director Rural Development who is a
major head of the Department in terms of Jammu and Kashmir Book of financial powers. The post is
held by senior KAS/IAS officers. He exercises the administrative and the financial control over the
whole of the province and is assisted by Joint Director, (Planning) Deputy Director (Administration),
District Panchayat Officer (Publicity) Accounts Officer and other ministerial staff to carry out the day
to day working in the Directorate.
The Joint Director, (Planning) deals with the Planning process in respect of formulation of the
plans at the provincial level and their submission to the Govt. for approval of the Planning and
Development Department. He monitors the schemes being implemented in the field and provides
necessary assistance to the Director Rural Development in effective implementation of the schemes.
The Deputy Director (Administration) provides assistance to the Director, Rural Development
in all the Administrative matters. The assistance is provided on the issues pertaining to establishment,
legal matters and also matters relating to disciplinary proceedings, complaints and other issues related
to the Administration. He is also designated as the Departmental Vigilance Officer of the Department.
The District Panchayat Officer (Publicity) Assists Director, Rural Development in matters
relating to the publicity of schemes and highlighting achievements. The Block Development Officer
(Headquarter) is the incharge of the Cell established for the disposal of grievances of disabled persons.
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The Accounts Officer provides assistance to the Director, Rural Development in the field of
financial/accounts matters. He is also the drawing and disbursing officer of the Directorate. He also
formulates the budget and monitors the Non Plan expenditure.
At the District level, following officers are under the administrative control of the directorate
of Rural Development.
1. Assistant Commissioner Development
2. Assistant Project, Director DRDA
3. Executive Engineer, REW
4. District Panchayat Officers
At the Block level, there is a Block Development Officer who is assisted by Block Planning
Officer, Junior Engineers and other field functionaries like Panchayat Inspectors, V.L.Ws, Mukhi
Savikas, Gram Savikas, and MPWs etc. Assistant Commissioner Development releases the funds to
the Block Development Officers for implementation of various works approved under the scheme by
the District Development Boards/other competent authorities. Assistant Commissioner Development
consolidates the District Plan on the basis of inputs received from the Block Development Officers.
The District Plan compiled by him is submitted to the Directorate of Rural Development for technical
vetting before it is considered by the District Development Board for approval in its meeting. ACD is
competent to accord Administrative Approval of the works involving the estimated cost upto Rs.5.00
lacks in accordance with Govt. Order No.300-Agri of 1996 dated 06-06-1996 (DRD, 2016).
People’s Participation in Rural Development in Jammu and Kashmir
As in any company or in any factory, the management is not possible without its employees.
Development of a country particularly development of rural areas is not possible without the people’s
participation. “Participation is a central feature of such endogenous development, in terms of both
what it is seeking to achieve and how that is achieved. As a means to an end, participation involves
harnessing local people’s resources and support as an input into a programme on the assumption that
this will improve its effectiveness and efficiency. The measures taken are then more likely to address
local needs and to be better adapted to local circumstances, and the external resources applied can
better complement and help mobilise local resources. The efficiency of the participation will be judged
by the material outcomes of the programme (Lawe, 1998).
Participation receives utmost consideration in international development discourse. The
‘participation’ of the ‘local population’, in developmental activities is regarded as the key to ensure
the efficiency and sustainability of developmental projects. Their participation is also supposed to
strengthen self-help capacities, the civil society, and to promote democratisation. Participation is often
taken as a pre-conceived objective in developmental studies (Kuhn, 1998).
Jammu and Kashmir government is committed to implement different rural development
programmes and to increase people’s participation in developmental activities. Large number of rural
development schemes are implemented in the state of Jammu and Kashmir but the harsh winter and
unrest in the state became hindrances in implementation process and people’s participation also did
not remain up to the mark. However, the government of J&K leave no stone unturned in implementing
the Poverty Alleviation Programmes and other Socio-Economic developmental schemes for the
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upliftment of rural masses and for strengthening the panchayati raj institutions which suffer due to
militancy in the recent past.
Participation is considered a voluntary contribution by the people in one or another of the public
programmes supposed to contribute to national development, but the people are not expected to take
part in shaping the programme or criticizing its contents. With regard to rural development,
participation includes people's involvement in decision-making processes, in implementing
programmes, their sharing in the benefits of development programmes and their involvement in efforts
to evaluate such programmes (Parfitt, 2004). Towards the end of 1950s, before the Panchayati Raj
system could be introduced in the whole country, the Jammu and Kashmir state took the lead by
passing the Jammu and Kashmir Village Panchayat Act of 1958 and repealing the earlier Acts and
envisaged a two-tier Panchayati Raj system - Gram Panchayat at the village level and Block Panchayat
Board at block level. The Act empowered the state government to establish by notification a panchayat
in every village or group of villages and to define territorial jurisdiction thereof (Prakash and Ghulam
Mohammad Shah, 2001)
In 1990s the militancy was at its peak in the state of Jammu and Kashmir. The awareness and
participation of people towards rural development was very nominal. The election of panchayats were
not held regularity, people were not in a position to participate in developmental activities. The success
of the panchayats in Kashmir has intrinsic merit and long-term ramifications for our unity. J&K’s
panchayati raj system has strong bridge value, being the only issue of substance that links the state’s
three regions viz. Jammu, Kashmir and Ladakh, otherwise divided by language, religion,
topography, food, dress and politics. Participation of all is necessary, whether directly or indirectly
(through representatives), to make the system more accountable and transparent. The All Parties
Hurriyat Conference (APHC), a significant group in the valley, has repeatedly articulated that
elections (regardless of whether they are free and fair) have no meaning until the ‘final
settlement’ of the ‘Kashmir dispute’ has been worked out. Despite inhospitable security
environment and desperate attempts from many to thwart the attempts of the Government to hold
Panchayat elections, the State Government succeeded in conducting Panchayat elections during the
first quarter of 2001 after a very long gap of 22 years. The 2001 elections were held in a situation
when the armed militancy was still a reality in Jammu and Kashmir. In the face of the call for
boycott issued by the militants, many Constituencies were declared vacant as no contestant came
forward to fill in the nomination papers. There were districts like Badgam, where the actual polling
did not take place. Invariably in every district of Kashmir, the number of candidates per district was
less than the total number of constituencies. Therefore, a large number of constituencies were left
vacant.
In 2004 The Jammu and Kashmir Panchayati Raj Act of 1989 was amended to provide for
reservations of seats for scheduled castes, scheduled tribes and women, and the 2011 amendments
brought it in line with those parts of the 73rd Amendment that relate to the establishment of a
state election commission. In 2011 panchayat elections were held people participated in large number
which showed the overall enthusiasm of the people of J&K. Rather the elections were perceived
as an opportunity to return to the normal life in villages by allowing duly elected representatives
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of their choice. Around 80% voter turnout was recorded. People slowly started participating in rural
developmental activities. However, unrest in the region erupted again during the Burhan Wani’s time
(HM Chief) people again stopped participating in panchayat elections because of the threats received
by different groups of militants. Many of the panchayat representatives were killed. People were
engaged in stone pelting with the security forces. Protests became a routine, people who were
suspected to be engaged in stone pelting were arrested. According to scholars, Indian forces also have
committed many human rights abuses and acts of terror against the Kashmiri civilian population,
including extrajudicial killing, rape, torture, and enforced disappearances. So, people of J&K didn’t
get time to settle down because of the continuous unrest. Finally, in 2018 panchayat elections were
held and people participated in large number throughout the state. People of J&K are slowly
participating in rural developmental activities and the rural development department of J&K has
become an effective tool for reducing the number of people living below poverty line and also
narrowed down the income inequalities between haves and the have-nots in rural sector.
Findings
The responses has been recorded on three major parameters viz Gram Sabha and its role in rural
development, Gram panchayat and its role in rural development and overall assessment of rural
development programmes and people’s participation.
1. Majority of respondents are aware about the functions and responsibilities of gram Sabha and
gives extraordinary weightage to the rural developments programmes but they have never
attended gram Sabha meetings which is not a positive sign.
2. Study revealed that beneficiaries are informed through notice which they pointed out as a best
method to inform the people.
3. Study revealed that decisions about the schemes are taken on majority basis but the level of
participation of gram Sabha members in rural development programmes is by and large lower.
4. At least two third of respondents agreed that gram panchayat did not implement the
recommendations of the gram Sabha which is a negative sign
5. An overwhelming majority of respondents feel that panchayat representatives discharge their
responsibility properly and are playing an important role in implementing the rural
development programmes. However, one fourth of the respondents are against to it and feel
that due to groupism in village and non-cooperation of government officials and employees
panchayat representatives are not able to discharge their responsibility properly.
6. An overwhelming majority of respondents feel that the poor, unemployed and school dropouts
are the prominent category that participated in rural development programmes.
7. The level of people’s participation in the use of development resources of gram panchayat is
lower which is claimed by the majority of respondents.
8. Besides this majority of respondents argued that there are threats or hindrances like terrorism
and corruption which keeps people away from participating in local governance and which
hamper the implementation process of rural development programmes.
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Suggestions
In context of the findings of the present study and researcher’s interaction with respondents and other
people during group discussion, present study find it proper to mention few suggestions to the future
research scholars interested to carry on their research studies pertaining to this vary area.
1. People’s active cooperation and large scale participation at grassroots level, particularly in
planning, implementation and evaluation of the programme should be made paramount and
mandatory.
2. Level of awareness among panchayat raj representatives and gram Sabha members is quite
low. It is necessary to organise training and awareness programmes in order to make people
up-to-date about rural development programmes.
3. There is a need to boost the cooperation between different government departments,
panchayat, people and other agencies connected with the implementation of the rural
development programme.
4. Selection of beneficiaries can be done by the Government officials in collaboration with
Non-Governmental Organisations (NGOs), local leaders, Self-Help Groups (SHGs) etc.
The same may be placed before the gram sabha for perusal and approval.
5. Benefits should be given to the deserving candidates and should not be any type of
favouritism or back door entries.
6. The schemes should be discussed with the people so that the people may avail the benefits
properly.
Conclusion
To sum up it can be said that rural development is the main issue to concern not only in India
but throughout the world. Thus, the significance of rural development for the welfare of the mankind
needs no overemphasis. Rural development aims at finding the way to improve the rural lives with
active participation of the rural people themselves so as to meet the required need of the rural areas.
In a democratic country like India, government has provided full opportunities to the local people to
participate in the developmental activities and in the decision making process through Panchayati raj
system. Government of India is continuously implementing different schemes in every state of India
and J&K is not an exception. Large number of rural development programmes is implemented in the
Pulwama district of Jammu and Kashmir and but people’s involvement in these schemes are not up to
the mark.
Panchayat institutions re-emerged after a long gap in the state of J&K. It seems that these
institutions are playing a vital role in developmental activities of the village but the panchayat
representatives are facing various hurdles and challenges like militancy, lack of local support,
corruption, etc. which keeps people away from participating in local governance. Gram Sabha
meetings are out of imagination of the people there is a clear cut communication gap between
panchayat representatives and the gram Sabha members.
The state is the chief instrument of rural development activities. Serious efforts are being made
now to lift up the poor people’s spirit. The government alone cannot do this through its bureaucracy.
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Without the active involvement of the rural poor, they can neither attain all round development nor
stabilize their progress. Much focus should be given to the gram Sabha meetings, which must be held
on regular basis. There must have transparency and accountability in developmental works and in
selecting beneficiaries for different schemes. An adequate coordination system and a systematic
approach will enhance the productivity of the programmes, and ensure accurate household survey,
analysis of local resources, identification of viable schemes and proper identification of the poor
households.
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