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Peer-Reviewed, Multidisciplinary & Multilingual Journal
ISSN: 2321-1520 E-ISSN: 2583-3537
Volume 2 Issue 2
July-December 2023
Page 89
http://vidyajournal.org
ROLE OF PANCHAYATI RAJ INSTITUTIONS
TOWARDS RURAL DEVELOPMENT: A STUDY
WITH SPECIAL REFERENCE TO PULWAMA
DISTRICT OF JAMMU AND KASHMIR
Dr. Younis Ahmad Sheikh
Assistant Professor
Kargil Campus University of Ladakh
unisrashid@ymail.com
ABSTRACT
Lot of rural development programmes were carried out by panchayat raj institutions in the Union Territory of
Jammu and Kashmir from time to time in order to develop the rural area. The Government of Jammu and
Kashmir assures people’s participation in developmental activities and in the local governance institutions with
adequate gender, class and caste representation as per the need of the amendment package. But, the level of
people’s participation in developmental activities at grassroots level seems to be very low. Moreover, gram
panchayats are not adequately accountable to gram Sabha. The idea of participation, as an important part of
panchayat raj, has rarely been observed in practice. Against this backdrop, the study is designed to investigate
the panchayat representatives in order to understand their role towards implementation of various rural
development programmes. An attempt has also been made to fully understand the role of Gram Sabha in
panchayati raj system and rural development. A structured interview schedule was administrated for this
purpose. Besides, informal discussions and field observations also proved to be helpful in providing inputs to
strengthen the arguments in analysis.
Keywords: Panchayat, Gram Sabha, Rural Development Programmes, Participation
INTRODUCTION
The Government of India has made great efforts since independence to meet the needs and expectations of the
people. With the help of Rural Development Department and Panchayat Raj Institutions, special efforts have
been made to solve the multifaceted problems of rural areas in rural areas. In time, the 73rd Amendment Act
was passed to restore panchayat institutions. Panchayat raj institutions have implemented several rural
development programs from time to time for rural development. The state ensures people's participation in
development activities and municipal government institutions with appropriate gender, class and caste
representation in the package of changes as needed. However, accountability and grassroots governance remain
an important issue. Thanks to the very informal social structure at the local level, transparency is ensured to a
significant extent. Basic management automatically becomes directly responsive to the people because the
routine activities of local institutions are visible and questionable. Efforts were made to develop rural life and
the standard of living of the people with the help of various rural development programs. But the level of
people's participation in people's development activities is very low. Moreover, the gram panchayats are not
sufficiently accountable to the gram Sabha. The Gram Sabha is not aware of the functioning of the gram
panchayat, which is the main governing body. People do not have enough knowledge about different systems,
which is a major problem. The idea of participation as an essential part of panchayat raj has rarely been realized
in practice. Against this backdrop, the study aims to explore the participation of Gram Sabha members and
panchayat representatives and fully understand their role and perceptions in rural development. For this purpose,
a structured interview schedule was prepared. In addition, informal discussions and field observations proved to
be a useful input to strengthen the arguments of the analysis. In 2019, Article 370 was repealed and Jammu and
Kashmir was stripped of its statehood. The study was conducted in 2016-2017 before Jammu and Kashmir
became a Union State.
OBJECTIVES
1. To examine the role of Panchayat Raj Institutions in implementing the rural development programmes.
2. To find out the perception and participation of panchayat raj representatives towards rural
development.
3. To find out the role of Gram Sabha in panchayati raj system and rural development.
Peer-Reviewed, Multidisciplinary & Multilingual Journal
ISSN: 2321-1520 E-ISSN: 2583-3537
Volume 2 Issue 2
July-December 2023
Page 90
http://vidyajournal.org
METHODOLOGY
Panchayat representatives 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 Panchayat Raj Representatives including 1 Sarpanch were selected randomly for intensive study,
Thus, from 25 selected villages of 5 blocks the sample of 125 Panchayat Raj Representatives 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. On the basis of collected data, code books were prepared, all
the interview schedules were coded systematically. Coded schedules were entered in the computer using
Statistical Package for the Social Science (SPSS). All suitable statistical tools were used for analysis and
interpretation of data. The data was then scrutinized and analysed as per objectives of the study.
PROFILE OF THE DISTRICT
Pulwama (known as Pnwngam in antiquity, and later as Pulgam is one of the districts in the Indian State of
Jammu and Kashmir. It was carved out from District Anantnag as a new district in 1979. The District is located
at an altitude of 1500 to 2000 meters above mean Sea level. The District Headquarter Pulwama is about 32 Kms
away from Srinagar city. The Boundary Districts of Pulwama are Anantnag, Kulgam, Shopian, Budgam &
Srinagar (Pulwama, 2022).
District Map of Pulwama
Demography
District Pulwama came into being in existence in July-1979 and was carved out from District Anantnag in the
larger interests of maintenance of law and order, closer supervision, more effective control and above all to
ensure balanced development of the area. Pulwama district comprised of 331 villages and 149 Panchayats,
which are grouped in four (4) Tehsils viz. Pulwama, Tral, Pampore and Awantipura. It has five development
blocks namely Pulwama, Tral, Pampore, Kakapora and Keller (Pulwama, 02/01/2016).
According to census 2011 Pulwama district has a population of 570,060. The district has a population density of
598 inhabitants per square kilometre (1,550/sq mi). Its population growth rate over the decade 2001-2011 was
29.18%. Pulwama has a sex ratio of 913 females for every 1000 males, lower than the national average of 940,
and a literacy rate of 65% slightly higher than the national average of 64.3% (Wikipedia,02/01/2016).
Administrative Set up
S. No
Constituencies
Tehsils(No.of Villages)
Blocks (No. of
Panchayat Halqas)
1
Pulwama
Pulwama (191)
Pulwama (45)
Peer-Reviewed, Multidisciplinary & Multilingual Journal
ISSN: 2321-1520 E-ISSN: 2583-3537
Volume 2 Issue 2
July-December 2023
Page 91
http://vidyajournal.org
2
Tral
Tral (66)
Tral (60)
3
Pampore
Pampore (26)
Pampore (23)
4
Rajpora
Awantipura (46)
Kakapora (29)
5
Keller (29)
Gram Sabha and its Role in Rural Development Programmes
The Gram Sabha is the cornerstone of the entire scheme of democratic decentralisation in India initiated through
the 73rd Amendment to the Constitution. Hence, the success or failure of the Panchayati Raj system largely
depends on how powerful and effective the gram sabha is at the decentralised level to fulfil the desires and
inspirations of the people. In Jammu and Kashmir, panchayat raj institutions re-established after a long gap and
still are facing lot of challenges however; special efforts have been made to empower the PRI’s.
Table 1.1
Knowledge about Gram Sabha
Responses
Frequency
Per cent
Yes
104
83.2
No
21
16.8
Total
125
100.0
Source: Primary Data
Table 1.1 shows that 83.2 per cent of panchayat representatives know about gram sabha and 16.8 per cent did
not have knowledge about gram sabha. Data clearly shows that a huge majority of representatives have
knowledge about gram sabha however, it is a negative sign that a sizable number of representatives did not
know about gram sabha which is the main governing body of panchayat.
Table 1.2
Gram Sabha Meetings Attended in Panchayat
Meetings Attended
Frequency
Per cent
No
111
88.8
Once
11
8.8
Two times
1
.8
Three times
2
1.6
Total
125
100.0
Source: Primary Data
Table 1.2 describes the gram sabha meeting attended by the representatives. 88.8 per cent representatives are of
the opinion that they did not attend a single meeting of gram sabha. 8.8 per cent revealed that they attended
once, 0.8 per cent attended twice and 1.6 per cent attended thrice. Above analysis clearly shows that no gram
sabha meeting took place in panchayats as majority of representatives pointed out that they have not attended a
single meeting of gram sabha which is not a positive sign.
Table 1.3
Role as a Member of Gram Sabha in Rural Development Programmes
Role
Frequency
Per cent
Discussion on problems of village
63
50.4
Proposal on Construction works
51
40.8
No role
11
8.8
Total
125
100.0
Source: Primary Data
Table 1.3 illustrates the role of gram sabha members in rural development programmes. 50.4 per cent
of representatives pointed out that as a member of gram sabha their role is to discussion on problems of village.
40.8 per cent of representatives are of the view that proposal of construction works is their main role as a
member of gram sabha in rural development programmes. Whereas 8.8 per cent reveal that they do not have any
role. It clearly shows that discussion on problems of village and proposal of construction works is the main role
of panchayat representatives as a member of gram sabha in rural development programmes.
Table 1.4
Level of Participation of Gram Sabha Members in Rural Development Programmes
Level of Participation
Frequency
Per cent
Higher
23
18.4
Medium
48
38.4
Lower
54
43.2
Total
125
100.0
Peer-Reviewed, Multidisciplinary & Multilingual Journal
ISSN: 2321-1520 E-ISSN: 2583-3537
Volume 2 Issue 2
July-December 2023
Page 92
http://vidyajournal.org
Source: Primary Data
Table 1.4 explains the level of participation of gram sabha members in rural development programmes. The
level of participation has been traced at three levels viz., higher, level and medium. A varied kind of responses
is coming out. 18.4 per cent respondents are of the opinion that the level of participation of gram sabha members
in rural development programmes is higher. 38.4 per cent respondents feel that level of participation is medium
and 43.2 per cent respondents pointed out that the level of participation is lower. Thus, it is clear from the above
analysis that the level of participation of gram sabha members in rural development programmes is lower or
medium.
Table 1.5
Basis on which Decisions are Taken in Gram Sabha related to Rural Development Programmes
Decisions
Frequency
Per cent
On majority bases
110
88.0
According to Sarpanch
10
8.0
Do not know
5
4.0
Total
125
100.0
Source: Primary Data
Table 1.5 explains the basis on which decisions are taken in gram Sabha related to rural development
programmes. 88.0 per cent respondents pointed out that decisions are taken on majority basis, 8.0 per cent
respondents feel that decisions are taken according to sarpanch in gram Sabha related to rural development
programmes. Thus, it is clear from above analysis that decisions are taken on majority basis in gram Sabha
related to rural development programmes
Halqa Panchayat and its Role in Rural Development Programmes
Gram Panchayat is the most important tier of the panchayat raj system. Actual implementation of all
policies and programmes takes place at the gram panchayat level and the selected representatives also works in
various capacities in gram panchayat. In J&K there is a Halqa Panchayat as a crucial tier at the village level for
the entire process of democratic decentralisation by giving it wide ranging functions.
Table 1.6
Elected Position in the Halqa Panchayat
Position
Frequency
Per cent
President
27
21.6
Vice president
23
18.4
Panch
75
60.0
Total
125
100.0
Source: Primary Data
Table 1.6 explains the elected position in halqa panchayat. Data shows that 21.6 per cent respondents are
presidents, 18.4 per cent respondents are vice presidents and 60.0 per cent respondents are panchs. This shows
that majority of respondents are panchs.
Table 1.7
Been a Panchayat Member Earlier
Responses
Frequency
Per cent
Yes
15
12.0
No
110
88.0
Total
125
100.0
If yes, how many times did you contest for Panchayat election
Twice
15
12.0
Total
15
12.0
Source: Primary Data
Table 1.7 depicts the information that 88.0 per cent respondents are of the opinion that they have not been a
panchayat member earlier whereas 12.0 per cent respondents pointed out that they have been a panchayat
member earlier and have been elected twice. Thus, it clearly shows that an overwhelming majority of
respondents are new comers and have been elected first time.
Table 1.8
Methods Used for the Selection of Beneficiaries in Your Ward
Methods
Frequency
Per cent
Merit
27
21.6
As per govt. guidelines
18
14.4
Don't know
1
.8
Peer-Reviewed, Multidisciplinary & Multilingual Journal
ISSN: 2321-1520 E-ISSN: 2583-3537
Volume 2 Issue 2
July-December 2023
Page 93
http://vidyajournal.org
By Sarpanch/BDO
79
63.2
Total
125
100.0
Source: Primary Data
Table 1.8 explains the methods used for the selection of beneficiaries in the ward. 21.6 per cent respondents are
of the opinion that the selection of beneficiaries in the ward is done on merit basis. 14.4 per cent respondents
pointed out that that the selection of beneficiaries is made as per government guidelines and 63.2 per cent
respondents feel that the beneficiaries are selected by BDO. An overwhelming majority of respondents cited that
the selection of beneficiaries in the ward is made by sarpanch/BDO, which shows that the election process is not
transparent and selection of beneficiaries are confined to sarpanch/BDO which is a positive sign.
Table 1.9
Panchayat Representatives Discharge their Responsibility Properly in Implementing the Rural
Development Programmes
Responses
Frequency
Per cent
Yes
95
76.0
No
30
24.0
Total
125
100.0
If not, reasons
Due to groupism in village
14
11.2
Due to non cooperation of government officials and employees
10
8.0
Due to irregularities of meetings
3
2.4
Due to lack of information about the powers of panchayat
3
2.4
Total
30
24.0
Source: Primary Data
Table 1.9 illustrates whether panchayat representatives discharge their responsibility properly in implementing
the rural development Programmes. 76.0 per cent respondents are of the opinion that panchayat representatives
discharge their responsibility properly whereas 24.0 per cent respondents are of the view that panchayat
representatives did not discharge their responsibility properly in implementing the rural development
Programmes. Of those respondents who hold a contrary opinion, 11.2 per cent respondents pointed out that due
to groupism panchayat representatives are not able to discharge their responsibility properly. 8.0 per cent
respondents claimed that due to non cooperation of government officials and employees panchayat
representatives did not discharge their responsibility properly. 3.0 per cent respondents argued that either due to
irregularities of meetings or due to lack of information about the powers of panchayat they do not discharge
their responsibility properly in implementing the rural development Programmes. Thus, it shows that majority of
panchayat representatives discharge their responsibility properly in implementing the rural development
Programmes however a notable figure have contrary opinion.
Table 1.10
Work carried out by Panchayats for Rural Development
Work Carried
Frequency
Per cent
Development of roads
17
13.6
Electricity
2
1.6
Housing
19
15.2
All
86
68.8
Other
1
.8
Total
125
100.0
Source: Primary Data
Table 1.10 explains the work carried out by panchayats for rural development.13.6 per cent
respondents are of the opinion that panchayats carried out development of roads. 1.6 per cent respondents
argued that works related to electricity are carried out by the panchayats. 15.2 per cent respondents pointed out
that works related to housing is carried out. 68.8 per cent respondents reveal that all types of works like
development of roads, electricity, housing, infrastructure etc works are carried out the panchayats. Thus, it is
clear from above analysis that almost all types of works are carried out the panchayats for rural development
which is a positive sign.
Table 1.11
Role of Panchayat Raj Representatives in Implementing the Rural Development programmes
Role
Frequency
Per cent
Inspect schemes under work
38
30.4
Give suggestions
19
15.2
Discuss schemes with people
19
15.2
Peer-Reviewed, Multidisciplinary & Multilingual Journal
ISSN: 2321-1520 E-ISSN: 2583-3537
Volume 2 Issue 2
July-December 2023
Page 94
http://vidyajournal.org
Put proposals
8
6.4
Identify beneficiaries
39
31.2
No Role
2
1.6
Total
125
100.0
Source: Primary Data
Table 1.11 explains the role of panchayat raj representatives in implementing the rural development
programmes. 30.4 per cent respondents pointed out that they inspect schemes under work. 15.2 per cent
respondents give suggestions. 15.2 per cent respondents discuss schemes with people. 6.4 per cent respondents
put proposals. 31.2 per cent respondents identify beneficiaries. Thus, from above analysis it is clear that varied
kind of responses are coming out. Majority of respondents claimed that they inspect schemes under work and
also identify beneficiaries.
Table 1.12
Panchayats Satisfying the Needs and Requirements of the Villagers through Different Schemes
Responses
Frequency
Per cent
Yes
89
71.2
No
13
10.4
Do not know
23
18.4
Total
125
100.0
Source: Primary Data
Table 1.12 explains whether panchayats are satisfying the needs and requirements of the Villagers through
different schemes. 71.2 per cent respondents are of the view that panchayats are satisfying the needs and
requirements of the Villagers whereas 10.4 per cent respondents pointed out that panchayats are not satisfying
the needs and requirements of the Villagers through different schemes. Thus, from above analysis it is clear that
an overwhelming majority of respondents revealed that panchayats are satisfying the needs and requirements of
the Villagers through different schemes.
Table 1.13
Transparency and Accountability in the Decision Making Process in Panchayats
Responses
Frequency
Per cent
Yes
87
69.6
No
22
17.6
Don't know
16
12.8
Total
125
100.0
Source: Primary Data
Table 1.13 explains whether there is transparency and accountability in the decision making process in
panchayats. 69.6 per cent panchayat representatives are of the opinion that there is transparency and
accountability in the decision making process in panchayats whereas 17.6 per cent respondents pointed out that
there is no transparency and accountability. 12.8 per cent respondents highlighted that they did not know
whether there is transparency and accountability in the decision making process in panchayats or not. Thus,
from above analysis it is clear that majority of panchayat representatives claimed that there is transparency and
accountability in the decision making process in panchayats which is a good sign.
MAJOR FINDINGS
The major findings of the study are:
• The study revealed that panchayat representatives have good knowledge about gram Sabha but they
have never attended gram Sabha meetings which is not a positive sign.
• Majority of panchayat representatives says that their main role in rural development programmes as a
member of gram Sabha is to discuss problems of village and to prepare proposals on construction works.
• Majority of respondents pointed out 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.
• Study revealed that an overwhelming majority of leadership is new and first timer. While asking their
role in implementation of rural development schemes their opinion varied at number of cases. Majority of
respondents claimed that they inspect schemes under work and also identify beneficiaries some respondents are
of the opinion that they discuss schemes with people and put proposals.
• Considerably high number of respondents claims that the selection of beneficiaries of rural
development is made on merit basis. Large numbers of respondents feel that panchayat representatives discharge
their responsibility properly and are playing an important role in implementing the rural development
programmes and are satisfying the needs and requirements of the Villagers through different schemes which is a
good sign. However, one fourth of the respondents are against to it and feel that due to groupism in village and
Peer-Reviewed, Multidisciplinary & Multilingual Journal
ISSN: 2321-1520 E-ISSN: 2583-3537
Volume 2 Issue 2
July-December 2023
Page 95
http://vidyajournal.org
non-cooperation of government officials and employees panchayat representatives are not able to discharge their
responsibility properly.
• Half of the respondents claim that all types of works viz development of roads, electricity, housing,
infrastructure etc are carried out the panchayats for rural development which is a positive sign. Majority of the
respondents agrees that there is transparency and accountability in the decision making process in panchayats
which is a good sign.
CONCLUSION
Panchayat raj institutions are implemented in almost all states of India and are continuously working for
upliftment of rural masses by providing them benefits through different rural development scheme and J&K is
not an exception. Numbers of rural development schemes are implemented in the state through panchayat raj
institutions. These 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 and panchayat representatives are
discharging their responsibility properly but people are not participating in gram sabha meetings which is out of
imagination of the people and is not an encouraging sign. Inspite of all odds state is showing good progress in
rural development and panchayat raj activities which is a good sign. Serious efforts are being made now to lift
up the poor people’s spirit but without the active involvement of the rural poor, they can neither attain all round
development nor stabilize their progress. There is need of more involvement of people in rural developmental
programmes and more co-operations between the people, panchayat representatives and government officials.
REFERENCES
1. Pulwama, http://pulwama.nic.in/profile.htmaccessed on 02/01/2016
2. District Pulwama Official Website: [http://pulwama.gov.in/] accessed on 25/05/2022
3. Wikipedia, http://en.m.wikipedia.org/wiki/Pulwama_district accessed on 02/01/2016
