Professional Documents
Culture Documents
=
Seed (X
1
) 2.13 -2.31
Land preparation cost (X
2
) 0.22 -0.25
Irrigation cost (X
3
) 1.26 3.45
Pesticide cost (X
4
) -2.44 -3.54
Urea (X
5
) -18.85 -15.53
Other fertiliser cost (X
6
) 2.76 0.023
Labour (X
7
) 1.84 0.043
Due to all inputs 4.56 3.66
Estimated difference in output 11.43 8.87
Technological Change in MV...
78
also higher for the farmers who used granular urea instead of traditional urea. As a result,
the farmers who used granular urea earned household income that is more than three
times higher than the farmers who used traditional urea in MV boro and aman paddy
cultivation in the study area.
The results of the Cobb-Douglas production function show that granular urea had
significant negative impact on boro while positive impact on aman paddy production. On
the other hand, traditional urea had significant positive impact on boro and negative
impact on aman paddy cultivation in the study area. These results indicated that the
farmers could produce same level of output (paddy grain) from MV boro paddy
cultivation using comparatively fewer amount of granular urea that was not possible
using traditional urea.
The results of the ratios of MVP to MFC showed that none of the marginal value products
(MVPs) of inputs was equal to one, indicating that the farmers did not optimally use the
input resources in both the methods of application of the granular urea and the traditional
urea in MV boro and aman paddy cultivation and this hindered the generation of
maximum level of output of paddy grain in the study area. The technological change in
MV boro and MV aman paddy have brought about 10.64% and 7.62%, respectively,
productivity difference between the method of the application of granular urea and
traditional normal urea. The major component of this productivity difference was due to
the application of granular urea in MV boro and aman paddy cultivation which
contributed to 9.29% and 5.23%, respectively. The remaining 1.35% and 2.39%
difference in output for MV boro and aman paddy were due to difference in quantities of
input used, respectively. Therefore, it may be concluded that the granular urea has
significant impact on MV paddy production as well as on the household income of the
farmers in the study area.
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Technological Change in MV...
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Barmon
81
Grassroot Democracy and Empowerment of People:
Sharing the Indian Experience on Local Governance
Mona Kaushal
*
Abstract
The history of local governance as a catalyst for socio, economic, cultural and political
transformation dates back to the 15
th
century B.C. and is thus as old as Indian civilisation itself.
When India became independent, perhaps one-third of the villages of India had traditional local
political bodies - the Panchayats and many of them were far from flourishing conditions. Realising
the potential of the system, the government initiated the process of Constitutional amendment to
give sanctity and uniformity to the Panchayati Raj system so that it can be immune from political
interference and bureaucratic indifference and therefore made a historic landmark - Act of 73
rd
Amendment to the Constitution designed to democratise and empower local political bodies - the
Panchayats and to transform representative democracy into participatory democracy. The central
aim of this paper is to share the enriching and variable experiences of India in the system of rural
local self-government for Rural Development with a focus on the 73
rd
Amendment, which has
become a watershed in deepening democracy and evolution of a third tier of constitutionally
guaranteed stratum of the Government in India.
Introduction
The first sign of a healthy democracy is that collective decisions are made by the people
who are most affected by them. Decentralisation is the prime mechanism through which
democracy becomes truly representative and responsive. The linking mechanism between
administrative effectiveness and participation is the delegation of authority to the people
at the grassroots. Thus, decentralisation brings administration closer to the people. For a
country like India, a majority of whose population lives in rural areas, it is not enough if
decentralisation of governance at the local level remains a mere creed, but it is an
operational imperative. The perceived benefits of decentralisation range from stimulation
of economic growth, alleviation of rural poverty, strengthening the civil society and
reducing the responsibilities of the centre (Manor 1999). For, political accountability is
often greater at the local level (Seabright 1996). After independence, the focus of
government shifted from regulatory to welfare administration and the crucial challenge
before the government was the upliftment of the millions of downtrodden. Schemes for
rural development could not have succeeded if the rural population had not participated
in their formulation and implementation. This participation was ensured through the
creation of a network of local government organisations. As Gandhi often pointed out,
India lives in villages and unless village life can be revitalised the nation as a whole can
hardly come alive. When India became independent in 1947, perhaps one third of the
villages of India had traditional Panchayats and many of them were far from flourishing
conditions. Though various steps were taken by successive governments to revitalise the
system, Gramswaraj through village Panchayats remained as a distant dream till 1992.
*
Senior Research Fellow, Department of Public Administration, Panjab University, Chandigarh, India.
E-mail: monakaushal16@gmail.com
Asia-Pacific Journal of Rural Development
Vol. XXIII, No. 2, December 2013 Note
82
Bureaucratic apathy, indifference of the people, lack of political will, lack of uniformity
etc were the main factors behind the failure of the system. Box 1 below gives an idea of
the various commissions and committees that have inspired contemporary thinking about
Panchayati Raj in India. Perhaps the most important among these, particularly since
independence were the B.R. Mehta Committee (1957), the Asoka Mehta Committee
(1978), Hanumantha Rao (1983), the G.V.K. Rao Committee (1985) and the Singhvi
Committee (1986). An enduring issue that features in all of these assessments is the
notion that the Panchayats have been weakened or undermined on many fronts. Such
realisations were instrumental in the drive to give the Panchayats constitutional status in
the 73
rd
Amendment. In terms of structure, composition, electoral procedures, powers,
functions, work procedures and resources, there was, before the 73
rd
Amendment,
considerable variations across the state level. These were, "a result of peculiarities of
historical evolution of institutions of local self-government, differences in rural setting
and varying politico-administrative judgment regarding the most suitable size for
devolution."
2
Box 1: Milestones in Indian Decentralisation
1882 The Resolution on Local Self-Government.
1907 The Royal Commission on Decentralisation.
1957 Balwantrai Mehta Committee - an early attempt to implement the Panchayat
structure at district and block levels.
1963 K. Santhanam Committee - recommended limited revenue raising powers for
Panchayats and the establishment of State Panchayati Raj Finance Corporations.
1978 Asoka Mehta Committee - appointed to address the weaknesses of PRIs, concluded
that a resistant bureaucracy, lack of political will, ambiguity about the role of PRIs,
and lite capture had undermined previous attempts at decentralisation,
recommending that the District serve as the administrative unit in the PRI structure.
1985 G.V.K. Rao Committee - appointed to address weaknesses of PRIs, recommended
that the block development office (BDO) should assume broad powers for
planning, implementing and monitoring rural development programmes.
1986 L.M. Singvhi Committee - recommended that local self-government should be
constitutionally enshrined, and that the Gram Sabha (the village assembly) should
be the base of decentralised democracy in India.
1993 The 73
rd
Amendment to the Indian Constitution - PRIs at district, block and village
levels are granted Constitutional status. The Gram Sabha is recognised as a formal
democratic body at the village level. The 74
th
Amendment, granting Constitutional
status to municipal bodies, is passed soon after.
1
Henry Maddick, Panchayati Raj: A Study of Rural Local Government in India (London: Longman, 1970)
Kaushal
83
Realising the potential of the PR system, the Rajeev Gandhi government initiated a
process of Constitutional amendment to give sanctity and uniformity to Panchayati Raj
system so that it can be immune from political interference and bureaucratic indifference
and his dream materialised in 1992, which introduced an amendment in the constitution
itself. The Amendment has heralded a new era for Panchayati Raj. They have been
provided additional legitimacy and vitality. The 73
rd
Amendment Act has added a new
Part in the constitution- Part Nine - consisting of 16 Articles and the 11
th
Schedule. The
functions of the Panchayati Raj institutions have been clearly spelt out in Article 243G of
the Constitution, read with Article 243 ZD and the 11
th
Schedule.
2
The PRIs are supposed
to be genuine institutions of local self government, not adjuncts to the implementing
agencies of State governments. The constitution, which describes them as institutions of
local self-government, says that this [status] is [given to them] for two specific purposes:
planning for economic development and social justice and implementing these plans.
Moreover, it says that this process of empowering them through devolution in order to
enable them to plan and implement their own programmes of neighborhood economic
development and social justice will be governed by the laws of the legislatures of the
States. The Constitution says in the 11
th
Schedule that this empowerment shall relate or
could relate to the 29 subjects listed in the Schedule. Any form of Panchayati Raj that falls
short of this cannot be described as genuine Panchayati Raj.
3
Role
The main role of these institutions lies in the participation that they draw from the
grassroots in the democratic process and hence contribute to the strengthening of
democracy (Johnson et al. 2003).They also serve as an ideal channel of communication by
communicating the desires and aspirations of the local inhabitants to the higher echelons
of the government and similarly help in bringing people closer to the plans and
programmes of the national government. Next, the studies in some countries have also
shown that a large number of national leaders have been those who have graduated from
the school of local government and hence these institutions provide a nursery for the
future leadership of the country. Perhaps the greatest merit of local institutions is that they
have an immense educative significance and are an instrument of political and practical
education through which the people could be trained to take an intelligent share in
administration of their own affairs. Local bodies play a very dynamic role in providing
services which are local in nature and also enable the utilisation of local resources and
help in affecting economies, avoiding wastages and plugging leakages. The local bodies
also share the burden of the centre and regional governments and hence enable them to
concentrate on national issues, and thereby help them to increase the efficiency of the
general administration of the country. It is these institutions which, by their individual
attention and close supervision, keep the local services not only just going, but also
provide them efficiently and quickly (Bardhan and Mukherjee 2000). Since the centrally
administered programmes are not need sensitive, i.e. a uniform approach is adopted in
implementing these programmes, hence it is these local bodies which enable the
successful implementation of the plans. The local bodies also facilitate better policy
making by providing realistic feedback of the ground level realities (Sitaram 2002).
2
D.D.Basu, Introduction to the Constitution of India (Agra: Wadhwa and Company Law Publisher, 2003)
3
Interview with Mani Shanker Iyer, Frontline, The Hindu, May21-June 3 2005.
Grassroot Democracy and Empowerment...
84
Features of the Historic 73
rd
Constitutional Amendment Act
The system of Local Government existing now is the result of the 73
rd
Constitutional
Amendment Act, 1992 which incorporated suggestions from various states. It seems a
pattern of nation building from the village level is emerging. The idea is that integrated
grass roots level development should be entrusted to the village bodies instead of being
imposed from the top. The major positive features of the Act are as follows:
The 73
rd
Amendment makes Gram Sabha as the foundation of PRI system.
4
Article
243A provides that a Gram Sabha may exercise such powers and perform such
functions at the village level as the Legislature of a State may, by law, provide. Gram
Sabha means a body consisting of persons registered in the electoral rolls relating to a
village comprised within the area of Panchayat at the village level.
Article 243 B visualises a three-tier PRI system. It provides that in every state there
shall be constituted Panchayats at the village, intermediate and district levels. Small
states with population below 20 lakh have been given the option to not constitute the
intermediate level. Article 243 C further provides that subject to the provisions of these
part legislatures of state government may by law make provisions with respect to the
composition of the Panchayats.
5
Seats shall be reserved for Schedule Castes and Schedule Tribes in proportion to their
population.
Article 243I provides for the establishment of a Finance Commission for reviewing
financial position of Panchayats. The Governor of a state shall within one year from
the commencement of the Act, constitute a Finance Commission. It shall be the duty of
the Finance Commission to the principles, which should govern:
The distribution between the State and the Panchayats of the net proceeds of the
taxes, duties, tolls and fees leviable by the State, which may be divided between
them under this Part and the allocation between the Panchayats at all levels of their
respective shares of such proceeds;
4
D.D.Basu, Introduction to the Constitution of India (Agra: Wadhwa and Company Law Publisher, 2003)
5
Constitution of India, 73rd Amendment Act, 1992. www.indiacode.nic.in/coiweb/amend/amend73.htm
Kaushal
85
The determination of the taxes, duties, tolls and fees which may be assigned to, or
appropriated by, the Panchayat;
The grants-in-aid to the Panchayats from the Consolidated Fund of the State;
The measures needed to improve the financial position of the Panchayats; and
Any other matter referred to the Finance Commission by the Governor in the
interests of sound finance of the Panchayats.
Conduct of all elections to the Panchayats shall be vested in the State Election
Commission.
Provision of reservation of seats for women.
Provision for the devolution of powers and responsibilities upon Panchayats at the
appropriate level with respect to the preparation/implementation of plans for economic
development and social justice.
Article 243 H empowers the legislature of the state may authorise the Panchayats to
levy, collect and appropriate taxes, duties tolls and fees in accordance with such
procedure and subject to such limits and assign to a Panchayat such taxes, duties, tolls
and fees levied and collected by the State Government for such purposes and subject to
such conditions and limits. More over the article provides for making such grants-in-
aid to the Panchayats from the Consolidated Fund of the State. The PRIs are entitled
for Constitution of such Funds for crediting all moneys received, respectively, by or on
behalf of the Panchayats and also for the withdrawal of such money from the funds.
6
Analysis
Creation of these institutions raised significant hopes initially, as decentralisation was
expected to achieve higher economic efficiency, better accountability, resource
mobilisation, lower cost of service provision and higher satisfaction of local preferences.
But despite their potential and promise, have they delivered? Though providing a
framework for decentralised rural development, trends so far suggest that the Panchayati
Raj system has not been able to enhance participation and empowerment. Various studies
conducted on the working of the institutions of local government have brought out many
significant findings on their working, which can be summarised, with evidences as
follows:
There has been no consistency in the meetings of Gram Sabhas, and those are neither
held regularly nor have they succeeded in evoking participation from people. Often
such meetings were held only on paper. (Verma, 1990)
The criterion for selection/rejection of a beneficiary were fishy and never made clear to
them and often manipulated by the chief or officials and depended on the ability of the
beneficiaries to pay bribes.
Heterogeneous and unequal societies often throw up leaders who had little concern for
them.
6
Constitution of India, 73rd Amendment Act, 1992 www.indiacode.nic.in/coiweb/amend/amend73.htm
Grassroot Democracy and Empowerment...
86
Trivial issues and factional fights at the local level often divert the energies of the
elected leaders from working for the public welfare.
Though there have been periods and cases where the enlightened Heads have been able
to deliver and accelerate the pace of development, generally however this has not been
the case. The quality of delivery of benefits to the poor was low, with significant
leakages upto the extent of even 70%. Most officials had the propensity to make
money, and in almost all the cases the beneficiaries had paid 'commission' to the
officials for availing the benefits.
Reservation for women in these institutions has no doubt created a space for women
and has given them the opportunity to share power with men. But, on the negative side
it has been found that women representatives are treated as mere 'puppets' in these
institutions. Most of them remain silent spectators to the proceedings of the meetings
and practically are mere 'de jure' heads with their husbands as 'de facto' heads. Lack of
awareness, experience, knowledge, skill, leadership quality, low level of education,
lack of exposure have been found to be few internal factors affecting their
participation.
Influence of caste on the functioning of these societies has also come to light.
Elite capture is a major drawback of decentralization and for providing services that
are in line with the preferences of the poor. It has been also observed by Pradhan
7
, the
extent of local elite capture depends on the levels of social and economic inequalities
within communities, traditions of political participation, voter awareness, fairness and
regularity of elections, transparency of local decision making process etc. For instance,
in states like Kerela, which have high literacy levels and hence more awareness among
the masses, local governance is more successful. Elite capture also arises out of the
lack of a system of checks and balances.
Why are the Panchayats Not Delivering?
Lack of Adequate Devolution
Excepting a few states, no other state has taken any positive steps towards devolving of
3Fs namely Funds, Functions and Functionaries to these institutions to enable them to
discharge their constitutionally mandated functions.
8
Not only that, adequate funds have
not been devolved to match the responsibilities placed on them. From Table 1 provided
below it can be easily realised that even after 20 years of the passage of the Act, the
devolution has been minimal.
7
Pranab Bardhan, 'Decentralization of Governance and Development,' Journal of Economic Perspective
Vol.16 No.4 (2002), 185-205
8
T.N.Chaturvedi, IIPA, Vol. 24, No.3, Jul-Sep 1978
Kaushal
87
Table 1: Status of Devolution of Funds, Functions and Functionaries to Panchayati
Raj Institutions Across the Indian States
Little Flexibility
Next is the issue of excessively strict legislative, administrative, financial and judicial
control exercised by the state government over these bodies to ensure proper performance
of their functions. This proves to be more of a curse than a boon, because instead of
providing guidance and support through the control mechanisms, the control turns out to
be negative and rigid, hence restricting the functioning of these bodies.
Too Much Control by Bureaucracy
Under the State laws, the State bureaucracy has been vested with wide powers of
suspension and dismissal of the Panchayati institutions, hence placing them in a position
of disadvantage. The instrument for the implementation of all major schemes has always
been the bureaucracy, hence depriving the PRIs of their core functions of planning and
implementation. Although there have been stray cases when the state governments have
involved the Panchayats in the implementation of developmental programs, but in the
case of Central government programs, these institutions have been generally compelled to
act as "concerned spectators" and have often been dispirited and demoralised.
Lack of Mass Participation
There is an acute lack of civic consciousness and public participation. The meetings are
held without a visible zeal or sense of purpose and often without an agenda. For instance,
the Gram Sabhas have remained mostly dormant and ineffective for several reasons
State Funds Functions Functionaries
Andhra Pradesh 5 17 2
Assam 0 29 0
Bihar 25 5 *
Jharkhand * * *
Gujrat 15 15 15
Haryana 0 16 0
Karnataka 29 29 29
Kerela 26 26 26
Madhya Pradesh 10 23 9
Chattisgarh 10 29 9
Maharashtra 18 18 18
Orissa 9 25 21
Panjab 0 7 0
Rajasthan 18 29 18
Tamil Nadu 0 29 0
Uttar Pradesh 4 12 6
Uttaranchal 0 11 11
West Bengal 12 29 12
Note: * Only functional control
Source: Website of Ministry of Panchayati Raj, Government of India
Grassroot Democracy and Empowerment...
88
including illiteracy and general public apathy. Also, no efforts are made to guide,
motivate and train the rural people and hence they lack the art of self-governance and
direction
9
. The weaker sections still feel that they do not have an adequate voice in the
meetings, which continue to be dominated by the richer strata of the rural community in
the tradition bound and caste ridden society (Reddy 2003)
Scarcity of Financial Resources
A very serious problem that plagues the functioning of these bodies is the inadequate
sources of income as compared to their functions. Generally the local governments can
impose certain new taxes, but the elected members of these bodies are reluctant to do so
for fear of displeasing their electorate. Besides, the administrative machinery at their
disposal is insufficient and ineffective. The staff, which is often underpaid, indulges in
corrupt practices which lead to a further loss of income. As a result, many urban bodies
are on the brink of bankruptcy, with virtually no money left for developmental work.
Status of Gram Sabhas
Empowering Gram Sabhas could have been a powerful weapon towards transparency,
and involvement of the poor and marginalised people. However, most of the State Acts
have not spelt the powers of Gram Sabha nor have any procedures been laid down for the
functioning of these bodies.
Socio-economic and Political Conditions
The existing socio-economic structure of the Indian society is a major factor which is
responsible for the limited success of PRIs. It is proved beyond doubt that the office
bearers at all the levels of PRIs are from the rich and dominant sections of the society,
who have interest in preserving the existing system and would not do anything that would
strengthen the position of the downtrodden in their areas. Thus the leadership of these
bodies has not let the benefits flow to the weaker sections of the area.
Political Interference
Hostility from the local and higher level political leaders towards these institutions has
always been a challenge for these institutions. These leaders have viewed these
institutions as threats to their influence. The state governments have been reluctant to
share their powers, as a result no real functions or funds were transferred to the PRIs. And
to cap it all, the state governments have always retained the powers of removing the
members of the PRIs and dissolving them and have often used these powers without a
valid reason. Besides, these have been politicised.
10
Suggested Reforms
Changing the Financial System
The current system of funding reinforces the dependency on government funding and is a
source of much corruption in local institutions. Panchayats hardly raise internal resources
and depend heavily on outside sources. Hence, the current funding system should be
reconsidered and more emphasis should be laid on the generation of internal sources by
9
Rumki Basu, Public Administration: Concepts and Theories (New Delhi: Sterling, 1990), 388-89
10
S.R. Maheshwari, Local government in India, Agra 1993, p.104
Kaushal
89
the Panchayats. This would not only reduce their dependency on the state and central
government funding but would also introduce more flexibility in the way Panchayats use
their resources. An innovative approach is therefore needed for taxation and fund
mobilisation for the Panchayats with an urgent need to transfer the function of levying of
taxes to these institutions.
Untied Grants
In addition, Panchayats would also need a share in the state revenues, and that the states
need to increase the share of transfers to PRIs as untied grants. The formula for transfer
should no doubt give weightage to population and poverty, but also to efficiency as well
so that there is incentive to them for increasing the sources of own revenue. Flow of
funds should be dependent on the good work or mobilisation done by the PRIs.
Link Devolution with Performance
A 'Devolution Index' can be prepared for all the States and at least some percentage of
allocation of centrally sponsored schemes in the Panchayat functional domain may be
linked with this Index. This Devolution Index will be prepared by the States themselves
on the basis of self assessment but would be available for further evaluation by the
academic bodies.
Audit of Panchayats
Devolution of Funds and corresponding Finances to the Panchayats is likely to lead to an
abuse of power. At the moment the auditing process is very weak, delayed and the quality
of the reports is very poor and hence their utility is doubtful. Accordingly, there is a need
for installing an independent and intensive monitoring and auditing of the spending, and
assessment of the Panchayat performance, involving a combination of citizen bodies,
representation of higher levels of government, journalists and the civil society members.
Gender Empowerment
Women empowerment is the pre-requisite for giving a real meaning to their participation.
Adequate training and capacity building are a pre requisite for it. Political empowerment
is not an end in itself. It is a means to achieve something, which is nothing but socio-
economic empowerment, where women gradually learn how to articulate their demands,
and thus enable them to act upon their visions of a better society and to make a
meaningful contribution to national and society development.
Connecting the Three Tiers
Currently, the three existing tiers are somewhat isolated from each and often end up
working cross purpose. Hence, there ought to be a system where there is an organic
linkage between these three tiers so that they work as an integrated whole.
Grassroot Democracy and Empowerment...
90
Conclusion
Thus we see that the PRIs in India are weak and assuming that it will not be smooth sailing
for them even after the 73
rd
Amendment, they do have an important role to play in India's
development. Already the PRIs have several achievements to their credit. These institutions
have enhanced the political consciousness of the people and initiated the process of
democratic seed drilling in the Indian soil. There is a growing feeling of awakening in India
these past few years. There is a pulsating, energetic wave that rouses people from their
sleep, demanding that steps be taken towards betterment of this great nation of great
people. It would be an enormous step forward if this pulse found its way to the grassroots
levels. In the process of rural transformation, the time now is for each person to lend a
finger of cooperation if not with mind, then with body; if not with body then with wealth; if
not with wealth, then with encouragement or urging others to cooperate.
References
Bardhan, Pranab and Dilip Mukherjee. 2000. "Capture and Governance at local and
National levels." American Economic Review 90(2):135-139
Bardhan, Pranab. 2002. "Decentralization of Governance and Development." Journal of
Economic Perspective 16 (4): 185-205
Basu, D.D. 2003. Introduction to the Constitution of India. Agra: Wadhwa and Company
Law Publisher.
Basu Rumki. 1990. Public Administration: Concepts and Theories. New Delhi: Sterling.
Chaturvedi, T.N.1978. The Indian Journal of Public Administration. 24 (3)
Constitution of India. 1992. 73
rd
Amendment Act.
www.indiacode.nic.in/coiweb/amend/amend73.htm
Johnson, C. and P. Deshingkar. 2003. "Grounding the State: Poverty, Inequality and the
Politics of Governance in India." Working Paper. Overseas Development Institute,
London.
Maddick, Henry. 1970. "Panchayati Raj: A Study of Rural Local Government in India."
London: Longman
Manor, J. 1999. "The Political Economy of Democratic Decentralisation." Development
Series. Washington DC: World Bank
Maheshwari, S.R. 1993. Local Government in India. Agra.
Reddy, M. Gopinath. 2003. "Status of Decentalised Local Bodies: Post 73rd Amendment
Scenario." Economic and Political Weekly 36 (12): 22-29.
Sitaram, Shashikala. 2002. Interface of PRIs and Community Based Organisations in
Andhra Pradesh Rural Poverty Reduction Project.
S.L. Verma. 1990. Panchayati Raj, Gran Swaraj and Federal Polity. Jaipur: Rawat
Publications
Kaushal
91
Author: Shinnakathan Asaithambi, Abdulkareem Mohamed Abdullah, Natarajan Kannan
Abhijeet Publications
Year : 2008, Pp. 152
Price : INR 380
"Rural development" has been among the most critical components of the official
discourse on social and economic change during the post-Independence period in India.
This is quite understandable. Given that at the time of India's Independence nearly 85%
of the Indian population lived in its more than half a million rural settlements, the "rural"
had to be among the foremost concerns of the emerging democratic state. "Rural" was not
merely a site of backwardness. It was where the soul of India lived, in its fields, in its
working kisans and in its traditions.
More than six decades later, nearly 70% of India's population continues to be rural.
However, over the years, particularly since the 1990s, the thrust and orientation of India's
economic paradigms and popular self-image has shifted away from its rural settlements
and farming population, towards the urban middle classes. Shifts in economic paradigms
have not simply been ideological. Seen in terms of economic aggregates, India's
development and expansion of markets has largely been in its metropolitan centres, away
from its rural areas and agrarian economies. This shift is also reflected in a gradual
decline of agriculture in the national economy in relative terms. Even when half of India's
working population formally remains engaged with land, the share of agriculture in the
national income has declined to less than 15%.
However, the rural life of India today is not only about this marginalisation of agriculture
in the national economy. The rural has had its own dynamics and has been experiencing
many changes, emanating from within and responding to those coming from the outside.
For example, the structure of the rural economy is no longer synonymous with agriculture
and its allied activities. Even when official numbers show a majority of rural workers
being employed in agriculture, the number of households that exclusively depend on
agriculture has been declining over the years. A much larger proportion of rural workers
today earn their livelihood from non-farm activities and through multiple economic
engagements. Many work outside the village, either as seasonal migrants or as daily
commuters, even when formally they continue to be residents of the rural. The rural areas
have also been undergoing social changes. Relational frames of caste and kinship are
rapidly changing. The gradual spread of education, particularly among the relatively
better-off sections of the rural populations, has spurred newer aspirations. Young people
growing up in rural areas aspire very differently from what their parents did just a few
decades back.
However, even when change is occurring everywhere, the trajectories have been quite
diverse across different regions of the country. The pace and quality of change also vary.
Rural India today is thus a complex and rapidly changing reality and needs constant
engagement and study by social scientists policymakers. Given that more than two-thirds
Book Reviews
1. Changing Face of Rural India*
*
Reprinted with permission from Economic and Political Weekly, India.
92
of India's population continues to be rural, understanding the dynamics of change hardly
requires any justification.
The first ever report on the status of India's rural development is a welcome attempt in
this direction. Even though the report is prepared by a consortium of research
organisations and is put together by IDFC Foundation it clearly has an official stamp. It
begins with a foreword by Minister of Rural Development Jairam Ramesh and an
advisory council headed by Mihir Shah, a member of the Planning Commission, guided
work on the report. However, notwithstanding this official stamp, the tenor and tone of
the report is far from celebratory, or bureaucratic/official. The report identifies many
interesting and critical issues and proposes questions for further research and debate.
A New Rural India
The report has a total of seven chapters that cover a wide array of subjects, ranging from
the dynamics of rural social change, livelihoods and inclusion, to issues relating to
infrastructure, sustainability, local self-governance and the Mahatma Gandhi National
Rural Employ ment Guarantee Act (MGNREGA). Though like most official documents,
the report is structured around data, tables and pie charts (and a statistical annex), it also
has some very interesting qualitative discussions on different dimensions of rural life in
contemporary India. At one place the report also puts together some interesting stories of
local-level initiatives for change.
Perhaps the most interesting part of the qualitative discussion is presented in the first
three chapters of the report. The opening chapter on "Rural Dynamics" begins by
foregrounding the need to recognise that "a new rural India" is on the anvil. It underlines
that "contemporary rural India is vastly complex, subject to several new forces of
change". The complex and diverse ground realities of rural India today "do not neatly fit"
into any popular or simple characterisation, such as it being a land of deprivations and
agrarian crises or a site of resurging consumption, even when it recognises these as not
being insignificant facts of the present-day rural India.
In the popular imagination villages are often viewed as being similar and homogeneous
everywhere in the subcontinent. Available demographics tell a very different story. A
simple indicator of diversity would be the size of rural settlements. Even though India has
more than half a million villages, more than half of the total rural population (over 54%)
lived in a small proportion of relatively bigger sized (18,768) villages, which had
populations of over 2,000 in 2001. Many of these villages would have been enumerated
as urban centres during the next decadal census in 2011. The village is thus a fluid
category with diversity of size and social composition. The report acknowledges this and
rightly argues that in the fast changing realities of contemporary India, the "rural" ought
to be seen in its "changing and varied relationship" with the urban and not as its binary, as
is often done.
This fact about the active relationship of India's rural with the urban has become all the
more true today, with growing integration of different kinds of settlements through
expanding markets - of food, consumer goods and labour. The changing aspirations for
mobility through quality education and eagerness to diversify and move out of agriculture
suggest the growing desire for urban lifestyles among different sections of the rural
population. This, however, does not mean that rural India today is simply becoming
urban. On the contrary, as the report highlights, the economic distance between the two
remains significant and, in some sense, is increasing. Even though rural incomes rose in
Book Review
93
the recent past, the average monthly per capita expenditure of the rural people is merely
half of those living in urban India.
Relative Decline of Agriculture
The report extensively elaborates on the relative decline of agriculture in the rural
economy and its changing internal composition. For example, during 1993-94 - 2004-05
the number of rural households dependent on agriculture as the primary source of their
livelihood declined from 68% to 58%. The share of the non-farm sector in total rural
income went up quite significantly and accounted for 61% in the 2004-05. In other
words, despite it being a major source of employment, agriculture is becoming marginal
even to rural economic life.
The average size of the landholdings has also come down. By 2010, nearly two-thirds of
all the landholdings had shrunk to less than one hectare and another 18% were between
one and two hectares in size. Together, they cultivated 44% of the total operated area. On
the other end, less than 1% (0.7) of the holdings were large in size (holdings with 10
hectares and above) covering around 11% of the operated area. The average size of a
landholding had come down to mere 1.2 hectares by 2005-06. More importantly perhaps,
even when nearly 85% of landholdings were small and marginal, they were all being
integrated into the market economy through the growing popularity of commercial crops
and increasing use of modern technology. However, given the size of their farms, the
farmers find it hard to avail credit from formal sources and end up getting trapped in
vicious cycles of informal debt, a major cause of farmer suicides which are being
reported from different parts of the country over the past two decades.
Perhaps the most important and interesting part of the report is its ability to go beyond the
usual mappings of economic processes through available data sets. It identifies
dimensions of social change and larger processes within which rural development is
happening in India today. Though the ownership and non-ownership of agricultural land
continues to be an important aspect of rural power hierarchies, the growing
diversification of the rural economy is bound to have its own influence on social and
power relations. Power in today's rural India also emanates from "access to education,
urban jobs and link with urban elite".
These processes are also reconfiguring aspirations of the younger generations, gender
relations and even caste and community ties. As men migrate out of the village,
seasonally or as daily commuters, women begin to acquire more important roles in the
everyday life of families. Similarly, declining employment avenues in agriculture and
shrinking landholdings create new spaces for assertion by the traditionally marginalised
sections, the scheduled castes (SCs) and lower Other Backward Classes (OBCs).
Growing assertions of the marginalised do not necessarily indicate any erasure of
inequality or levelling of playing fields. As the chapter on "Inclusion" highlights, social
inequalities continue to be very significant, across regions, social groups and
communities. Even though poverty figures for rural India have declined at the national
level, the decline has not been even across regions. On the contrary regional inequalities
have also been increasing. For example, in 1993-94 nearly half of all the rural poor lived
in the states of Jharkhand, Bihar, Assam, Odisha, Chhattisgarh, Madhya Pradesh and
Uttar Pradesh. In 2011-12 this figure had jumped up to 65%.
Changing Face of Rural India
94
Similarly disparities across social groups also persist. Even when poverty levels have
declined, proportions of poor among those belonging to the scheduled tribe (ST) (47%)
and SC (42%) categories continue to be significantly higher than the rest (28%). In terms
of occupational categories, those listed as agricultural labourers are much poorer (49%)
than those self-employed in agriculture (26%) or listed as "others" (14%). This
deprivation and disparity is also reflected in access to basic facilities, such as drinking
water, latrine and electricity. Only 18% of all the rural households had access to all the
three and 20% did not have access to any of the three of these basic facilities. Among the
SC households, only 9% had access to all the three and 33% had access to none. In
contrast, in the "others" (mostly middle and upper castes) category the picture was just
the opposite (33% all and 11% none).
Given the nature of change being experienced in rural areas and newer aspirations for
mobility, the implications of such inequalities are socially more critical today than before.
Today they extend to access to quality education, healthcare, and other facilities and
infrastructure. The implications of these in terms of shaping the prospects for mobility of
future generations acquire newer meanings in a society that promises citizenship and
levelling of opportunity structures for every individual.
As mentioned above, the report has separate chapters on sustainability and infrastructure
and provides an extensive discussion of different dimensions of change and deprivations.
Questions of environment and sustainability have today become almost as important as
those of land and livelihood. The simple fact that India occupies only 2.7% of the world's
area with 17% of the world's population points to the obvious challenges of sustainability.
However, mainstream development thinking in India had so far not given it the kind of
importance it deserves. The report explores a variety of issues in relation to sustainability:
land degradation, water, forests, fisheries and the possible implications of climate change.
Similarly, the chapters on local self-government and MGNREGA examine a variety of
social and development dimensions of these initiatives.
Diversities and Complexities
Perhaps the most important aspect of the report is its ability to highlight the diversities
and complexities of social and economic change being experienced in rural India today.
By highlighting these complexities, the report also
Challenges the popular myth of the rural having been largely stagnant during the post-
liberalisation period. On the contrary, the Indian rural economy has seen some very
important shifts during the past two decades. These shifts have been accompanied by
changes in rural social relations and power hierarchies. There is a need to recognise this
and initiate a new kind of is course on the emerging realities of rural India. An
interesting revelation of the report is that the policy world in India is not blind to the
changing India. Perhaps the need is for the academic world to catch up with these
emerging realities and reframe questions for empirical research, policy and politics.
Surinder S Jodhka
Teacher at the Centre for Studies of the Social Systems
Jawaharlal Nehru University
New Delhi.
Book Review
95
In the book "Participatory Rural Development in Pakistan: experience of rural support
programs", Dr. Mahmood Hasan Khan comprehensively sheds light on the formations,
progressions, and outcomes of rural support programs (RSPs) and their partnerships with
rural communities in Pakistan. His studies are based on the experiences accumulated
from over two decades of visiting hundreds of villages, meeting with thousands of men
and women-individuals with different aspirations, ways of life, traditions and values-from
all corners of the country, and from the expertise and knowledge gained from studying
the myriad of literature pertaining to the subject over the years.
A vast majority of the population in Pakistan reside in rural areas, in typically agrarian
based economies consisting of self subsistent rural dwellers. This is also the poorest and
the most marginalised sector in the country. In light of this, the book highlights the
experiences of RSPs-both its successes and its shortcomings, to demonstrate how they
have contributed to the socioeconomic development of marginalised rural communities in
meaningful ways. This has been paramount in convincing governments and the
international donor community to acknowledge community organisations as part of the
serious, mainstream dialogue in the efforts to alleviate rural poverty. Dr. Khan critically
analyses the changes and outcomes of RSPs and raises a series of pressing questions.
Specifically, "what the RSPs and community organisations have done. How they have
done it. What they have achieved. And what they look forward to in the future."
The book meticulously narrates the endeavors of RSPs in helping to consolidate over a
million rural households into participatory organisations focusing on enhancing the
livelihoods and wellbeing of their communities. This entails effectively delivering a
variety of inputs and services that includes: building and developing physical
infrastructure; transferring improved technologies; and linking them with other service
agencies and organisation- particularly the public sector agencies, that otherwise fail to
reach them. Dr. Khan emphasizes that development encompasses not just as economic
freedom and development, but also as social, non-economic development, that includes
giving importance to issues of class, social stratification, gender issues, education, and
health care systems prevailing in rural communities in Pakistan.
The central point of the book is to elucidate how RSPs have supported communities in
different parts of Pakistan form participatory organisations that focus extensively on areas
such as building physical infrastructure; creating and improving the skill sets of rural
villagers; transferring technologies to improve management of natural resources, and
developing skills that enhance human capital. As the book points out, some of the most
notable achievements of RSPs have been the successful implementation of tens of
thousands of physical infrastructure schemes such as portable water supplies, drainage
and sanitation, irrigation, transport and communication, and basic education, among
many others. As Dr. Khan reveals with empirical data where available, these successes
Author: Mahmood Hasan Khan
Oxford University Press
Year : 2009; Pp. 534
Prce : INR 595
2. Participatory Rural Development in Pakistan:
Experience of Rural Support Programmes
96
have helped thousands of men and women in rural areas of Pakistan improve their
individual and community wellbeing throughout the years.
The book demonstrates that one of the most prominent contributions of these community
organisations has been to empower ordinary people to participate in making decisions
that directly affected their wellbeing, and which harnessed their resources and talents
collectively. This has also been a key aspect of the book regards its contribution to the
field of rural development studies.
Dr. Khan presents a case to elevate the most marginalised populations in Pakistan to the
center of the process of social mobilisation-an issue in which historically, rhetoric has
generally surmounted practice. This has been of particular importance to the rural poor
and particularly women, who have typically been the most disadvantaged groups. As Dr.
Khan asserts, "Getting together, participating and making decisions, doing new thing, and
working with outsiders are demonstrably necessary for confidence and empowerment."
The book thus emphasizes on people and how best to provide them with the means to
help realise their full human potential-the ability to realise core values such as
sustenance, self-esteem and freedom; factors that are crucial in the development of the
lives of people.
Furthermore, the book sheds light into the nuances that exist among different RSPs-in
terms of their size, outreach, financial autonomy, management and so on. Nonetheless, it
also highlights how each has adjusted their individual programmes according to
idiosyncratic financial and human resources; institutional capabilities; local
circumstances and environments-and provides a comprehensive evaluation of their
strengths and weaknesses, opportunities and threats. Thus, Dr. Khan's analyses bring
forward a series of profound questions. Do the poor get to meaningfully participate in the
programmes? Have the programmes made contributions to alleviating rural poverty? And
if so, then to what extent?
The book consists of twelve chapters. The first two chapters provide a historical context
of the socioeconomic transformation of Pakistan in the last six decades, focusing
extensively on rural poverty and the slowly emerging market economy developing among
rural communities. Furthermore, the book provides a review of the approaches and
experiences of rural development in Pakistan from a historical context, emphasizing
especially on government sponsored programmes, their experiences and their outcomes.
Chapter 2 discusses in-depth the organisational model underlying RSPs, both in theory
and in practice. Emphasis is given on the genesis and success of AKRSP and its lessons
and consequent replications that ignited a series of successful RSPs throughout the
country. The AKRSP approach of working in partnership with communities has made
remarkable changes in the lives of millions of people living in rural Pakistan and it has
served as a model for countless development programmes in the country.
Starting from Chapter 3, the stories of nine RSPs are discussed in consecutive chapters,
beginning with the AKRSP and including programmes such as the National Rural
Support Programme, Sarhad Rural Support Programme, Punjab Rural Support
Programme, among others, through to the Lachi Poverty Reduction Project in Chapter 11.
The last chapter analyses the Rural Support Programmes Network (RSPN), and ends with
an analysis on the opportunities and challenges faced by RSPs in scaling up the process
of social mobilisation in Pakistan.
Book Review
97
What stands out most about the book is the in-depth analysis that Dr. Khan provides in
terms of presenting an intensive, objective evaluation of all organisational aspects of
RSPs and community organisation, in terms of their nurturing, quality and growth. Each
chapter includes examinations of governance and management of RSPs; detailed
descriptions of field operations; staff accountability and operational procedures;
approaches taken by the management; and in addition, offers a plethora of financial
statements, records, and relevant data relating to the RSPs. Each chapter concludes with
observations on the monitoring, evaluation and research evaluations made by consultants
and professionals in the field, and provides an analysis of the Best Practices achieved by
the respective programmes.
The book accomplishes presenting concrete evidence that new and improved skills do
make significant contributions to the wellbeing of individuals, and assist significantly to
the development of their productive capabilities, resources and basic social services of
their respective communities. Dr. Khan elucidates in great detail that rural support
programmes along with community organisations have effectively allowed for avenues of
self employment, higher incomes, improved housing, better health and nutrition, and an
altogether better quality of life for the poorest sectors of the population in Pakistan. This
book offers an approach that could be implemented and adopted by communities aspiring
to develop rural development programmes, and would constitute as an invaluable
resource for all scholars interested in the field of rural development.
Mishaal Sinha
Intern
ICD, CIRDAP
Participatory Rural Development in Pakistan...
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Vol. XXII, July 2012, No. 1
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Coastal Aquacultur e E ffluent Quality and E nvir onmental Management for Healthy
Coastal E cosystem - A Case Study of Pinang R iver , Balik Pulau in Penang I sland, Malaysia
Yahya Khairun, Nur Munira A., Nurul Ruhayu M. R. and Md. Arif Chowdhury
Contr ibution of I ndigenous K nowledge to Adapt with Climate Change: A Case Study
in K ien Giang Pr ovince, in the Mekong Delta
P. H. T. Van, P. X. Phu, N. V. Thai and T. V. Hieu
I mpact of Fisher y T r aining Pr ogr amme on the L iving-Standar d of the Fisher s: A
Case of Community Based Fisher y Management Pr oj ect in Bangladesh
Kazi Tanvir Mahmud, G. M. Shamsul Kabir, Md. Taufiqul I slamand David Hilton
Cash Cr op Cultivation and R ur al Food Secur ity: A Case Study of Agr icultur al
Pr omotion Zone in Moner agala Distr ict of Sr i L anka
Rupananda Widanage
T echnical E fficiency in Agr icultur al Pr oduction: T he Case of Chitwan, Nepal
Chandra Bahadur Adhikari
Book Review
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Vol. XXIII, July 2013, No. 1
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E valuation of Beneficiar ies Par ticipation in a Development Pr oj ect: A Study of
T ar aba State, Niger ia
Ukwapu C. Undiandeye, Peter I . Vosanka
Cointegr ation Analysis of R ur al Wheat Mar kets in Nor ther n Bangladesh
Mohammad I smail Hossain, Eleni Papadopoulou and Mst. Esmat Ara Begum
R ole of Medicinal and Ar omatic Plants in R educing Pover ty and Changing
L ivelihoods in the Mountains of Nepal
Bishnu Hari Pandit, Ramji Prasad Neupane, Naba Raj Pandit, Deepak Kumar Gautam,
Bishal K. Sitaula and Roshan M. Bajracharya
Book Review
Per sistence and Change in T r ibal I ndia
I ndex
Household Level Food Security, Food Crop Agriculture, and Rural Development:
Empirical Evidence from Moneragala District of Sri Lanka
Rupananda Widanage
Impact of Trade Liberalisation on Food Economy of Bangladesh: A Multi Market
Modelling Approach
Abu Hayat Md. Saiful Islam
Demand-driven Governance: A Contextual Agenda of Development
Narayan Bahadur Thapa
Technical Efficiency and Total Factor Productivity of MV Paddy Production under
Different Farming Systems in Bangladesh
Basanta Kumar Barmon
The Role of Forests in Food Security of Sub-Saharan Africa in 21st Century
J. A. Soaga
Assessment of the Effectiveness of Lake Chad Research Institute Adopted Villages
Scheme in the Dissemination of Improved Farm Technologies in Borno State, Nigeria
S. B. Mustapha, M.M. Gwary, H.S. Nuhu and P.A. Samaila
A Case Study on the Present Status and Potentiality of Shrimp Farming in
Bangladesh
Mohammad Chhiddikur Rahman and M. Harun-Ar Rashid
Forest Carbon Concepts, Markets and Standards for SAARC
Ram A. Sharma
Book Reviews
Islamic Microfinance: A Tool for Poverty Alleviation
Empirical Study Using Different Models
Grassroots NGOs by Women for Women: The Driving Force of Development in India
118
119
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