Peoples Participation in

UNIT 1 PEOPLES PARTICIPATION IN Governance and Development

GOVERNANCE AND
DEVELOPEMNT
Structure
1.1 Introduction
1.2 People’s Participation- Meaning and Concept
1.3 Importance of People’s Participation in Governance and Development
1.4 Gram Sabha and Peoples Participation
1.5 Ward Sabha and Peoples Participation
1.6 Inclusive Participation
1.7 Let Us Sum Up
1.8 Keywords
1.9 References and Suggested Readings
1.10 Check Your Progress – Possible Answers

1.1 INTRODUCTION
The challenges of development have opened many avenues unexplored in the
journey of a nation. The traditional approach of centralized planning and top
down approach focused on economic growth as an objective. This approach is
based on presumption that higher economic growth leads to redistributive justice
to all. However, decades of experiments and experiences have proved otherwise.
The search for new alternatives has thrown many avenues which focus on people
centric development, decentralized governance and participatory approach to
development.

Decentralized governance, meaning involving all stake holders in the process of

development is an instrument for promoting equitable development. In this unit,
we will focus on people’s participation in governance and development. There
have been significant changes in policy directions for development like
reactivation of Panchayat Raj in rural India and more participatory Municipal
Bodies. We shall study the meaning of people’s participation and why it is a
necessity in today’s context and how the same is being ensured through formal
and informal institutional structures at grass root level. The understanding of the
methodologies of decentralized governance and functions of grass root institutions
like Gram Sabha and Ward Sabha enables you to comprehend the democratic
processes of our political system.

After studying this unit, you should be able to –

• Understand the meaning and concepts of participation, Local Self

Governance in development.
• Discuss the importance of local Self Governance, people’s participation in
development.

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Peoples Participation • Comprehend the role of Grass root institutions like Gram Sabha, Ward Sabha,
and Panchayati Raj Institutions in development through self governance.
• Differentiate between various methods of Governance.

1.2 PEOPLE’S PARTICIPATION - MEANING AND

CONCEPT
1.2.1 Meaning of Participation
Most simply defined, participation means taking part. In the context of
development theories, participation means direct involvement of all those people
in the decision making process which is likely to affect their lives. “The way
participation is defined largely depends upon the context and background in
which participation is applied. While the Economic Commission for Latin
America (1973) considers contribution by the people to Public Programmes to
the complete exclusion of any involvement in the decision making process as
participation. Cohen and Uphoff (1977) maintains that participation includes
the people’s involvement in the entire decision making process. FAO (1982)
emphasizes participation in all decision making process but by the people’s own
Organization and through self organized actions. Paul (1987) introduces the
concept of enhancement of well being in terms of values cherished by the
communities as being the ultimate objective of participation.” (Somesh Kumar,
2002)
Participation can be seen in two extreme forms. It can begin as passive
participation where people are told what is going to happen or happened. People
are just objects on whom action is thrust. On the other extreme is self mobilisation
where people participate by taking initiatives independent of external Institutions
to change systems. Participation starts from the conception stage up to the delivery
of the product and its consumption. The process involves decision making at
various stages independent of any external influence. Participation can be
categorized into various stages in which degree of involvement varies. The
Typology of Participation are:
• Passive Participation
• Participation in Information giving
• Participation by consultation
• Participation by Material Incentives
• Functional Participation
• Interactive Participation
• Self Mobilsation
In the above typology passive participation is at the one end of the spectrum
where people are told what to do while on the other end is the self Mobilsation
where local people themselves are in total command. As one moves from passive
participation to self Mobilsation control of local people increases and outsiders
decreases. “The principle of participation is widely recognized as a right in itself.
The right to take part in the conduct of public affairs means that every person
and all people are entitled to participate in, contribute to, and enjoy civil,
6 economic, social and political development.” (Zubair Meenai, 2008)
Participation as a concept has found favour among masses, policy makers, Peoples Participation in
Governance and Development
politicians, and sociologists alike – Croft and Bensford (1994) have elaborated
some arguments for participation.

• Most people want to be involved - People have intrinsic desire to get

involved.
• People have right to be involved - people have the legal entitlements to be
involved, the rights to redress, to comment and to be consulted on issues
impacting their lives and society.
• Participation has accountability - Accountability means not just being
responsive but also answerable to the people. People have the right to know
what is happening and why? Increased direct involvement of the service
users results in more effective accountability of the service providers.
• Participation makes more efficient and cost effective services.
• Involving people challenges institutionalized discrimination.

The Food and Agriculture PARTICIPATION

Organisation (FAO) looks at Functional participation: to increase
participation from three efficiency and effectiveness of Research &
perspectives: (a) Functional, (b) Development.
Empowering and (c) Philosophical. Empowering Participation: To increase the
Participation is understood at independence, awareness and capacity of
various levels. Conceptualization of marginalized groups.
participation has ranged from Philosophical Participation: Participation
contributions by the people to to allow expression of alternative views.
Public Programme to the Source: FAO Org./Participation
involvement of people in the entire
decision making process. (Zubair Meenai, 2008).

Participation as a process - If seen as a process in development Programme,

there is involvement of local people in implementation of externally designed
initiative. There is collaboration along with external agency and local population
whereby externally designed development activities are implemented in a
participatory manner. Thus, participation is a means or instrument to implement
a programme to achieve desired goals.

Participation as an end - Participation as a goal of a policy initiative entails

empowering people in terms of their acquiring skills, knowledge and experience
to take greater responsibility for their development. People are provided access
to power and resources to create opportunities which are self sustaining.

Bastain (1997) sketches four different thematic variations in the concept of

participation. ( Murleedharan, 2006)
• First, participation is employed as a simple means of getting unpaid labour
from the people. It serves the purpose of creating a sense of belonging among
the public about the public utilities created.
• Second, Participation is interpreted as an attempt to provide self reliance.
• Third, participation approach is resorted as a technique to create ideal
villages.
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Peoples Participation • Finally, participation is resorted as a method of Project Management.

1.3 IMPORTANCE OF PEOPLE’S PARTICIPATION

IN GOVERNANCE AND DEVELOPMENT
“The essence of development is nothing but peoples’ participation. There are
many components that are involved in development like money, material,
resources, technology, human etc. Of all the social factors, human factors are the
crucial elements. People are the pivot around whom the entire development
processes are supposed to revolve.”(Joel and Bhore, 2003).

The above statement underlines the importance of peoples’ participation in

development process. Ever since societies have strived to develop, the methods
of development have been widely debated. The early phase of development era
emphasized on the Top down approach to development based on trickle down
theory. During this phase, the emphasis was on planning at the top with focus on
achieving higher growth rate. This approach was based on the premise that
centralized planning ensures higher growth which automatically trickles down
to grass root level. “During 1950s and 1960s – modernisation theories had been
so pervasive that it was almost impossible to separate modernisation from
development linked to capitalism and economic growth.”(Zubair Meenai, 2008).

However, the experience gained during this time reflected that these development
strategies were loosing battle against the poverty and hunger. Even a higher growth
rate could not ensure equitable growth and disparities in development levels
continued to either remain or get wider and wider. Participation as a concept and
a strategy of development is an outcome of the profound disillusionment with
the established development strategy in post Industrial Revolution period. The
experiences of the Fifties and Sixties have demonstrated the fundamental
weakness of the Top down, GNP focused, growth centered strategy of
development based on professional expertise and modernized technologies. The
development strategy followed during this period emphasized economic growth
and industrialization in the context of increasingly centralized planning and
control over the distribution of resources. (Joel and Bhore, 2003).

The origin of participatory approach to development is based on the failure of

the growth centered approach to achieve all around development. This
phenomenon was observed across the countries and international agencies like
UN, UNDP, ADB, FAO, hotly debated the feasibility of this model. Gunnar
Myrdal, the Noble Prize winning Economist in the late 1960s urged governments
to plan their economies actively, adopt social policies that enhanced people’s
welfare and take steps to redistribute income and wealth. This led to the
publication of a major policy document from the UN (1971), ‘Social Policy and
Planning in National Development.’

The shift in focus of development strategy from growth centered to people

centered has necessitated planning from grass root level involving all the stake
holders in the process. “People must be at the centre of human development.
Development has to be woven around people not people around development.
David C Korten has articulated such concept of people’s involvement as “People
Centered Development”. People are the primary subject matter in people centered
development.”(Joel and Bhore, 2003).
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Development is no longer a favour or a privilege to the people. It has to revolve Peoples Participation in
Governance and Development
around them. They cannot be treated as mute observer or objects or passive
receivers as they are powerless and un-endowed. They are supposed to be prime
movers of development at any given point of time. FAO, while emphasizing the
role of people’s participation in governance and development, has listed various
ways by which people’s participation can be strengthened.

• Participation by information - a unilateral means of providing information

to people without seeking their response.
• Participation in information giving – people do not participate in process
of decisions making but are encouraged to share their views.
• Consultation – People participate by being consulted – The programmes
and plans are subject to modifications based on response and input from
people. However, same is non-obligatory.
• Joint Planning – people participate in joint planning, analysis and
formulations of new methods. Local groups control local decisions and
hence have stake in maintaining structures and practices.
• Decision making - when consensus is acted upon through collective
decision, this marks the initiatives of shared responsibilities for outcomes
that may result.
• Empowerment - The ultimate objective of participation wherein the local
Community has the right and capability to have a say in decision concerning
their lives.
Peoples’ Participation - Advantages
Participation in development is now being sought in world over, not because it
is fad but because there has been a consensus on the usefulness of people’s
involvement in governance and development. This has several advantages like–

Efficiency: Participation can ensure effective utilization of available resources.

The people and other agencies work towards achieving their objectives,
involvement and cooperation among all stake holders improve efficiency and
effectiveness of planning process.

Effectiveness: Failure of conventional growth strategy because of lack of grass

root knowledge and absence of people’s role in development made most of the
plans ineffective. People’s participation can make the development strategy more
effective by granting a say in dividing the objectives and strategies and
participation in management ensures effective utilization of resources.

Self Reliance: More often, it is noticed that people at local level look up to the
external experts or Government for solutions to their problems. This leads to
distortions and ineffectiveness of planning due to lack of local knowledge. If the
local resources are utilized on the basis of decisions taken by the people
themselves, the realization grows that many problems faced by the people have
local solutions at their levels. With active involvement of the local people, it is
possible not only to break the psychological barrier of dependence, but also to
increase their awareness, self confidence and control of the development process.

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Peoples Participation In fact, the involvement in decision making, implementation and monitoring
helps in developing local human resources.

Coverage: People’s participation in decision making process widens the coverage

among all sections including deprived and weaker sections.

Sustainability: External interventions through government or other agencies

lack potential for long term sustainability of schemes if local participation is not
ensured. People’s involvement in governing the scheme creates local capability
and ownership of resources. It is a sustainable development alterative for long
term solutions to local problems.

Activity 1
Talk with several of your extension colleagues and ask them to define what
they mean by Participation. Compare those definitions with the one given
in this unit.

1.3.1 People’s Participation in Indian Governance

India has had a long history of local governance. The concept of village as a self
sufficient unit and existence of Panchayats at village level have existed since
ancient times. Panchayats were institutions of local people for governance and
resolutions of disputes at local level. Despite having no codified laws for
functioning of Panchayats, they existed as potent institutions to maintain law
and order, stability and utilization of local resources for common good of the
community. Panchayats were democratic means of involving people in decision
making, using local resources and talent to manage all affairs of the society.
Panchayats were least dependent on external agencies and were the best examples
of local governance through democratic participation.

In the modern India, the concept of participatory development had been

experimented much before it took shape in the development discourse. The first
such attempt of structural participation of people in development was through
Community Development Programme in 1952 as a Programme of aided self
help. This Programme intended to be planned and implemented by the villagers
themselves, government offering technical and financial assistance. The
community development Programme failed miserably because of lack of political
patronage as well as bureaucratic lethargy. The country in its endeavor to fast
track growth, focused on growth centered approach through centralized planning.
There was no political priority to decentralize the governance system. This
happened despite the fact that the Constitution of India had recognized Panchayat
bodies as units of Self Government drawing its inspiration from the historical
legacy of Panchayat Systems of Indian villages.

The importance of people’s role in overall development framework was well

enshrined in the Indian Constitution although in the Directives Principles of
state Policy. Article 40 of the Constitution reads as “ Organization of village
Panchayats: The State shall take steps to organize Village Panchayats and
endow them with such powers and authority as may be necessary to enable
them to function as units of Self Government.” However, the non-obligatory
nature of its reference in the Constitution resulted into complete exclusion of
Panchayat System from policy priority. From independence up to 73rd and 74th
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amendment to the Constitution of India several efforts were made towards Peoples Participation in
Governance and Development
decentralization emphasizing the role of participatory governance at grass root
level. Some of the salient steps were:

• Balwant Rai Mehta Committee (1957): this Committee was set up to

study the problems and suggest ways and means for implementing the
scheme of Panchayati Raj on some uniform line throughout the country.
• Ashok Mehta Committee (1977): to suggest measures to revitalize
panchayati raj institutions (PRIs).
• C.H.Hanumantha Rao Committee (1984): to suggest the methodology
for district level planning.
• G.V.K.Rao Committee (1985): to study the administrative arrangements
for rural development programmes and poverty alleviations schemes.
• Sanghvi Committee (1987): to examine the functioning of PRIs,
recommended reorganizations of villages for creating viable Gram
Panchayats.
• 64th Constitutional Amendment Bill (1989): to set up panchayats in
every state, but could not be passed in Rajya Sabha.
• 73rd Constitutional Amendment(1992): A Constitutional obligation
to set up Panchayats in states, hold elections with provisions for
reservations and devolve powers, administrative and financial to Panchayati
Raj Institutions for grass root participation of people in planning and
development process.
Since independence, India has experimented with its policies partially on the
lines of its own history and partially going by the global trends of the times. The
periods of 1950s-1980s were periods of Centralized governance systems even
internationally with growth Centered top down approach to development. India
while giving token value to its own history in self governance, borrowed the
concept of centralized planning with top down approach. GDP growth was the
prime mover of the policy presuming it will take care of redistributive part.

The international failure of growth centered approach excluding the masses was
almost replicated in India also. India had multi dimensional issues to address on
development front like poverty, hunger, illiteracy, extreme inequalities, and rural
urban divide. Fortunately, the importance of all round development with active
people’s participation was realized sooner than later. The emphasis shifted from
‘top down’ to ‘bottom up approach’ meaning thereby transfer of planning,
decision making and delegations of administrative authority from the Central
and State Government to Local Administration units of Government. “ It was
increasingly realized that democracy could play an important role in promoting
development, eradicating poverty and improving the quality of life, which
makes strengthening of local democracy an end to itself. Thus efforts to
institutionalize the participation of citizens in decision making, development
planning and management by giving more powers and resources to the gross
root level was aimed to be brought about by the 73rd and 74th Constitutional
Amendment Acts(1993). These Constitutional Amendments, the 73rd pertaining
to rural local government and 74th for urban local government have given a
shot in the areas of decentralization .” 11
Peoples Participation These actions fully guarantee the vital role of people in harnessing their own
talents and govern their own resources for their own development, State or any
external agency being a nominal facilitator in the process. The 73rd Amendment,
which is a watershed in the sphere of rural governance has an attached Eleventh
Schedule to the Indian Constitution which covers 29 functional areas ranging
from agriculture, land reforms, forestry, small industries, drinking water, rural
electrification poverty alleviation, education, development of women and children
etc. Local Government, be it rural or urban, is essentially a manifestation of
popular participation in the process of governance at the grass root level.

All political power in democracy stems from people. Access to political power
is critical for economic and social empowerment. Central, therefore, to
governance is empowerment of people by increasing their control over
governance. Till the 73rd Amendment there were few structural Institutions of
governance at local level. People were largely excluded from the development
process. A policy shift towards decentralization of political power took place in
India through the 73rd and 74th Amendments to the Constitution of India. This
was an outcome of growing concern about increasing inefficiency and costs of
delivery systems of development programme.

After reading and understanding the concept of participation, its importance and
relevance in Indian context, now attempt these question given in check your
progress-1.
Check Your Progress 1
1) What do you understand by Participation? Explain why it is important for
development.
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2) Is the concept of self sufficient village of ancient India an ideal example of
people’s participation in their affairs?
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 Peoples Participation in
1.4 GRAM SABHA AND PEOPLES Governance and Development
PARTICIPATION
Right from the Gandhian Economics of the grass roots and Schumacher’s ‘Small
is beautiful’ much has been written and said about taking economic development
to the rural areas and with it the smallest unit of the Indian democratic set up,
the village.” The dream of such visionaries was realized in modern India through
the 73rd Amendment to the Constitutions which provided for creation of three-
tier structure of Panchayats. The creation of this system was made constitutional
obligations on all states leaving no discretion with them. Thus democracy began
to flow from lowest level of society and development became people centric.

The setting up of Gram Sabha at village level has strengthened the people’s
direct involvement in their affairs. The Gram Sabha has been set up in each
Village consisting of all members of the village who are eligible to vote in
Elections. Gram Sabha take complete control of all the developmental issues of
village and has a binding duty to discuss them in meetings to obtain consensus
of its members. Gram Sabha has been recognized as the basic tier of Panchayati
Raj. According to Article 243(b) a Gram Sabha consists of all persons registered
as voters in the electoral roll.

Composition of Gram Sabha

• There will be at least two meetings of Gram Sabha every year, one in the
first and the other in the last quarter of the financial year.
• Gram Sabha can also meet on the written request of one tenth of its members,
or if required by Panchayat Samithi, Zila Parishad or the State Government.
• Participation of people in meeting is ensured by Panchayat by placing before
the Gram Sabha - (in first quarter)
1) Annual Statement of Accounts
2) Report on the Administration of the preceding financial year
3) The development and other programmes proposed for the financial
year
4) Last Audit Report -
In the meeting held in last quarter of the year following issues are discussed.
a) Statement of Expenditure incurred during the year
b) Physical and Financial programmes taken during the year.
c) Proposals for any changes in the Programme
d) Budget of the Panchayat and tax proposals of the Panchayat.
Besides above any other matter referred by Panchayat, Panchayat Samithi, Zila
Parishad, the State Government is also taken up by Gram Sabha.

Quorum: The quorum for a meeting of the Gram Sabha shall be one tenth of the
total members out of which at least 40 per cent should be women.

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Peoples Participation Presiding Officer: The meeting of the Gram Panchayat shall be convened and
presided by the Sarpanch of the Panchayat or, in his absence, by the Upsarpanch
of such Panchayat.

Functions of Gram Sabha:

• To consider and approve the annual plan prepared by the Gram Panchayat.
• To generate proposal and determine the priority of all schemes and
development programmes.
• To identify and select individuals for beneficiary oriented programmes.
• To disseminate information on development and welfare schemes
• To assist Gram Panchayat in collection and compilation of details about
the village for development plans.
• To collect information about functioning of Gram Panchayat and share in
Gram Sabha.
• To generate awareness among people about programmes and schemes for
development.
In addition to above Gram Sabha discharges almost all functions which are
required in the village for the development including persuading members to
pay taxes and loan repayment.

Constraints:
• Lack of awareness, lack of attendance, domination, force caste.
• Lack of awareness about legal provisions of Gram Sabha, Panchayat.
• Poor not confident that their issues are taken up.
The above structure of Gram Sabha incorporates all members of the community.
The decisions are collective in nature and rely on utilization of resources for the
benefit of the society. Meetings of the Gram Sabha are convened to ensure the
development of the people through their participation and mutual cooperation.
The attendance ratio of people in Gram Sabha meetings is the best indicator of
peoples’ participation in planning and development.

To make participation in Gram Sabha effective there is need to take following

positive action:
• Creation of objective conditions in the society
• Democracy cannot succeed with inequality and poverty.
• Effective role of political parties in educating and mobilizing people for
Gram Sabha
• Panchayat leadership to be more democratic and open to criticism
• Freedom of speech to be ensured
• Information dissemination of positive works of Gram Sabha and Panchayat
to be highlighted.
• Govt agencies to be responsive to people.
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• Advice and decisions of the Gram sabha to be binding on the Gram Peoples Participation in
Governance and Development
Panchayat.
• State to ensure penal action for not holding Gram Sabha meetings.
• Motivate members for meaningful participation and effective role in Gram
Sabha.

Activity 2
Visit a Village near your residence and attend one Gram Sabha meeting and
note down the discussions in the meeting. Compare them with what is
explained in this unit.

1.5 WARD SABHA AND PEOPLES

PARTICIPATION
The 74th Constitutional Amendment Act, 1992, provided for creation of Urban
Local Bodies for wider participation of people in development of urban areas.
The background for this was weak and ineffective local bodies due to failure to
hold regular elections, prolonged supersession and inadequate devolutions of
powers and functions. Urban Local Bodies were not acting as vibrant democratic
institutions of self governance with active peoples’ participation.

The Constitutional Amendment created viable municipal bodies in urban areas

which represented the people of the municipality. Municipalities were to have
wards within their territorial jurisdictions. However, the Ward Committees and
Municipalities did not develop into the institutions of people’s participation.

Urban decentralisation has not matured to the extent it is done in rural areas. Our
cities and towns do not have bottom up structures that create more proximity
between the citizen and their urban local government. People’s participation is
at the heart of democracy. The absence of people has several adverse consequences
on the functioning and accountability of those managing these institutions.

1.5.1 Ward Sabha in Panchayati Structure

The Ward Sabha in Gram Panchayat have been more effective instruments of
airing popular views and opinion at decision making level.

Composition of Ward Sabha

The Ward Sabha comprises of all adult persons of the ward in the panchayat
circle. The members of the ward elected through direct election, a panch as head
of the ward who represents the people of the ward in all Gram panchayat meetings.

Quorum
The quorum for the meeting of a ward sabha shall not be less than one tenth of
the total members in the ward sabha or twenty members whichever is less. To
ensure wider participation of all sections of the society, not less than thirty percent
of the voters attending the ward sabha shall be women. The persons belonging
to SC/ ST shall be represented in proportion of their population in the ward
sabha.

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Peoples Participation Functions and powers of Ward Sabha

• To generate proposals and determine the priority of schemes and

development programs in the area of ward sabha and forward the same to
the Gram Sabha or Gram Panchayat for inclusion in the development plan.
• To identify eligible persons for beneficiary oriented schemes.
• To verify the eligibility of persons getting various welfare assistance from
Government.
• To collect information about services, plans and decisions taken in Gram
Panchayat concerning the ward.
• To mobilise voluntary action for public goods and services.
• To ensure that members of Ward Sabha pay taxes and repay loans.
• To suggest location of public services like street light, toilets, public wells
etc.
• To impart awareness on matters of public interest such as environment,
sanitation, pollution.

Ward Sabha also takes up any other issue which concerns the members of the
ward and raises it at Gram Sabha, Gram Panchayat level for resolving the
problems. Ward Sabha has been effective channel for people to directly participate
in managing their development needs.

Meetings of Ward Sabha

Subject to orders of the Government ward sabha meets at least once in six month.

Limitations
Ward Sabha is a viable mechanism for active participation of all section of people
at the very root of the society. However, there are limitations which can thwart
people’s role in governance
• Lack of education among majority in rural areas.
• Lack of awareness among weaker sections.
• Lack of knowledge among panchs and Sarpanchs about provisions of ward
sabha.
• Domination of rich and elite in decision making.
• Exclusion of women and other weaker sections from ward sabha meetings.
Activity 3
Select some adult members in your locality and ask them about their
perception of Ward Sabha. Also ask some Ward representatives and question
them on Ward Sabha meeting. Note down the difficulties involved in direct
questioning.

1.6 INCLUSIVE PARTICIPATION

The right to participate in linked to rights of inclusion and to rights to obligations,
16 through which poor people may expect to hold governments more accountable
and responsive. It is essential that civil society and government must work together Peoples Participation in
Governance and Development
to make sure that participatory local governance programmes are inclusive and
equitable in order to correct power imbalances that exist at local level. For
inclusive governance the existence of diversity and differences has to be
recognised. The salient features of inclusive participation are-

• Team work and collaboration.

• Individual and group activity.
• Action and ownership.
• Reflection and learning.
It has been observed that due to wide disparities in economic, social and political
status of people in India, many individuals or sometimes the whole section are
excluded from development because of their gender, ethnicity, disability or
poverty. The effect of such exclusion is huge deepening the already existing
inequalities.

Development must encompass the whole spectrum of the society so that all
stakeholders in the outcome of development have participation and say in the
process. Gram Sabha, Panchayat institutions are instruments for inclusive
participation if their potential is properly harnessed. These institutions have inbuilt
mechanism to include all sections of society in all decision making and
development process. It ensures optimum utilisation of local resources including
human resources for capacity building of local population. The legal provisions
of Panchayat act ensure compulsory participation of women, SC/ST and other
weaker sections. Inclusive participation is at the centre of achieving equitable
development where in the fruits of the process of development are consumed at
all levels. The mere inclusion of all ensures its correct path and optimization of
resources. The effect of not harnessing the great potential of women as human
resource has been felt all around.
Check Your Progress 2
1) The 73rd Constitutional Amendment Act has led to true empowerment of
people at grass root level by giving equal opportunity to all in development.
Comment.
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Peoples Participation 2) How Gram Sabha controls the resource utilisation in its geographical
jurisdiction? Is it a true representative of all sections of society?
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3) Decentralisation of governance is better than centralized governance in a

developing country. Explain the merits and demerits of the statement.
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1.7 LET US SUM UP

In this unit, we discussed the meaning and concept of participation. The
significance of participation in development policy was examined with reference
to international experiences and in Indian context. We examined various ways
of involving people in development process and disadvantages of non
participation in the process. We had a look at experience of Decentralised
governance in India since Independence and background which paved the way
for enactment of 73rd Constitutional Amendment Act in 1992. Later we studied
the structure of Panchayati Raj in rural areas and examined in some detail about
the role and functions of Gram Sabha and Ward Sabha in formalising the local
self governance in India. The importance of Inclusive Participation was briefly
highlighted in the last section of the unit.

1.8 KEYWORDS
Participation: Taking part in an activity which impacts the individual itself or
his community.

Sustainability: Used with reference to development for planning and schemes

which create capacity for long term self survival and not meant for short term
objective.

Panchayati Raj Institution: A three tier structure of local self governance as

part of policy of Decentralised governance. A constitutional obligation for Indian
States to establish the Panchayati Raj Institutions in rural areas.
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Gram Sabha: A general assembly of all members of a Village who are enrolled Peoples Participation in
Governance and Development
as voters in electoral roll. Meets at least twice a year to discuss development
issues of village.

Sarpanch: The head of the Gram Panchayat directly elected by the electorates
in a Gram Panchayat.

1.9 REFERENCES AND SUGGESTED READINGS

Allen, J (ed.) (2003) Inclusion, Participation and Democracy: What is the
Purpose? Springer.

Das, Purnendu Sekhar (ed) (2005) Decentralised Planning and Participatory

Rural Development, Vidya Sagar University, Dept. of Economics with Rural
Development New Delhi.

Datta, Prabhat (2006). Decentralisation, Participation and Governance, Kalpaz

Publication, New Delhi.

Joseph, T.M. (ed.) (2003) Local Governance in India- Ideas, Challenges and
Strategies. Concept Publishing Co. New Delhi.

Joel, S. and G R Bhore (2003) NGOs and Rural Development. Concept Publishing
House New Delhi.

Kumar, Somesh (2002) Methods for Community Participation, Vistaar

Publications New Delhi.

Murleedharan, K. (2006) Participatory Development Issues and Lessons, Serials

Publications New Delhi.

Planning Commission of India- India Vision 2020, GOI, New Delhi.

Planning Commission of India- National Human Development Report 2001,

GOI, N.Delhi.

Subramanium, K. C. (ed.) (2006) People’s Participation in Urban Governance,

Institute of Social Sciences, Concept Publishing House New Delhi.

Zubair Mennai (2008) Participatory Community Work. Concept Publishing

Company N. Delhi.

Wesites www.iiasiisa.be, FAO.org/participation,

www.infochange.org

1.10 CHECK YOUR PROGRESS – POSSIBLE

ANSWERS
Check Your Progress 1
1) What do you understand by Participation? Explain why it is important for
development.

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Peoples Participation Answer: Participation literally means taking part in some activity. By taking
part in an activity an individual or group can exert its opinion and views
based on the first hand information about any place, environment or any
enabling condition that may be essential for successful implementation of
a scheme or policy. In development sphere, it is important to know the
local know how to correctly devise and plan schemes compatible with
local conditions. Hence, participation is extremely essential in development
field to collect local information by involving local people at all stages.

2) Is the concept of self sufficient village of ancient India an ideal example of

people’s participation in their affairs?

Answer: India has had a long history of self governing village societies
through Panchayat institutions. The relative isolation of villages in India
in ancient times made it almost compulsive for people to learn to govern
themselves. The Panchayats had the sanction of the society to engage into
not only development issues but many a times they were called upon for
maintenance of law and order, discharge judicial functions and resolution
of disputes in its territory. They worked as perfect institutions of governance
at that time but in today’s modern times it may not feasible to expand their
sphere beyond development issues since there are other structures to take
care of other functions on an all India level. Panchayats are potent
institutions for development purposes even today as reflected in the success
of Panchayati Raj in many places.
Check Your Progress 2
1) The 73rd Constitutional Amendment Act has led to true empowerment of
people at grass root level by giving equal opportunity to all in development.
Comment.

Answer: The 73rd Constitutional amendment has provided for local self
governance and participation of all sections in the development process by
giving reservations to weaker sections including women. The Gram Sabha
and Gram Panchayats are true representatives of people who have stake in
the process of development. However the dynamics of rural society, polity
and economy does play role in determining the functions of Panchayats at
grass root level. For example on a reserved seat for women either the women
of ruling elite get elected or women is by proxy represented by male of the
family thus diluting the very concept of democratization.

2) How Gram Sabha controls the resource utilisation in its geographical

jurisdiction? Is it a true representative of all sections of society?

Answer: Gram Sabha is the general assembly of people in a village which

decide on all matters related to the village. The functions include decision
on beneficiary of schemes, approval of development plans for the village,
collection of information on all issues of development. The decisions taken
in Gram Sabha are collective where all sections of society have equal
representation.

3) Decentralisation of governance is better than centralized governance in a

developing country. Explain the merits and demerits of the statement.
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Answer: Decentralisation of governance is a better method of development Peoples Participation in
Governance and Development
since it involves participation of people in the very process itself rather
than at the end of it when end result is given to people. In developing
societies, there is need to involve people to ensure equitable distribution
of development. The centralized planning approach followed world over
failed to do justice to large majority widening the gap between elites and
deprived. However decentralized planning needs to be followed with care
as majority of people in developing countries are illiterate and unaware.

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