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Participatory Development and Local Self-Government Reform in Rural India; Case Studies in Rajasthan

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Participatory Development and Local Self-Government Reform in Rural India; Case Studies in Rajasthan Participatory Development and Local Self-Government Reform in Rural India; Case Studies in Rajasthan Der Fakultät für Sozialwissenschaften und Philosophie der Universität Leipzig eingereichte DISSERTATION zur Erlangung des akademischen Grades doctor rerum politicarum Dr. rer. pol. vorgelegt am 1. April 1997 von von Diplom-Politologe Berthold Kuhn geboren am 21. November 1965 in Heidelberg gewidmet Kai Mohit Table of Contents TABLE OF CONTENTS List of Tables vi List of Abbreviations viii Maps x Currency Conversion Rates xii Introductory Remarks and Acknowledgements xiii 1. Introduction 1 2. The Concept of Participatory Development 11 2.1 Definition of Participatory Development 11 2.2 Conceptual Evolution and Theoretical Framework 18 2.3 Promoting Participatory Development in Project Management. Strategies and Methodologies 34 2.4 Some Research Implications 43 3. The Development Profile of India 48 3.1 Development Features Affecting Participatory Development 48 3.1.1 Poverty 48 3.1.2 Equity 53 3.1.3 Leadership 57 3.2. Government Development Policies and the Role of the Bureaucracy 63 3.3 Private Development Initiatives 73 4. Local Self-Government in India 82 4.1 Historical Evolution 82 4.2 73rd Constitutional Amendment 89 4.2.1 The Panchayati Raj Act, 1992 89 4.2.2. Assessment 92 4.3 Implementation of the Panchayati Raj Act 95 4.3.1 The Central Government's Information-, Communication-, and Co-operation policy 95 4.3.2 The Central Government Allocation of Financial Resources to Panchayats 98 4.3.3. State Level Implementation 100 4.3.4 Implementation of the 73rd Constitutional Amendment in Areas with Special Constitutional Status (the Scheduled Areas) 109 iii Table of Contents 5. Case Studies: Panchayati Raj Reform and Participatory Development in the Udaipur District of Rajasthan 112 5.1 Methodology of the Case Studies 112 5.2 Rajasthan Profile 119 5.2.1 State History, Administrative and Development Profile 120 5.2.2 Evolution of Panchayati Raj 125 5.2.2.1 Rajasthan and Panchayati Raj :Evolution of Local Self-Government 125 5.2.2.2 Rajasthan Panchayat Samiti and Zila Parishad Act, 1959 126 5.2.2.3 Evolution of Panchayati Raj in Rajasthan from 1959 until the 73rd Constitutional Amendment 130 5.2.3 The Implementation of the 73rd Constitutional Amendment in Rajasthan: Characteristics and State Reform Policy 131 5.2.3.1 The Rajasthan Panchayati Raj Act, 1994 131 5.2.3.2 Rajasthan Panchayati Raj Elections 1995 138 5.2.3.2 Training of Elected Members of Panchayats 142 5.2.3.4 The State Government Policy on Financial Resources of Panchayats 143 5.2.3.5 Implementation Reality of Devolution of Powers to Panchayats 145 5.2.3.6 The State Government Policy on Staffing of Panchayats 146 5.2.3.7 Other Panchayati Raj Policy Matters 147 5.3 Udaipur District Profile 148 5.3.1 Characteristics 149 5.3.2 Government Development Activities 152 5.3.3 NGO Development Activities 156 5.3.4 Panchayati Raj at Udaipur District Level: The Zila Parishad 162 5.3.4.1 Election and Composition of the Zila Parishad 163 5.3.4.2 Competencies 164 5.3.4.3 Zila Parishad Meeting 165 5.3.4.4 The Zila Parishad Budget 1995/96 166 5.3.4.5 Staffing of the Zila Parishad 167 5.4 Jhadol Block 169 5.4.1 Characteristics 170 5.4.2 Panchayat Samiti Jhadol 173 5.4.3 Gram Panchayat Kharkar 178 5.4.3.1 Characteristics 178 5.4.3.2 Development Findings 179 5.4.3.3 Gram Panchayat Profile and Dynamics 179 5.4.3.4 Conclusion: Development and Panchayati Raj in Kharkar 184 5.4.4 Gram Panchayat Godana 187 5.4.4.1 Characteristics 187 5.4.4.2 Development Findings 187 5.4.4.3 Gram Panchayat Profile and Dynamics 188 5.4.4.4 Conclusion: Development and Panchayati Raj in Godana 193 iv Table of Contents 5.5 Badgaon Block 195 5.5.1 Characteristics 196 5.5.2 Panchayat Samiti Badgaon 197 5.5.3 Gram Panchayat Karia 203 5.5.3.1 Characteristics of Karia 203 5.5.3.2 Development Findings 203 5.5.3.3 Gram Panchayat Profile and Dynamics 204 5.5.3.4 Conclusion: Development and Panchayati Raj in Karia 210 5.5.4 Gram Panchayat Dhar 212 5.5.4.1 Characteristics 212 5.5.4.2 Development Findings 212 5.5.4.3 Gram Panchayat Profile and Dynamics 214 5.5.4.4 Conclusion: Development and Panchayati Raj in Dhar 219 5.6 Mavli Block 222 5.6.1 Characteristics 223 5.6.2 Panchayat Samiti Mavli 224 5.6.3 Gram Panchayat Nurda 230 5.6.3.1 Characteristics 230 5.6.3.2 Development Findings 230 5.6.3.3 Gram Panchayat Profile and Dynamics 231 5.6.3.4 Conclusion: Development and Panchayati Raj in Nurda 235 5.6.4 Gram Panchayat Veerdholia 238 5.6.4.1 Characteristics 238 5.6.4.2 Development Findings 238 5.6.4.3 Gram Panchayat Profile and Dynamics 240 5.6.4.4 Conclusion: Development and Panchayati Raj in Veerdholia 246 5.7 Comparative Overview of the Case Study Experience 248 5.7.1 Functions, Competencies and Development Activities 248 of Panchayats 5.7.2 The Participation of Women 253 5.7.3 The Participation of Scheduled Castes and Scheduled Tribes 254 5.7.4 The Role of the Bureaucracy 256 5.7.5 The Role of NGOs 258 5.7.6 Party Politics 258 5.7.7 Local Development Dynamics: The Correlation of Develop- ment Indicators at Gram Panchayat and Panchayat Samiti Level 259 6 a. Conclusions 267 6 b. Schlußfolgerungen 277 Bibliography 287 Glossary 305 Index 312 Annexes: The 73rd Constitutional Amendment 315 Photographs 325 Erklärung nach § 6 (2) der Promotionsordnung 331 v List of Tables List of Tables Table 1: Local Government Expenditure and Revenue Ratio in Selected Countries 23 Table 2: Division of Responsibilities Among Panchayats for Rural Housing According to an Official Publication of the Ministry of Rural Development 96 Table 3: Division of Panchayat Responsibilities at Different Levels Rural Housing According to B.K. Thapliyal, Director of the National Institute of Rural Development in Hyderabad 97 Table 4: The Central Government Allocation of Financial Resources to Panchayats 99 Table 5: Election Schedule for Panchayats in the States (as of February 1996) 102 Table 6: Election Schedule for Panchayats in Union Territories (as of February 1996). 103 Table 7: Organigram of Administration & Government in Rajasthan 124 Table 8: Financial Provisions of the Rajasthan Panchayati Raj Act, 1994 136 Table 9: Elected Panchayati Raj Representatives in Rajasthan: Party Wise Distribution of Zila Parishad and Panchayat Samiti Majorities and Seats 139 Table 10: Elected Panchayati Raj Representatives in Rajasthan: Caste- and Sex Wise Composition ( Panchayats at all Levels) 140 Table 11: Elected Panchayati Raj Representatives in Rajasthan: Caste- and Sex Wise Composition at the Zila Parishad Level 140 Table 12: Elected Panchayati Raj Representatives in Rajasthan: Caste and Sex Wise Composition at the Panchayat Samiti (Block) Level 141 Table 13: Elected Panchayati Raj Representatives in Rajasthan: Caste- And Sex wise Composition at the Gram Panchayat Level 141 Table 14: Statistical Chart Udaipur:(1991 Census) 150 Table 15: Caste- and Sex wise Composition of the Zila Parishad Udaipur 163 Table 16: Political Party Wise Composition of the Zila Parishad Udaipur 163 Table 17: Zila Parishad Udaipur Income 166 Table 18: Zila Parishad Udaipur Expenditure 167 Table 19: Jhadol Block Statistics 170 Table 20: Reservation Quotas for Sarpanchs of 45 Gram Panchayats in Jhadol 171 Table 21: Composition of the Panchayat Samiti Jhadol 173 Table 22: Ranking of Development Indicators in the Panchayat Samiti Jhadol 177 vi List of Tables Table 23: Composition of the Gram Panchayat Kharkar in Jhadol 179 Table 24: Ranking of Development Indicators in the Gram Panchayat Kharkar 185 Table 25: Composition of the Gram Panchayat Godana in Jhadol 188 Table 26: Ranking of Development Indicators in the Gram Panchayat Godana 193 Table 27: Badgaon Block Statistics 196 Table 28: Reservation Quotas for Sarpanchs of the 25 Gram Panchayats in Badgaon 196 Table 29: Composition of the Panchayat Samiti Badgaon 197 Table 30: The Budget of the Panchayat Samiti Badgaon 1995/1996 198 Table 31: Ranking of Development Indicators in the Panchayat Samiti Badgaon 201 Table 32: Composition of the Gram Panchayat Karia 205 Table 33: Ranking of Development Indicators in the Gram Panchayat Karia 210 Table 34: Area- and Population Figures of the Different Villages of the Gram Panchayat Dhar 212 Table 35: Composition of the Gram Panchayat Dhar 215 Table 36: Ranking of Development Indicators in the Gram Panchayat Dhar 220 Table 37: Mavli Block Statistics 223 Table 38: Reservation Quotas for Sarpanchs of 47 Gram Panchayats in Mavli 223 Table 39: Composition of the Panchayat Samiti Mavli 224 Table 40: Ranking of Development Indicators in the Panchayat Samiti Mavli 228 Table 41: Composition of the Gram Panchayat Nurda 231 Table 42: Ranking of Development Indicators in the Gram Panchayat Nurda 236 Table 43: Composition of the Gram Panchayat Veerdholia 240 Table 44: Ranking of Development Indicators in the Gram Panchayat Veerdholia 246 Table 45: Comparative Overview of the Development Situation in the Three Blocks (Panchayat Samitis) 260 Table 46: Correlation Between Development Indicators for the Three Panchayat Samitis 261 Table 47: Comparative Overview of the Development Situation in the Six Gram Panchayats 262 Table 48: Correlation Between Development Indicators at the Gram Panchayat Level 263 vii List of Abbreviations List of Abbreviations ACCORD Action for Community Organisation, Rehabilitation and Development ADM Additional District Magistrate AGAK Apna Gaon Apna Kam (our village our work) AKRSP Aga Khan Rural Support Programme AVM Adivasi Vikas Manch AWARE Action for Welfare and Awakening in Rural Environment BC Backward Class BAIF Bharatiya Agro Industries BDO Block Development Officer BINGO Big non-governmental Organisation CAPART Council of Advancement of People's Action and Rural Technology CASA Church's Auxiliary for Social Action CDP Community Development Programme CII Confederation of Indian Industries CM Cube Meter DAC Development Advisory Committee of the OECD DANIDA Danish International Development Agency DM Deutsche Mark DPAP Drought Prone Area Programme DPD Desert Development Programme DRDA District Rural Development Agency DWARKA Development of Children and Women in Rural Areas (Programme) Dy.
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