Downloaded by [University of Defence] at 21:06 09 May 2016 Undermining Local Democracy Downloaded by [University of Defence] at 21:06 09 May 2016 This page intentionally left blank Downloaded by [University of Defence] at 21:06 09 May 2016 Undermining Local Democracy Parallel Governance in Contemporary South India Lalita Chandrashekhar Downloaded by [University of Defence] at 21:06 09 May 2016 Rutledge ٢٥٧٢£ Taylor & Francis LONDON NEW YORK NEW DELHI First published 2011 in India by Routledge 912–915 Tolstoy House, 15–17 Tolstoy Marg, Connaught Place, New Delhi 110 001 Simultaneously published in the UK by Routledge 2 Park Square, Milton Park, Abingdon, OX14 4RN Routledge is an imprint of the Taylor & Francis Group, an informa business © 2011 Lalita Chandrashekhar Typeset by Star Compugraphics Private Limited D–156, Second Floor Sector 7, Noida 201 301 All rights reserved. No part of this book may be reproduced or utilised in any form or by any electronic, mechanical or other means, now known or hereafter invented, including photocopying and recording, or in any information storage and retrieval system without permission in writing from the publishers. British Library Cataloguing-in-Publication Data Downloaded by [University of Defence] at 21:06 09 May 2016 A catalogue record of this book is available from the British Library ISBN: 978-0-415-59747-0 To my parents Downloaded by [University of Defence] at 21:06 09 May 2016 This page intentionally left blank Downloaded by [University of Defence] at 21:06 09 May 2016 CONTENTS List of Abbreviations ix List of Diagrams, Figure and Table xv Foreword xvii Preface xix Acknowledgements xxi 1. Introduction 1 2. Local Government in India 5 3. Panchayat Raj in Karnataka 20 4. Parallel Bodies 50 5. Parastatal Bodies in Karnataka 66 6. The Sarva Shiksha Abhiyan 87 7. Watershed Development 121 8. Societies Galore! 153 9. Conclusion 199 Bibliography 210 About the Author 218 Downloaded by [University of Defence] at 21:06 09 May 2016 Index 219 This page intentionally left blank Downloaded by [University of Defence] at 21:06 09 May 2016 LIST OF ABBREVIATIONS AG Area Group ANM Auxiliary Nurse and Midwife APERP Andhra Pradesh Economic Restructuring Project ASHA Accredited Social and Health Activist BADP Border Area Development Programme BCM Backward Classes and Minorities BDA Bangalore Development Authority BDO Block Development Officer BEO Block Education Officer BIC Block Implementation Committee BJP Bharatiya Janata Party BLEC Block-level Expert Committee BPL Below Poverty Line BRC Block Resource Centre BSDB Bayaluseeme Development Board BWH borewell with handpump BWSSB Bangalore Water Supply and Sewerage Board CAG Comptroller and Auditor General CAPART Council for Advancement of People’s Action and Rural Technology CBO Community-based Organization CDP Community Development Programme CDPO Child Development Project Officer CFT Cluster Facilitation Team CM Chief Minister CMEY Chief Minister’s Empowerment of Youth Downloaded by [University of Defence] at 21:06 09 May 2016 CPI Commissioner for Public Instruction CPI (M) Communist Party of India (Marxist) CRC Cluster Resource Centre CRP Cluster Resource Person CSDS Centre for the Study of Developing Societies DANIDA Danish International Development Agency DDA Delhi Development Authority DDP Desert Development Programme DDPI Deputy Director of Public Instruction x Undermining Local Democracy DfID Department for International Development DIC District Implementing Committee DPAP Drought-Prone Areas Programme DPC District Planning Committee DPEP District Primary Education Programme DPU District Project Unit DRDA District Rural Development Agency DSERT Department of State Education, Research and Training DWACRA Development of Women and Children in Rural Areas DWDA District Watershed Development Agency DWDO District Watershed Development Officer EC Executive Committee EO Education Officer EWS Economically Weaker Section FNGO Field NGO GoK Government of Karnataka GP Gram Panchayat GVS Gram Vikas Samiti HIG Higher Income Group HKDB Hyderabad-Karnataka Development Board HRD Human Resources Development IADP Intensive Agricultural District Programme ICDS Integrated Child Development Service IDF Initiative for Development Foundation IIM Indian Institute of Management IMF International Monetary Fund ITDP Intensive Tribal Development Programme IWDP Integrated Watershed Development Programme JBIC Japan Bank for International Co-operation Downloaded by [University of Defence] at 21:06 09 May 2016 JD (S) Janata Dal (Secular) JD (U) Janata Dal (United) JFM Joint Forest Management JFMC Joint Forest Management Committee JRY Jawahar Rojgar Yojana JSY Jala Samvardhana Yojana JSYS Jala Samvardhana Yojana Sangha KAWAD Karnataka Watershed Development Programme List of Abbreviations xi KBCDC Karnataka Backward Classes Development Corpor- ation Limited KHB Karnataka Housing Board KLLADS Karnataka Legislators’ Local Area Development Scheme KMDC Karnataka Minorities Development Corporation Limited KPTCL Karnataka Power Transmission Corporation Limited KRWSSA Karnataka Rural Water Supply and Sanitation Agency KSAPS Karnataka State AIDS Prevention Society KSCB Karnataka Slum Clearance Board KSCSTDC Karnataka Scheduled Caste and Scheduled Tribe Development Corporation KSSP Kerala Sasthra Sahitya Parishad KSWDC Karnataka State Women’s Development Corporation LDF Left Democratic Front LNGO Lead NGO LO Local Organization MADB Malnad Area Development Board MAYA Movement for Alternatives and Youth Awareness MIG Middle Income Group MLA Member of Legislative Assembly MLC Member of Legislative Council MoA Memorandum of Association MoEF Ministry of Environment and Forests MoRD Ministry of Rural Development MP Member of Parliament MPLADS Members of Parliament Local Area Development Scheme MWS mini-water supply scheme MYRADA Mysore Resettlement and Development Agency Downloaded by [University of Defence] at 21:06 09 May 2016 NABARD National Bank for Agriculture and Rural Development NASDORA National Authority for Sustainable Development of Rainfed Areas NCRWC National Commission to Review the Working of the Constitution NGO Non-Government Organization NHG Neighbourhood Group NRHM National Rural Health Mission xii Undermining Local Democracy NTFP Non-Timber Forest Products NWDPRA National Watershed Development Project for Rainfed Areas OBC Other Backward Class PDS Public Distribution System PHC Public Health Centre PIA Project Implementing Agency PIP Project Implementation Plan PPMU Project Planning and Management Unit PRA Participatory Rapid Appraisal PRI Panchayat Raj Institution PRIA Participatory Research in Asia RDPR Rural Development and Panchayat Raj RGRHC Rajiv Gandhi Rural Housing Corporation RIDF Rural Infrastructure Development Fund RKS Rogi Kalyan Samiti RWDEP Rural Women Development and Empowerment Project SC Scheduled Caste SCERT State Council of Educational Research and Training SDC Swiss Development Corporation SDMC School Development and Monitoring Committee SFDA Small Farmers Development Agency SGRY Sampoorna Grameen Rojgar Yojana SHG Self-help Group SPMSU State Programme Management Support Unit SSA Sarva Shiksha Abhiyan SSLC Secondary School Leaving Certificate ST Scheduled Tribe SUJALA Sujala Watershed Development Project SWS Sujala Watershed Sangha Downloaded by [University of Defence] at 21:06 09 May 2016 TDB Taluk Development Board TDP Telugu Desam Party TEC Tank Executive Committee TIC Taluk Implementing Committee TP Taluk Panchayat TUC Tank User Committee TUG Tank User Group UDF United Democratic Front UEE Universal Elementary Education List of Abbreviations xiii ULB Urban Local Body VC Vigilance Committee VDC Village Development Committee VFC Village Forest Committee VGKK Vivekananda Girijana Kalyana Kendra VHSS Village Health and Sanitation Samiti VWC Village Watershed Committee VWSC Village Water Supply Committee WDC Ward Development Committee WDD Watershed Development Department WUG Water Users’ Group ZP Zilla Panchayat Downloaded by [University of Defence] at 21:06 09 May 2016 This page intentionally left blank Downloaded by [University of Defence] at 21:06 09 May 2016 LIST OF DIAGRAMS, FIGURE AND TABLE Diagrams 6.1 Sarva Shiksha Abhiyan 109 6.2 Education Department at District Level 111 8.3 Fund Channelization 191 Figure 4.1 Janmabhoomi — A Parallel Structure 59 Table 5.1 Parallel and Parastatal Bodies in Karnataka 70 Downloaded by [University of Defence] at 21:06 09 May 2016 This page intentionally left blank Downloaded by [University of Defence] at 21:06 09 May 2016 FOREWORD Karnataka has been one of the premier states in the country in institutionalizing Panchayati Raj. Following the Karnataka Zilla Parishads, Taluk Panchayat Samitis, Mandal Panchayats and Nyaya Panchayats Act 1983, district government became a reality in the state. Consequently, the President of the Zilla Panchayat enjoyed a high status and wielded considerable power. The passage of the 73rd and 74th Amendments to the Constitution, whereby 29 subjects were devolved to the districts, gave an additional fillip to the institution of Panchayati Raj. However, the gains in the field of local government — panchayats and municipalities — were short-lived. Slowly but surely, the Panchayati Raj institutions have suffered a visible erosion. Bureaucrats and elected members of the state legislature have been increasingly bypassing the panchayats and becoming power centres in the districts. One way by which the local governments are being bypassed is through the institution of parallel bodies. These