Zahid Iqbal
The Promise Of Grassroots Democracy: The Panchayati Raj system in India represents one of the most ambitious experiments in democratic decentralization. Conceived as a three-tier structure of local self-governance—village, block, and district—it seeks to bring administration closer to the people. The watershed moment in its evolution came with the 73rd Constitutional Amendment Act, which accorded constitutional status to Panchayats, mandated regular elections, ensured financial devolution, and institutionalized reservations, including 33 percent for women. The amendment aimed not merely at administrative efficiency but at participatory democracy and inclusive governance.
Jammu & Kashmir| A Distinct Constitutional Trajectory: Unlike other states, Jammu & Kashmir historically operated outside the direct ambit of the 73rd Amendment due to its special constitutional position under Article 370. Instead, local governance was regulated by the Jammu and Kashmir Panchayati Raj Act, which established a separate framework for Panchayati institutions.
The constitutional reconfiguration of August 2019 marked a turning point. Following the abrogation of Article 370, the Union Territory embarked on aligning its governance structures with the broader Indian constitutional architecture. The introduction of District Development Councils (DDCs) was projected as a significant stride toward institutionalizing district-level planning and strengthening decentralization.
Budgetary Commitments, Developmental Assertions: In recent years, the Union Government has allocated substantial financial resources for Jammu & Kashmir, with overall budgetary provisions reportedly exceeding ₹43,000 crore. These allocations ostensibly reflect a robust commitment to infrastructural expansion, rural development, and institutional empowerment.
However, fiscal commitment on paper does not invariably translate into tangible outcomes. The critical question remains whether financial devolution has meaningfully enhanced the functional autonomy and operational capacity of Panchayati institutions.
Implementation Deficits, Administrative Bottlenecks: At the grassroots level, a discernible disjunction persists between official narratives and lived realities. While sanctioned projects populate administrative records, numerous rural areas continue to grapple with incomplete roads, dysfunctional drainage systems, and stalled community infrastructure. Bureaucratic inertia, procedural delays, constrained financial autonomy, and limited technical support impede effective implementation. The opacity surrounding fund utilization further erodes public trust. In certain instances, development appears more conspicuous in documentation than on the ground—raising concerns about transparency and accountability.
“For Panchayati Raj to succeed, it must shift from a structural formality to a tangible, participatory reality. Without genuine local responsiveness and equity, grassroots democracy remains a mere policy concept rather than a functional system.”
Nepotism And The Phenomenon Of Proxy Governance: Another disquieting trend pertains to allegations of nepotism in the allocation of developmental works and benefits. The concentration of contracts and opportunities within narrow familial or associative networks undermines the normative ideals of equity and fairness that Panchayati Raj seeks to uphold.
Equally troubling is the phenomenon colloquially referred to as “Sarpanch Pati,” wherein husbands of elected women representatives exercise de facto authority. While women’s reservation was intended to catalyze political empowerment and gender parity, proxy decision-making subverts this objective. When elected women representatives are relegated to symbolic roles and substantive authority is exercised by unelected spouses, the democratic ethos is compromised.
Democratic Discontinuity, Structural Concerns : The vitality of grassroots democracy is contingent upon regular electoral renewal. The last Panchayat elections in Jammu & Kashmir were conducted in 2018, and the five-year tenure concluded in January 2024. The absence of timely elections since then raises legitimate apprehensions about democratic continuity and institutional legitimacy. Moreover, structural impediments—including inadequate capacity-building, limited fiscal decentralization, and social hierarchies—continue to circumscribe the transformative potential of Panchayati Raj institutions in the region.
Conclusion|From Structure To Substance: The true test of Panchayati Raj in Jammu & Kashmir does not lie in constitutional alignment or budgetary announcements, but in the everyday realities of rural citizens. Decentralisation was envisioned as a transformative shift—from centralized authority to community-led governance. For that vision to materialise, institutions must function with autonomy, transparency, and accountability. Timely elections, strict oversight of fund utilisation, capacity-building of representatives, and protection of women’s independent political agency are essential steps forward. Grassroots democracy cannot thrive as a symbolic framework; it must evolve into a lived experience for the people it is meant to serve. If governance at the village level becomes responsive, participatory, and equitable, Panchayati Raj can truly fulfil its constitutional promise. Otherwise, it risks remaining a structural reform celebrated in policy documents but inadequately realised on the ground.
(The author is a freelancer. The views, opinions and conclusions expressed in this article are those of the author and aren’t necessarily in accord with the views of “Kashmir Horizon”)
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