The question looms large: Will panchayat institutions in Jammu and Kashmir function more effectively after the watershed changes of 2019?
This debate is central to India's experiment with grassroots democracy in this contested region where the abrogation of Article 370 in August 2019, which led to the extension of the 73rd Constitutional Amendment to Jammu and Kashmir, has been hailed as a landmark reform by some and criticised by others for strengthening bureaucratic control, and serving as a mechanism for crisis management and perception control in the post-abrogation period.
Pre-2019: A Flawed and Symbolic Model
Before the abrogation of Article 370, the Panchayati Raj system in Jammu and Kashmir existed in a fragile and largely symbolic form. The 1989 Panchayati Raj Act was meant to establish decentralised governance, yet successive state governments failed to fully implement it.
The prevailing insurgency, political instability, and the general distrust in the on these local government institutions left these institutions largely ineffective.
Local self-governance was largely a hollow concept, with actual power residing in the hands of the state bureaucracy.
The absence of regular elections, administrative inefficiencies, and the looming security threats further hampered the legitimacy of Panchayati Raj institutions.
The Gram Sabha, which was intended to be the cornerstone of participatory democracy, failed to function effectively due to a lack of public awareness and widespread political alienation.
Critics argue that this systemic failure was maintained deliberately to prevent meaningful grassroots empowerment.
Post-2019: Genuine Decentralization or Centralized Control?
The abrogation of Article 370 and the extension of the 73rd Constitutional Amendment were presented as transformative measures to strengthen local governance, enabling direct financial transfers for streamlined allocation of funds and increased transparency in governance, besides enhanced security measures for elected representatives to help them function with reduced risk from militant reprisals.
However, critics contend that these reforms have done little to promote genuine democratization and have instead served as crises management born after the abrogation of Article 370.
The transfer of funds from New Delhi, bypassing the local government, is seen by some as an attempt to undermine regional leadership and reduce political autonomy.
The political skepticism surrounding these reforms persists, with many local leaders and citizens viewing them as a top-down imposition rather than an organic evolution of local democracy.
Structural and Logistical Challenges
Despite legal and financial advancements, Panchayati Raj institutions in Jammu and Kashmir continue to face numerous challenges. A major obstacle remains the fragile security situation. Although improved, the threat to elected representatives still looms large, with incidents of violence and intimidation continuing to undermine democratic engagement at the grassroots level.
Additionally, the lack of sufficient training for Panchayat members remains a significant barrier to effective governance. While legal authority may have been granted, many newly elected representatives lack the administrative expertise required to manage finances, oversee policy implementation, and resolve conflicts effectively. Without targeted capacity-building initiatives, these institutions are likely to remain ineffective.
Infrastructural challenges further hinder the effective functioning of Panchayati Raj institutions. Many Panchayats lack the necessary office space, digital connectivity, and administrative support to operate efficiently. Despite the push for a digital India, Jammu and Kashmir lags behind in technological integration, affecting service delivery and administrative processes at the Panchayat level.
The Devolution Index: A Stark Reality Check
According to the 2024 report titled Status of Devolution to Panchayats in States: An Indicative Evidence-Based Ranking by the Ministry of Panchayati Raj, Jammu and Kashmir ranks in the “Very Low” category, with a Devolution Index (DI) score below the national average of 43.89.
The DI measures six dimensions: Framework, Functions, Finances, Functionaries, Capacity Enhancement, and Accountability. This low ranking underscores the continued structural weaknesses in Jammu and Kashmir’s local governance system, despite the post-2019 legal and financial interventions.
Category of States States
Very High (>60) Karnataka, Kerala, Maharashtra, Tamil Nadu, Uttar Pradesh
High (>55 & ≤ 60) Chhattisgarh, Gujarat, Rajasthan, Telangana, Tripura, West Bengal
Medium (>50 & ≤ 55) Andhra Pradesh, Himachal Pradesh, Madhya Pradesh, Odisha
Low (>43.89 & ≤ 50) Assam, Bihar, Sikkim, Uttarakhand
Very Low (below National Average of 43.89)
Andaman & Nicobar Islands, Arunachal Pradesh, Dadra & Nagar
Haveli and Daman & Diu, Goa, Haryana, Jammu and Kashmir,
Jharkhand, Ladakh, Lakshadweep, Manipur, Puducherry, Punjab
(Source: status of Devolution to Panhayats in states an indicative evidence
based ranking 2024.)
This above Devolution Index ranking 2024 exposes the stark disconnect between the government’s rhetoric on strengthening grassroots democracy and the reality of its implementation in Jammu and Kashmir.
Despite post-2019 structural reforms, true decentralization remains an elusive goal, with Panchayati Raj Institutions (PRIs) still deprived of genuine financial, administrative, and political autonomy. This glaring gap underscores that local governance in the region continues to function as a controlled experiment rather than an instrument of meaningful development, reinforcing the argument that decentralization in Jammu and Kashmir is an unfinished and deeply flawed project.
Is Financial Autonomy Sufficient?
A key aspect of the post-2019 reforms has been the financial autonomy granted to Panchayats. However, allocating funds without ensuring effective governance mechanisms does not guarantee successful decentralization.
The absence of transparent and accountable systems for monitoring fund utilization remains a major issue. Without robust oversight, there is a high risk of financial mismanagement or corruption undermining the intended benefits of decentralization.
Moreover, Jammu and Kashmir’s economic dependence on sectors like agriculture and tourism, both of which are vulnerable to volatility, presents a significant challenge. While central government financial support is necessary, there remains a lack of a sustainable model for local revenue generation, which could provide long-term economic stability for Panchayats.
Political Maturity and Inclusion: A Call for Genuine Decentralization
A major challenge for Panchayati Raj in Jammu and Kashmir is fostering political maturity and ensuring inclusivity. Historically, local governance has been dominated by a few elite groups, with marginalized communities, including women, often excluded from decision-making processes.
Although recent reforms have increased women’s representation through reserved seats, true political inclusivity requires more than legal provisions — it necessitates a cultural shift in governance practices.
The political will to genuinely support these institutions must be demonstrated through actions, not just rhetoric. If both central and local governments fail to nurture democratic engagement and inclusivity, the Panchayati Raj system will remain a controlled experiment, rather than a vibrant grassroots success.
True decentralization demands that local representatives are not only financially empowered but also given the administrative independence and authority to make decisions that reflect the needs and aspirations of their constituents.
The Crisis of Trust: A Dilemma of Democratic Decentralization
The institutionalisation of Panchayati Raj in Jammu and Kashmir embodies a paradox. While the extension of the 73rd Amendment has undoubtedly granted legal and financial powers to local bodies, broader political and administrative challenges question its overall effectiveness. Has Jammu and Kashmir truly moved toward genuine grassroots democracy, or has Panchayati Raj simply become a tool for consolidating central control?
For Panchayati Raj to succeed in Jammu and Kashmir, the government must go beyond symbolic reforms and ensure that these institutions operate with real autonomy. Issues such as security concerns, bureaucratic inefficiencies, financial transparency, and political inclusivity must be addressed comprehensively. Only then will the system transition from a policy experiment to a functioning model of participatory governance.
A Political Stalemate: Delays in Elections and Governance
Despite the promises made in 2018, elections to Panchayats in Jammu and Kashmir have been repeatedly delayed. As of January 2024, many elected representatives have completed their five-year terms, and fresh elections remain pending.
This ongoing uncertainty, compounded by the delimitation of revenue villages and new reservations for Other Backward Classes (OBCs), has led to widespread criticism. Local bodies have remained defunct, with appointed bureaucrats—rather than elected representatives—taking charge of governance.
This bureaucratic control further undermines the purpose of Panchayati Raj, reducing it to a mere administrative function rather than a system of self-governance. The All Jammu and Kashmir Panchayat Conference (AJKPC) has raised concerns, calling for immediate elections and warning of mass agitation if the government fails to act
Conclusion: A Defining Moment for Local Governance
The continued delay in elections and the growing bureaucratic dominance are signs of a deeper crisis in Jammu and Kashmir’s governance. The Panchayati Raj system holds immense potential for empowering local communities, but without timely elections, structural reforms, and genuine political will, this potential will remain unfulfilled.
To revitalize local democracy, the government must ensure that Panchayats are not only legally empowered but also function autonomously, with full financial and administrative independence. Security concerns must be addressed to enable active participation, and the electoral process must be transparent and timely.
Only by strengthening Panchayati Raj Institutions with real powers and responsibility can Jammu and Kashmir achieve genuine decentralization and meaningful governance.
The future of Panchayati Raj in Jammu and Kashmir hangs in the balance, dependent on the government's ability to navigate the delicate balance between decentralization and control. If the administration fails to act decisively, the vision of grassroots democracy will continue to be an unattainable ideal rather than a functional reality.
(Farooq Ahmad Bakloo has a PhD in Political Science, and writes about various socio-economic and ecological issues related to the erstwhile state of Jammu and Kashmir. He can be contacted at: farooqmajeed19@gmail.com)
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