Publication:
Two Hundred and Fifty-Thousand Democracies: A Review of Village Government in India

Loading...
Thumbnail Image
Files in English
English PDF (839.03 KB)
221 downloads
English Text (117.55 KB)
19 downloads
Date
2024-06-05
ISSN
Published
2024-06-05
Author(s)
George, Siddharth
Sharan, M. R.
Editor(s)
Abstract
In 1992, the 73rd Amendment to the Indian Constitution created 250,000 village democracies (called Gram Panchayats) covering 800 million citizens. It mandated regular elections, deliberative spaces, and political reservations for women and disadvantaged castes. The unprecedented variation in democratic experience that emerged from this has resulted in a large body of research that provides insights into the intersection between democracy, governance, and development. This paper reviews this literature, showing that India’s democratic trajectory has been shaped by four broad forces: a 3,000 year tradition of debate and deliberation, colonial policies, the contrasting ideologies of central players in the formation of modern India—Gandhi and Ambedkar—and the 73rd Amendment. The paper distills key findings from the empirical literature on the effectiveness of local politicians and bureaucrats, political reservations, public finance, deliberative democracy, and service delivery. It concludes with a set of policy recommendations for improving the functioning of the Panchayats in India, emphasizing the need for greater devolution and improved local fiscal capacity. It also argues that urban governments in India would benefit from learning from the experience of Gram Panchayats.
Link to Data Set
Citation
George, Siddharth; Rao, Vijayendra; Sharan, M. R.. 2024. Two Hundred and Fifty-Thousand Democracies: A Review of Village Government in India. Policy Research Working Paper; 10793. © World Bank. http://hdl.handle.net/10986/41662 License: CC BY 3.0 IGO.
Associated URLs
Associated content
Report Series
Report Series
Other publications in this report series
  • Publication
    The Macroeconomic Implications of Climate Change Impacts and Adaptation Options
    (Washington, DC: World Bank, 2025-05-29) Abalo, Kodzovi; Boehlert, Brent; Bui, Thanh; Burns, Andrew; Castillo, Diego; Chewpreecha, Unnada; Haider, Alexander; Hallegatte, Stephane; Jooste, Charl; McIsaac, Florent; Ruberl, Heather; Smet, Kim; Strzepek, Ken
    Estimating the macroeconomic implications of climate change impacts and adaptation options is a topic of intense research. This paper presents a framework in the World Bank's macrostructural model to assess climate-related damages. This approach has been used in many Country Climate and Development Reports, a World Bank diagnostic that identifies priorities to ensure continued development in spite of climate change and climate policy objectives. The methodology captures a set of impact channels through which climate change affects the economy by (1) connecting a set of biophysical models to the macroeconomic model and (2) exploring a set of development and climate scenarios. The paper summarizes the results for five countries, highlighting the sources and magnitudes of their vulnerability --- with estimated gross domestic product losses in 2050 exceeding 10 percent of gross domestic product in some countries and scenarios, although only a small set of impact channels is included. The paper also presents estimates of the macroeconomic gains from sector-level adaptation interventions, considering their upfront costs and avoided climate impacts and finding significant net gross domestic product gains from adaptation opportunities identified in the Country Climate and Development Reports. Finally, the paper discusses the limits of current modeling approaches, and their complementarity with empirical approaches based on historical data series. The integrated modeling approach proposed in this paper can inform policymakers as they make proactive decisions on climate change adaptation and resilience.
  • Publication
    Global Poverty Revisited Using 2021 PPPs and New Data on Consumption
    (Washington, DC: World Bank, 2025-06-05) Foster, Elizabeth; Jolliffe, Dean Mitchell; Ibarra, Gabriel Lara; Lakner, Christoph; Tettah-Baah, Samuel
    Recent improvements in survey methodologies have increased measured consumption in many low- and lower-middle-income countries that now collect a more comprehensive measure of household consumption. Faced with such methodological changes, countries have frequently revised upward their national poverty lines to make them appropriate for the new measures of consumption. This in turn affects the World Bank’s global poverty lines when they are periodically revised. The international poverty line, which is based on the typical poverty line in low-income countries, increases by around 40 percent to $3.00 when the more recent national poverty lines as well as the 2021 purchasing power parities are incorporated. The net impact of the changes in international prices, the poverty line, and new survey data (including new data for India) is an increase in global extreme poverty by some 125 million people in 2022, and a significant shift of poverty away from South Asia and toward Sub-Saharan Africa. The changes at higher poverty lines, which are more relevant to middle-income countries, are mixed.
  • Publication
    Geopolitical Fragmentation and Friendshoring
    (Washington, DC: World Bank, 2025-06-26) Grover, Arti; Vézina, Pierre-Louis
    This paper examines the relationship between geopolitical fragmentation and friendshoring of foreign investments over time, countries, and sectors. The analysis uses comprehensive data on foreign direct investments covering greenfield projects, mergers and acquisitions, and stocks of affiliates, as well as data on four alternative measures of geopolitical distance between countries. The gravity estimations suggest that, first, geopolitical differences have a negative effect on foreign investments and the magnitude has heightened in the post-pandemic period compared to a decade ago. Second, it is primarily the companies from advanced Western economies whose foreign investment decisions are increasingly shaped by friendshoring forces. Finally, the paper shows that friendshoring is not only confined to strategic industries, implying that allocations of foreign direct investments may not solely reflect national security or resilience considerations.
  • Publication
    Soaring Food Prices Threaten Recent Economic Gains in the EU
    (Washington, DC: World Bank, 2025-07-02) Robayo, Monica; Lucchetti, Leonardo Ramiro; Delgado-Prieto, Lukas; Badiani-Magnusson, Reena
    The surge in food prices following the 2021 economic rebound has become a significant concern for households, particularly low-income ones, in Bulgaria, Croatia, Poland, and Romania. Food price inflation, which surpasses general inflation rates, risks worsening poverty and food insecurity in these countries. This paper explores the distributional impacts of rising food prices and the effectiveness of government response measures. Low-income households, who allocate a larger share of their income to food, are disproportionately affected and are struggling to cope with unexpected expenses, leading to increased difficulties in accessing proper nutrition. Simulations indicate that rising food prices contribute to higher poverty rates and greater income inequality, especially among vulnerable populations. They also suggest that the main poverty-targeted social assistance schemes offer critical support for the extreme poor, but expanding both coverage and benefits is vital to shield all at-risk individuals. Targeted policies that balance immediate relief with long-term resilience-building are essential to addressing the challenges posed by escalating food prices.
  • Publication
    Disentangling the Key Economic Channels through Which Infrastructure Affects Jobs
    (Washington, DC: World Bank, 2025-04-03) Vagliasindi, Maria; Gorgulu, Nisan
    This paper takes stock of the literature on infrastructure and jobs published since the early 2000s, using a conceptual framework to identify the key channels through which different types of infrastructure impact jobs. Where relevant, it highlights the different approaches and findings in the cases of energy, digital, and transport infrastructure. Overall, the literature review provides strong evidence of infrastructure’s positive impact on employment, particularly for women. In the case of electricity, this impact arises from freeing time that would otherwise be spent on household tasks. Similarly, digital infrastructure, particularly mobile phone coverage, has demonstrated positive labor market effects, often driven by private sector investments rather than large public expenditures, which are typically required for other large-scale infrastructure projects. The evidence on structural transformation is also positive, with some notable exceptions, such as studies that find no significant impact on structural transformation in rural India in the cases of electricity and roads. Even with better market connections, remote areas may continue to lack economic opportunities, due to the absence of agglomeration economies and complementary inputs such as human capital. Accordingly, reducing transport costs alone may not be sufficient to drive economic transformation in rural areas. The spatial dimension of transformation is particularly relevant for transport, both internationally—by enhancing trade integration—and within countries, where economic development tends to drive firms and jobs toward urban centers, benefitting from economies scale and network effects. Turning to organizational transformation, evidence on skill bias in developing countries is more mixed than in developed countries and may vary considerably by context. Further research, especially on the possible reasons explaining the differences between developed and developing economies, is needed.
Journal
Journal Volume
Journal Issue

Related items

Showing items related by metadata.

  • Publication
    Oral Democracy and Women’s Oratory Competency in Indian Village Assemblies
    (World Bank, Washington, DC, 2015-09) Sanyal, Paromita; Rao, Vijayendra; Prabhakar, Umang
    In democracies, innovative political institutions have opened up scope for direct public participation often in the form of talk: citizens talking to the state and mutual talk among citizens on matters concerning community development. A prominent example is the Indian gram sabha, or village assembly, which occurs in a highly stratified context. This paper undertakes a talk-centered analysis of the gram sabha with a focus on examining the oral participation of women in general and women affiliated with microcredit self-help groups who have access to an associational life. The qualitative analysis of 255 gram sabha transcripts from four South Indian states finds that women associated with microcredit self-help groups employ a wider variety of narrative styles and utilize a more multilayered structure to convey their messages compared with all women taken together. Thus, the difference is not so much in the numerical instances of talking or in the types of issues raised, but rather in the quality of participation. The paper makes an important theoretical contribution by proposing the concept of oral democracy as an alternative to deliberative democracy, and urges an analytical focus on the oral or oratory competency of subordinated groups as they participate in these important institutions.
  • Publication
    Deliberative Democracy in India
    (World Bank, Washington, DC, 2017-03) Parthasarathy, Ramya; Rao, Vijayendra
    This paper traces the evolution of deliberative institutions in India to understand the role of deliberation in democratic life, as well as the ways in which deliberative bodies influence, and are influenced by, entrenched social inequality. The paper first unpacks the historical roots of Indian deliberation in the pre-colonial and colonial periods, emphasizing the ways in which religious traditions fostered a culture of debate and dialogue. The paper then explores the interplay between Western liberal philosophers, most notably Henry Maine, and Indian political thinkers, including Gandhi and Ambedkar, on participatory democracy in India. The discussion then highlights the continued dialogue between Indian and Western ideas in the push for greater participatory development. Finally, the paper probes the current incarnation of state-sponsored deliberation in India -- namely, village assemblies known as gram sabhas under the constitutionally mandated system of Indian village democracy or Panchayati Raj -- and reviews the growing empirical scholarship about these village assemblies.
  • Publication
    The Anatomy of Failure : An Ethnography of a Randomized Trial to Deepen Democracy in Rural India
    (World Bank, Washington, DC, 2014-06) Ananthpur, Kripa; Malik, Kabir; Rao, Vijayendra
    Programs that induce citizen participation to improve the quality of government at the local level are the subjects of large amounts of funding and intense debate. This paper combines a randomized control trial of a citizenship training and facilitation program in rural India, with an in-depth, four-year ethnography of the intervention to understand the underlying mechanisms of change. The quantitative data show no impact from the intervention. Household and village survey data from 100 treatment and 100 control villages show considerable improvement across a wide variety of governance and participation indicators over time, but the differences in the changes between treatment and control villages are not statistically significant. The detailed qualitative data from a 10 percent subsample allow us to unpack the reasons why the intervention "failed," highlighting the role of variations in the quality of facilitation, lack of top-down support, and difficulties with confronting the stubborn challenge of persistent inequality. However, the qualitative investigation also uncovered subtle treatment effects that are difficult to observe in structured surveys. The paper thus demonstrates that a concerted effort to use "thick description" to uncover the process of change using careful and detailed qualitative work can add value to standard impact evaluations.
  • Publication
    The Added Value of Local Democracy
    (World Bank, Washington, DC, 2023-08-30) Arora, Abhishek; George, Siddharth; Rao, Vijayendra; Sharan, MR
    Governments across the world have increasingly devolved powers to locally elected leaders. This paper studies the consequences of local democracy, exploiting a natural experiment in Karnataka, India. Local elections were postponed in 2020, resulting in appointed administrators taking over governance in villages whose elected leaders completed their terms that year. This created quasi-random variation in the governance regime across villages. The paper brings together a rich set of administrative datasets—budgetary allocations from the universe of 6,000 villages, more than a million public works projects, local bureaucratic attendance, welfare benefits, and a primary survey of more than 11,810 households—to estimate the impacts of local democracy. The findings show that local democracy aligns spending more closely with citizen preferences, but these gains accrue more to men, upper castes, and other advantaged social groups. Elected leaders are more responsive to citizen needs and cause local bureaucrats to exert more effort. However, appointed administrators perform better on aspects of governance that are aligned with their specialized skills. Local democracy improves governance in some domains, but it has no overall impact on economic outcomes or effectiveness of COVID-19 management.
  • Publication
    Framing Local Conflict and Justice in Bangladesh
    (2011-08-01) Maru, Vivek; Das, Maitreyi Bordia
    The institutional landscape of local dispute resolution in Bangladesh is rich: it includes the traditional process of shalish, longstanding and impressive civil society efforts to improve on shalish, and a somewhat less-explored provision for gram adalat or village courts. Based on a nationally representative survey, qualitative evidence from focus groups, and a telephone survey of 40 Union Parishad chairpersons (a little less than 1 percent of the total Union Parishads), it provides both an empirical mapping of local conflict and justice and pointers to possible policy reforms. It suggests a number of opportunities for strengthening local justice and argues that the village courts may pose a useful bridge between Bangladesh's informal and formal justice institutions.

Users also downloaded

Showing related downloaded files

  • Publication
    World Development Report 1984
    (New York: Oxford University Press, 1984) World Bank
    Long-term needs and sustained effort are underlying themes in this year's report. As with most of its predecessors, it is divided into two parts. The first looks at economic performance, past and prospective. The second part is this year devoted to population - the causes and consequences of rapid population growth, its link to development, why it has slowed down in some developing countries. The two parts mirror each other: economic policy and performance in the next decade will matter for population growth in the developing countries for several decades beyond. Population policy and change in the rest of this century will set the terms for the whole of development strategy in the next. In both cases, policy changes will not yield immediate benefits, but delay will reduce the room for maneuver that policy makers will have in years to come.
  • Publication
    Supporting Youth at Risk
    (World Bank, Washington, DC, 2008) Cohan, Lorena M.; Cunningham, Wendy; Naudeau, Sophie; McGinnis, Linda
    The World Bank has produced this policy Toolkit in response to a growing demand from our government clients and partners for advice on how to create and implement effective policies for at-risk youth. The author has highlighted 22 policies (six core policies, nine promising policies, and seven general policies) that have been effective in addressing the following five key risk areas for young people around the world: (i) youth unemployment, underemployment, and lack of formal sector employment; (ii) early school leaving; (iii) risky sexual behavior leading to early childbearing and HIV/AIDS; (iv) crime and violence; and (v) substance abuse. The objective of this Toolkit is to serve as a practical guide for policy makers in middle-income countries as well as professionals working within the area of youth development on how to develop and implement an effective policy portfolio to foster healthy and positive youth development.
  • Publication
    Impact Evaluation in Practice, Second Edition
    (Washington, DC: Inter-American Development Bank and World Bank, 2016-09-13) Gertler, Paul J.; Martinez, Sebastian; Premand, Patrick; Rawlings, Laura B.; Vermeersch, Christel M. J.
    The second edition of the Impact Evaluation in Practice handbook is a comprehensive and accessible introduction to impact evaluation for policy makers and development practitioners. First published in 2011, it has been used widely across the development and academic communities. The book incorporates real-world examples to present practical guidelines for designing and implementing impact evaluations. Readers will gain an understanding of impact evaluations and the best ways to use them to design evidence-based policies and programs. The updated version covers the newest techniques for evaluating programs and includes state-of-the-art implementation advice, as well as an expanded set of examples and case studies that draw on recent development challenges. It also includes new material on research ethics and partnerships to conduct impact evaluation. The handbook is divided into four sections: Part One discusses what to evaluate and why; Part Two presents the main impact evaluation methods; Part Three addresses how to manage impact evaluations; Part Four reviews impact evaluation sampling and data collection. Case studies illustrate different applications of impact evaluations. The book links to complementary instructional material available online, including an applied case as well as questions and answers. The updated second edition will be a valuable resource for the international development community, universities, and policy makers looking to build better evidence around what works in development.
  • Publication
    World Development Report 2004
    (World Bank, 2003) World Bank
    Too often, services fail poor people in access, in quality, and in affordability. But the fact that there are striking examples where basic services such as water, sanitation, health, education, and electricity do work for poor people means that governments and citizens can do a better job of providing them. Learning from success and understanding the sources of failure, this year’s World Development Report, argues that services can be improved by putting poor people at the center of service provision. How? By enabling the poor to monitor and discipline service providers, by amplifying their voice in policymaking, and by strengthening the incentives for providers to serve the poor. Freedom from illness and freedom from illiteracy are two of the most important ways poor people can escape from poverty. To achieve these goals, economic growth and financial resources are of course necessary, but they are not enough. The World Development Report provides a practical framework for making the services that contribute to human development work for poor people. With this framework, citizens, governments, and donors can take action and accelerate progress toward the common objective of poverty reduction, as specified in the Millennium Development Goals.
  • Publication
    World Development Report 2009
    (World Bank, 2009) World Bank
    Places do well when they promote transformations along the dimensions of economic geography: higher densities as cities grow; shorter distances as workers and businesses migrate closer to density; and fewer divisions as nations lower their economic borders and enter world markets to take advantage of scale and trade in specialized products. World Development Report 2009 concludes that the transformations along these three dimensions density, distance, and division are essential for development and should be encouraged. The conclusion is controversial. Slum-dwellers now number a billion, but the rush to cities continues. A billion people live in lagging areas of developing nations, remote from globalizations many benefits. And poverty and high mortality persist among the world’s bottom billion, trapped without access to global markets, even as others grow more prosperous and live ever longer lives. Concern for these three intersecting billions often comes with the prescription that growth must be spatially balanced. This report has a different message: economic growth will be unbalanced. To try to spread it out is to discourage it to fight prosperity, not poverty. But development can still be inclusive, even for people who start their lives distant from dense economic activity. For growth to be rapid and shared, governments must promote economic integration, the pivotal concept, as this report argues, in the policy debates on urbanization, territorial development, and regional integration. Instead, all three debates overemphasize place-based interventions. Reshaping Economic Geography reframes these debates to include all the instruments of integration spatially blind institutions, spatially connective infrastructure, and spatially targeted interventions. By calibrating the blend of these instruments, today’s developers can reshape their economic geography. If they do this well, their growth will still be unbalanced, but their development will be inclusive.