From Listening to Accountability: Institutionalising Participatory Governance through the Back to Village Programme in Jammu & Kashmir

Abstract

Participatory governance is central to democratic decentralisation, yet its operational effectiveness in fragile and conflict-affected regions remains under-examined. The Back to Village (B2V) programme in Jammu and Kashmir represents one of India’s largest state-led participatory governance initiatives. Implemented across five phases between 2019 and 2023, the programme ensured universal coverage of 4,483 Gram Panchayats, with approximately 5,000 senior officers deployed per phase, enabling a longitudinal assessment free from scale-expansion bias. Using a qualitative case-study approach supplemented by documentary analysis, secondary literature, official programme data, and practitioner insights, the study evaluates B2V’s governance outcomes. Descriptive statistics indicate progressive improvement in programme performance, with prioritised scheme completion rising from approximately 60 per cent in Phase II to nearly 90 per cent by Phase V. To capture institutional change, the study develops a Governance Maturity Index (GMI) and an Accountability Density Index (ADI). Findings show a systematic progression from diagnostic consultation to partial accountability enforcement, reflecting movement along Arnstein’s ladder from tokenistic participation towards partnership-oriented engagement. Accountability mechanisms expanded from none in Phase I to multiple formal instruments by Phase V, alongside diversification of participatory forums beyond Gram Sabhas. Despite these advances, uneven follow-up and continued bureaucratic dominance constrain sustainability. The study concludes that B2V demonstrates the potential of state-led participation to enhance responsiveness and trust, but durable outcomes depend on institutionalising participatory practices within routine Panchayat planning and accountability frameworks.