Panchayati Raj Institutions

The Panchayati Raj Institution (PRI) in India, established through the 73rd Constitutional Amendment Act, empowers local self-governance at the village, block, and district levels. With a focus on decentralization, the Constitution outlines functions, elections, and funds for effective governance. However, there are some challenges such as low devolution of functions, bureaucratic control, inadequate capacity building, and financial constraints. Despite these challenges, PRIs offer political, governance, and social benefits, fostering grassroots democracy and addressing local needs. To overcome issues, the government has initiated programs for capacity building, convergence, and transparency, yet further reforms are needed to strengthen PRIs.

The evolution of local governance in India traces back to Lord Ripon's initiatives who was the father of local self-government in India. Post independence, PRIs gained momentum with the Balwant Rai Mehta Committee in 1957 which proposed a three-tier system for PRIs. Subsequent committees like Ashok Mehta and GVK Rao committee also contributed to their development. Finally, Gadgil Committee gave comprehensive recommendations which laid the foundation for the 73rd and 74th Constitutional Amendments in 1992. These amendments added Part IX and IXA to the Indian Constitution, creating a three-tier system for Panchayati Raj Institutions (PRIs) and Municipalities.

The 73rd Amendment has been enacted to give Constitutional status to the Panchayati Raj system as per the directives of Article 40, signifies a decentralized approach to governance. Enacted in 1992, the amendment introduced a three-tier system of local self-government comprising Gram Panchayats, Panchayat Samitis, and Zila Parishads. They are entrusted with various functions related to economic development, social justice, and local administration. It seeks to provide ‘Democracy at the roots’ & ‘Power to the People’. There are about 2.5 lakh panchayats in India, which are represented by about 32 Lakhs people.

1. These amendments Added two new parts to the Constitution: Part IX titled “The Panchayats” (73rd Amendment) and Part IXA titled “The Municipalities” (74th Amendment).
2. Features
   • Instituted a three-tier system for local governance with constitutional recognition at village, intermediate block/taluk/mandal, and district levels.
   • Emphasized the pivotal role of Gram Sabha as the bedrock of the Panchayati Raj system.
   • Mandated regular elections to Panchayats every five years.
   • To be elected as a member of panchayat, a person must be of not less than 21 years old.
   • Direct election of all members of local bodies by the people, with reserved seats for SC/ST and women at all three levels.
   • Reserved one-third of the total seats for women.
   • Established the State Election Commission(SEC) to oversee elections.
   
   
3. Functions:
   • The Amendment delegated powers and functions for the formulation of plans related to economic development and social justice on subjects outlined in 11th Schedule.
   • The Eleventh Schedule of the Constitution delineates 29 functions falling under the purview of Panchayati Raj bodies.
   
   
4. Funds:
   • Funding sources include budgetary allocations from State Governments, a share of revenue from certain taxes, collection and retention of locally raised revenue, Central Government programs and grants, and Union Finance Commission grants (Article 243H).
   • Mandated the formation of the State Finance Commission to review the financial provisions of local bodies every 5 years.
   • Village Panchayats, empowered by the State, can impose additional stamp duties on entry fees for various entertainment functions and sub-taxes on property transfer, gifts (e.g., MPLADS), mortgage, or lease of immovable property
   
   

The Panchayati Raj framework in India operates on a three-tier structure comprising Gram Panchayats at the village level, Panchayat Samitis at the block level, and Zila Parishads at the district level. The organizational hierarchy can be outlined as follows:

1. Gram Panchayat: Village Level
   1. Elected by the Gram Sabha (comprising all village residents), the Gram Panchayat, a council of representatives, governs the village.
   2. Its Functions include village development (infrastructure), poverty alleviation, record maintenance, issuance of income certificates, revenue collection (mandated by the state government), organization of social events, and disaster management.
2. Panchayat Samiti: Block Level
   1. Panchayat Samiti members are directly elected by Gram Sabhas.
   2. Its Responsibilities encompass planning and executing rural development programs, resource mobilization, coordination with Gram Panchayats within the block, supervision of Gram Panchayats' operations, fund disbursement, and monitoring and evaluating the progress of rural development initiatives.
3. Zila Parishad: District Level
   1. Zila Parishad members are directly elected by Gram Sabhas.
   2. Its Functions include overseeing infrastructure development, managing health and education initiatives, implementing poverty alleviation programs, resource mobilization for rural development, and ensuring effective execution of development programs.

Aside from the above amendments, the government passed PESA Act in 1996 which is intended to guarantee self-governance for those residing in Scheduled Areas through giving special powers to the Gram Sabhas, especially for the management of natural resources. PESA Act extended the provisions of Panchayats in the tribal areas.

1. Political Benefits:
   • Democratic Decentralization with the election of 30 lakh representatives.
   • Empowerment of people at the grassroots level.
   • Strengthening democracy through local elections.
   
   
2. Governance Benefits:
   • Principle of Subsidiarity: Administration functions at the smallest governance unit possible, delegated upward only when the local unit can't perform the task.
   • Efficiency in public service delivery, including rural infrastructure, education, health, and safety.
   • Transparency: The Gram Sabha serves as a mechanism for Social Audit, reviewing Panchayat expenditures and ensuring accountability.
   
   
3. Social Benefits:
   • Breaking hierarchies based on caste and gender through reservations for SCs, STs, and women.
   • Fostering active citizenry, where members of society take charge of their future and become agents of positive change in their communities.
   • Increasing the availability of public goods, for example, Pani Samitis under the Jal Jivan Mission, creating a sense of ownership.
   
   

1. Functions
   • Limited devolution of functions, with no state transferring all 29 functions to PRIs.
   • Use of parallel bodies and parastatals to take over functions assigned to panchayats.
   • Lack of convergence, as various schemes and funds operate independently without coordination.
   • Low participation, irregular Gram Sabha meetings, and the absence of a coherent agenda hinder effective functioning.
   
   
2. Functionaries
   • Lack of capacity building, including leadership skills, literacy, and awareness.
   • Proxy representation issues, like the Sarpanch-Pati syndrome, hinder women's empowerment.
   • Insufficient supporting staff and corruption affecting local bodies' proper functioning.
   • Poor infrastructure, including a lack of office buildings, computers, and internet connectivity in gram panchayats.
   
   
3. Funds
   • Tied nature of funds reducing initiative from local representatives and promoting a one-size-fits-all approach.
   • They have limited powers regarding imposing cesses and taxes.
   • Irregular formation of State Finance Commissions (SFCs), and their recommendations are often not implemented.
   
   
4. Functionality
   • Emergence of a parallel governance system at the local level are encroaching upon their authority.
   • Limited capacity to deal with macro-level issues like climate change, suburban sprawl, demographic dividends, cyber security, etc.
   • Top-down approach in schemes going against the spirit of democratic decentralization, as seen in NITI Aayog's Aspirational District plan.
   
   

1. Revamp of Rashtriya Gram Swaraj Yojana(RGSA) 2022-2026: The programme aims to strengthen panchayat level governance by providing training and capacity building
2. Mission Antyodaya: convergence and accountability framework aiming to bring optimum use and management of resources allocated by 27 Ministries of the GoI under various programmes.
3. ‘Sabki Yojana Sabka Vikas’ -campaign for inclusive and holistic preparation of GPDP Gram Panchayat Development Plan
4. eGramSwaraj: web¬ based portal. It aims to bring in better transparency in decentralised planning
5. Ministry of Panchayati Raj has launched “mActionSoft” and “Gram Manchitra”, a mobile based solution for capturing photos with Geo-Tags for the works which have assets as an output.
6. Gram Urja Swaraj initiative, with an aim to promote adoption of renewable energy at Gram Panchayat level.

As we chart the way forward, it's imperative to recognize the crucial role of PRIs in establishing democratic governance at the grassroots level. Activity mapping, designation of Panchayats as "institutions of self-government," and strengthening the State Election Commission(SEC) are the steps needed for local empowerment. Decentralized planning, creation of a dedicated cadre, and specialized capacity building for functionaries are key components for building a robust local governance structure.

The improvement of PRI funding by increasing budgetary allocation, making transparent norms for fund distribution, and encouraging the levying of local taxes will lead to financial sustainability. Support for institutional credit, market borrowing, and issuing the Municipal Bonds will enhance the local financial autonomy which will foster a more robust economic foundation for PRIs.

Aside from the above, establishing an independent local body Ombudsman, enhancing social audits, and utilizing technology for monitoring mechanisms are the steps needed towards ensuring transparency and accountability. Implementing performance assessments through tools like Citizens Report Cards will add another layer of scrutiny, enhancing trust in PRI functionality. Strengthening PRIs is not just a policy imperative; it is the key to fostering inclusive development and ensuring genuine participatory democracy at the grassroots level.