PANCHAYAT RAJ INSTITUTIONS
1. Context
Recognising the significant role of panchayats in local governance, the government on April 9 launched the Panchayat Advancement Index (PAI) – “a key metric for assessing progress at the grassroots level and aiding in the formulation of localised strategies and targets for inclusive rural development”
2. Evolution of Panchayat raj institutions
- Panchayati Raj Institutions (PRIs) play a pivotal role in promoting grassroots democracy and decentralised governance across rural India. These bodies, which represent the foundation of local self-governance, were formally recognised and empowered through the 73rd and 74th Constitutional Amendments in 1992, granting constitutional status to panchayats in rural areas and municipalities in urban regions.
- However, the concept of local governance in India is not new—it has deep roots in the country's ancient traditions, with references found in the Vedas, Kautilya’s Arthashastra, the Mauryan period, and other historical texts.
- Throughout India’s history, especially before and after gaining independence, the Panchayati Raj system has seen various transformations. During British rule, decentralisation efforts began with Lord Mayo’s 1870 resolution, which supported devolving financial and administrative powers to local levels for village and town development.
- This was further advanced by Lord Ripon in 1882, whose reforms laid the groundwork for local self-government by suggesting that smaller administrative units be managed by local boards.
- The Royal Commission on Decentralisation in 1909, led by Sir Henry William, evaluated the operations of these boards and highlighted major shortcomings like limited representation and insufficient authority.
- The commission’s recommendations eventually influenced the Government of India Act of 1919. Post-independence, there was a renewed focus on decentralised governance to strengthen local self-rule.
- On November 25, 1948, K. Santhanam, a Gandhian and a member of the Constituent Assembly, urged the Drafting Committee’s Chairman to incorporate provisions that supported this vision.
- Consequently, the Indian Constitution included Article 40 under the Directive Principles of State Policy in Part IV. This article directs the state to facilitate the establishment of village panchayats and to empower them appropriately so that they may function as effective units of self-governance
3. Community development programme
- The Community Development Programme, launched during India's First Five-Year Plan (1951–55), served as an early foundation for the later establishment of Panchayati Raj Institutions.
- In the years following independence, the country confronted multiple socio-economic issues such as food shortages, widespread poverty, and high unemployment. This programme was introduced as a strategy to promote rural development by encouraging active participation from all sections of rural society.
- Even before this initiative, India had experimented with several rural development efforts. Noteworthy examples include the Sriniketan Institute of Rural Reconstruction started by Rabindranath Tagore in 1922, Dr. Spencer Hatch’s Marthandam Project conducted through the YMCA in Kanyakumari, Tamil Nadu, and the Firka Development Scheme introduced by T. Prakasam in 1946 in the Madras Presidency.
- The Community Development Programme aimed to improve agriculture (through land reforms and distribution of fertilisers and pesticides), expand irrigation (like well construction), build infrastructure such as roads, and control the spread of diseases. However, the programme fell short of expectations. Key obstacles included limited community involvement, excessive bureaucratic procedures, and widespread corruption.
- A Planning Commission review revealed that the initiative failed to benefit small artisans and disproportionately favored regions with established irrigation and large landholders
4. Three-tier System
- In response to the shortcomings of earlier rural development efforts, the government established a committee in 1957 led by Balwant Rai Mehta to propose reforms. The committee recommended devolving administrative authority across multiple levels—from villages up to districts.
- It introduced a three-tier framework comprising Village Panchayats at the base, Panchayat Samitis at the intermediate (block or taluk) level, and Zilla Parishads at the district level. Rajasthan was the first state to adopt this model on October 2, 1959, followed by Andhra Pradesh in November of the same year.
- Despite these steps, issues persisted in the implementation and effectiveness of the system. To address these, another committee was set up in 1977 under the leadership of Ashok Mehta during the Janata Party’s rule—the first non-Congress government. This committee suggested replacing the three-tier model with a two-tier arrangement consisting of Mandal Panchayats at the grassroots and Zilla Parishads at the district level.
- The Ashok Mehta Committee also emphasized the need to reserve seats for Scheduled Castes and Scheduled Tribes in proportion to their population to ensure their fair representation.
- A key recommendation was allowing political parties to participate in Panchayati Raj governance. However, these proposals saw limited execution, mainly due to challenges like financial constraints and the complexity of ensuring uniformity in a diverse nation.
- In the years that followed, various other committees were set up to periodically review the state of Panchayati Raj Institutions. These included the Hanumantha Rao Committee (1983), G.V.K. Rao Committee (1985), L.M. Singhvi Committee (1986), P.K. Thungan Committee (1989), and Harlal Singh Kharra Committee (1990)
5. Evolution of Local Governance
- Starting in the late 1980s, the government made multiple efforts to constitutionally empower the Panchayati Raj Institutions. Although constitutional amendment bills were introduced in 1989, 1990, and 1991, it was only during Prime Minister P.V. Narasimha Rao’s administration that success was achieved. In December 1992, both Houses of Parliament passed the constitutional amendment, which was subsequently ratified by 17 state legislatures.
- This historic development led to the inclusion of two new sections in the Indian Constitution: Part IX, dedicated to 'The Panchayats,' and Part IX-A, addressing 'The Municipalities.' As per the Ministry of Panchayati Raj's Annual Report for 2024–25, the country currently has 2,55,397 gram panchayats, 6,742 block-level panchayats, and 665 zilla (district) panchayats.
- To measure how effectively Panchayati Raj Institutions are functioning across states, the government developed the Panchayat Devolution Index. This index evaluates local governance performance based on criteria like financial management, transparency, institutional capacity, and more.
- Initially based on a concept by V.N. Alok and Laveesh Bhandari in 2004, the index focused on three key aspects: Functions, Finances, and Functionaries (the 3Fs). It was later expanded to include Capacity Building, Accountability, and Institutional Framework.
- In the most recent edition of the Panchayat Devolution Index, Karnataka emerged as the leading state, with Kerala, Tamil Nadu, and others following closely.
- The Ministry of Panchayati Raj released these rankings based on research conducted by the Indian Institute of Public Administration (IIPA). The findings also highlighted persistent issues such as limited financial independence, funding shortages, lack of transparency, human resource gaps, challenges in conducting elections, and updating electoral rolls.
- To improve the operational efficiency of Panchayats, the Ministry also launched the e-Gram Swaraj platform. However, low levels of digital literacy among stakeholders have limited the platform’s effectiveness.
- Such barriers continue to impede the full potential of Panchayati Raj Institutions in executing government-led socio-economic development initiatives at the grassroots level
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For Prelims: Panchayat Raj institutions, Local Governance
For Mains: GS II - Indian Polity & Governance
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Previous year Question1. Consider the following statements: (UPSC 2016)
1. The minimum age prescribed for any person to be a member of Panchayat is 25 years.
2. A Panchayat reconstituted after premature dissolution continues only for the remainder period.
Which of the statements given above is/are correct?
A. 1 only
B. 2 only
C. Both 1 and 2
D. Neither 1 nor 2
Answer: B
2. In areas covered under the Panchayat (Extension to the Scheduled Areas) Act, 1996, what is the role/power of Gram Sabha? (UPSC 2012)
1. Gram Sabha has the power to prevent the alienation of land in the Scheduled Areas.
2. Gram Sabha has the ownership of minor forest produce.
3. Recommendation of Gram Sabha is required for granting a prospecting license or mining lease, for any minerals in the Scheduled Areas.
Which of the statements given above is/are correct?
A. 1 only
B. 1 and 2 only
C. 2 and 3 only
D. 1, 2 and 3
Answer: B
3.The Government enacted the Panchayat Extension to Scheduled Areas (PESA) Act in 1996. Which one of the following is not identified as its objective? (UPSC 2013)
A. To provide self-governance
B. To recognize traditional rights
C. To create autonomous regions in tribal areas
D. To free tribal people from exploitation
Answer: C
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Source: The Hindu
