The Panchayati Raj, a three-tiered system of the Indian administration for rural development, aims to establish local self-government in districts, zones, and villages. In India, a system of rural local self-government known as the Panchayati Raj Institution (PRI) exists. The administration of local affairs by these locally elected bodies is known as local self-government. The PRI was established as a constitutional entity through the 73rd Constitutional Amendment Act in 1992 to foster democracy from the bottom up and assigned the responsibility of promoting development in rural areas across the nation. In its current shape and organisation, PRI has been in operation for 26 years in the history of Indian Constitution. However, much more work has to be done to further decentralise and deepen democracy at the grassroots level.
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From an analytical perspective, the history of Panchayat Raj in India may be categorised into the following periods:
The phrase "Panchayatan," which refers to a group of five people, including a spiritual man, has been referenced in ancient Sanskrit texts.
The idea of a spiritual man being a part of these communities gradually disappeared.
The Rigveda mentions Sabha, Samiti, and Vidatha as examples of local self-government.
These were the democratic entities present in the community. The sovereign relied on the consent of these entities for specific tasks and choices.
The term "Epic Era" designates the two major Indian epic eras, the Ramayana and the Mahabharata.
According to research on the Ramayana, the government was split into Pur and Janpad, or city and hamlet.
There was a Caste Panchayat for the entire state, and one of its members was chosen to serve on the king's Council of Ministers.
The concept of village self-government is extensively discussed in the Mahabharata's "Shanti Parva," the Manu Smriti, and Kautilya's Arthashastra.
There were units of 10, 20, 100, and 1,000 village groups in the Mahabharata, in addition to the village itself.
The village's top official was called "Gramik," its leader of ten villages was called "Dashap," and its chiefs of twenty, one hundred, and one thousand villages were Vinshya Adhipati, Shat Gramme Adhyaksha, and Shat Gramme Pati, respectively.
They were in charge of their communities' defence as well as the collection of local taxes.
Kautilya's Arthashastra refers to rural panchayats.
The Nagarik was the chief, and the town was called Pur.
There was no royal meddling with local bodies.
The headman, supported by an elder council, remained a major figure in village life during the Mauryan and Post-Mauryan eras as well.
The system persisted during the Gupta era but with some name modifications: the village headman was referred to as the grampati and the district official as the vishya pati.
Thus, a well-established local governance structure based on predetermined traditions and practices operated in ancient India.
It is important to highlight, nevertheless, that there is no mention of women leading panchayats or even taking part in its membership.
The Kings of Delhi partitioned their realm into regions known as "Vilayat" during the Sultanate era.
There were three key figures in village governance: the Mukkaddam, who handled administration, the Patwari, who handled tax collection, and the Choudhrie, who mediated conflicts with the Panch's assistance.
The communities possessed enough authority to govern themselves inside their borders.
Village self-government was steadily undermined by casteism and the feudalistic political structure prevalent throughout the Mughal era.
It is important to remember once more that there is no record of women serving in local village government during the Middle Ages.
Village panchayats grew weaker and lost their autonomy during British rule.
Around India, representative local institutions began to emerge only around 1870.
The renowned Mayo's resolution of 1870 expanded the authority and responsibility of municipal organisations, which in turn spurred their development.
The idea of elected representatives was first extended to urban communities in 1870.
After the uprising in 1857, the imperial finances were severely strained, and it became essential to use municipal taxes to pay for local services. Thus, the adoption of Lord Mayo's decentralisation resolution resulted from budgetary pressure.
Lord Rippon, following in Mayo's footsteps, gave these institutions the much-needed democratic framework in 1882.
Every board that was in place at the time had to have a two-thirds majority of elected non-officials on it, and the chairman of these bodies had to come from among the non-officials who had been elected.
This is regarded in India as the Magna Carta of local democracy.
The Royal Commission on Centralization, chaired by C.E.H. Hobhouse, was appointed in 1907, which gave local self-government organisations a boost.
The panel acknowledged the significance of panchayats in the context of villages.
This is the context in which the 1919 Montagu Chelmsford reforms moved local administration within the purview of the provinces.
The reform also advocated for total autonomy and independence of local bodies from outside authority, to the greatest extent feasible.
Only a small number of villages were served by these panchayats, and because of organisational and financial limitations, they were unable to develop into dynamic, democratic local self-government organisations at the village level.
But by 1925, panchayat laws had been passed by eight provinces, and by 1926, panchayat laws had also been passed by six native states. The authority to charge taxes was diminished and local governments were granted more authority. However, this had little impact on the standing of the local self-government organisations.
Panchayats were mentioned in Article 40 of the Constitution of India when it came into effect, and Article 246 gives the state assembly the authority to enact laws on any topic about local self-government.
Unfortunately, not all of the decision-makers at the time supported the addition of panchayats to the Constitution; B.R. Ambedkar, one of the document's framers, was the main opponent.
Village panchayats were ultimately given a constitutional position under Article 40 of the Directive Principles of State Policy, following extensive debate between proponents and opponents of the system.
The lack of a standardised structure for these organisations across the nation was the outcome, as the Directive Principles are not legally obligatory.
The Indian government established a number of committees to examine the implementation of rural self-governance and make recommendations for how to get there. The committees appointed are as follows:
Committees | Description |
Balwant Rai Mehta Committee | The committee was tasked with evaluating and suggesting methods to enhance the Community Development Programme and the National Extension Service when it was first established in 1957. A democratic, decentralised local government system called the Panchayati Raj, was recommended by the committee. |
Ashok Mehta Committee | The committee was set up in 1977 to provide suggestions on how to maintain and enhance India's failing Panchayati Raj system. |
G V K Rao Committee | In 1985, the planning commission appointed the committee. Recognising that bureaucratization prevented growth from occurring at the local level, Panchayat Raj institutions were referred to be "grass without roots." |
L M Singhvi Committee | The primary goal of the committee, which the Indian government created in 1986, was to make recommendations on how to revive the Panchayati Raj systems for democracy and development. |
Rajasthan and Andhra Pradesh were the first two states to adopt Panchayati Raj in 1959; other states quickly followed.
The persistent work of community groups, academics, and forward-thinking politicians led to the 73rd Constitution Amendment, which made rural local governments (panchayats) and the 74th Constitution Amendment, which made urban local governments (municipalities), "institutions of self-rule."
The Panchayati Raj Act, also known as the 73rd Constitutional Amendment Act, of 1992, is a seminal piece of Indian law that attempts to establish a three-tiered system of decentralised self-governance in rural regions.
Articles 243 to 243-O, which make up Part IX of the Indian Constitution, provide an overview of the Act's principal provisions.
The Eleventh Schedule, which encompasses the 29 functional elements of the panchayats, and Part IX of the Constitution, titled "The Panchayats," were also incorporated under the Act.
Part IX of the Constitution includes Articles 243 to 243 O.
Article 40 of the Constitution, which outlines the "directive principles of state policy," is given form by the Amendment Act. This article instructs the state to establish village panchayats and grant them the necessary rights to act as self-governing bodies.
The Act requires governments to implement panchayati raj systems and brings them under the jurisdiction of the justiciable section of the Constitution. Furthermore, the Panchayati Raj institutions would hold elections apart from the wishes of the state administration.
There are two sections to the Act: mandatory and elective. States must include mandatory elements in their legislation, and this includes establishing new Panchayati Raj systems. Conversely, voluntary provisions are at the state government's discretion.
The Act represents a major advancement in the nation's grassroots democratic institution-building process.
The Principal clauses found in the 73rd Constitutional Amendments Act of 1992 are as follows:
Two new sections were added to the Constitution as a result of these amendments: Part IX, titled "The Panchayats," was added by the 73rd Amendment, and Part IXA, titled "The Municipalities," was added by the 74th Amendment.
The fundamental democratic units are Ward Committees (Municipalities) and Gramme Sabhas (Villages), which are made up of all adult members who are registered to vote.
The village, intermediate block/taluk/Mandal, and district panchayats are organised into three tiers, except in states where the population is less than 20 lakh (Article 243B).
Direct elections shall be used to fill seats at all levels, under Article 243C (2).
According to their numbers, Scheduled Castes (SCs) and Scheduled Tribes (STs) would have seats set aside for them, as will the chairs of all Panchayat levels.
A third of the available seats must be set aside for females.
Women are allocated one-third of the seats designated for SCs and STs.
One-third of all chairman posts must be filled by women (Article 243D).
One five-year term, with elections to create additional bodies to be finished prior to the term's end.
Elections must be held within six months after the dissolution (Article 243E).
Article 243K provides for the supervision, management, and control of the electoral rolls by an Independent Election Commission in every State.
Plans for social justice and economic development must be prepared by panchayats for the topics that the legislation has delegated to the different levels of panchayats, including those included in the Eleventh Schedule (Article 243G).
Article 243ZD of the 74th Amendment establishes a District Planning Committee to combine the plans created by Municipalities and Panchayats.
State government budgetary allocations, a portion of some taxes' income, the collecting and holding of the money it generates, grants and programmes from the Central Government, and grants from the Union Finance Commission (Article 243H).
To ascertain the guiding principles for ensuring sufficient financial resources for panchayats and municipalities, each State should establish a Finance Commission (Article 243I).
The Constitution's Eleventh Schedule assigns the Panchayati Raj organisations authority over as many as 29 duties.
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India's PRIs face several challenges. Among these challenges are the following:
Funding often falls short for Public-Private Partnerships (PRIs), making it difficult for them to carry out their responsibilities effectively. This shortfall can limit their ability to implement development projects and provide vital services to their communities.
Local issues might pose greater challenges for PRIs due to their limited power and resources compared to higher tiers of government.
A lot of PRIs lack sufficient personnel and the necessary tools to perform their responsibilities effectively. This could lead to poor planning and implementation of projects.
Females and other disadvantaged communities often engage in participation in PRIs at a low level, which could limit their ability to fully represent the desires and concerns of the entire community.
Government interference could undermine the autonomy and decision-making processes of PRIs.
The 2nd Administrative Reform Commission's (ARC) sixth report contains recommendations that may be put into practice to improve the efficiency and effectiveness of Panchayati Raj institutions.
A long-term answer may be found in true fiscal federalism, which is defined as fiscal sovereignty combined with fiscal responsibility.
A distinct division of the responsibilities of each level of government has been suggested by the Second ARC.
Additionally, the 2nd ARC suggested that state governments should assist and enable rules to local organisations so they might contract out some tasks to public or private organisations as needed.
Training that is both comprehensive and holistic needs the knowledge and resources of many subject-specific training institutions.
The most effective way to do this is by "networking" organisations that focus on different topics including general management, financial management, rural development, and catastrophe management.
State Authorities can set up review boards at the local district level to oversee the precision of financial records, the adequacy of in-house procedures, compliance with applicable laws, and the ethical conduct of every individual in community groups.
Part IX does not apply to areas that are part of the Fifth Schedule. With the necessary adjustments and exclusions, the Parliament may expand the scope of this Part. PESA Act, sometimes referred to as the extension act, was adopted by Parliament by these principles and is known as the Panchayats (Extension to the Scheduled Areas) Act.
The Panchayats (Extension to the Scheduled Areas) Act goals are:
To include the scheduled regions in the application of Part IX rules.
To provide the tribe's populace autonomy.
To establish a participatory democratic village government.
To develop participatory governance in line with customary methods.
To protect and maintain the tribe's customs and traditions.
giving panchayats the authority necessary to meet tribal needs.
Given below are the important Case Laws related to Panchayati Raj system in India.
Serving about 10,000 residents, the Panchayat has put in place a number of programmes to enhance the quality of life for its people, including
Better community access to clean drinking water: the community's access to clean drinking water has been facilitated by the development of water storage tanks.
Better road infrastructure has made it simpler for residents to go to and from the hamlet and has aided in the growth of the local economy.
Encouraged the use of renewable energy, such as solar energy, which has improved environmental sustainability and helped the community become less dependent on fossil resources.
Enhanced education: collaborated with non-governmental groups to raise the standard of instruction in the community.
The following are the main efforts of the Pedda Gramme Panchayat:
System for managing solid waste: The village council established a facility for the separation and processing of organic and inorganic trash. While the inorganic trash is recycled or disposed of, the organic waste is subsequently employed as manure.
Additional plans include building restrooms in every home, providing drinking water via water purification facilities and borewells, and creating community areas for leisure and cultural pursuits.
The Panchayati Raj system in India did not emerge after the country's independence. In rural India, the local panchayat has dominated politics for many years. Panchayats were elected bodies having judicial and administrative authority in ancient India. In India, a three-tiered governmental structure called Panchayati Raj is centred on rural development. Districts, zones, and villages are established under the Panchayati Raj system of local self-government.
The man credited with founding Panchayati Raj is Balwant Rai Mehta.
Jawaharlal Nehru founded panchayats in Nagaur on October 2, 1959. The day was selected to celebrate the birthday of Mahatma Gandhi.
Gramme Panchayat, Panchayat Samiti, and Zila Parishad are the three layers of Panchayati Raj organisations.
Panchayati Raj is structured at the local, district, and village levels.
Manmohan Singh, the Indian prime minister, declared April 24, 2010, to be the first National Panchayati Raj Day.
The "right to recall" allows voters to remove elected representatives from office before their term ends if they are dissatisfied with their performance. This provision aims to enhance accountability and responsiveness of elected officials in the PRI system.
PRIs contribute to conflict resolution through Gram Sabhas and Nyaya Panchayats (village courts). These forums allow for local disputes to be settled through mediation and community involvement, reducing the burden on formal judicial systems and promoting social harmony.
Activity mapping is the process of clearly defining and assigning specific functions, funds, and functionaries (3Fs) to different tiers of the PRI system. This helps in avoiding duplication of efforts, clarifying responsibilities, and ensuring efficient service delivery at each level.
PRIs promote social auditing by involving Gram Sabhas in monitoring and evaluating the implementation of development programs. This process allows community members to review expenditures, assess the quality of work, and hold local officials accountable for their actions.
PRIs address the needs of vulnerable groups by ensuring their representation in local bodies, creating targeted welfare schemes, and making public spaces and services accessible. Some states have introduced reservations for persons with disabilities in PRI elections to further this goal.
The 73rd Constitutional Amendment Act, 1992, introduced the Panchayati Raj system in India. This amendment added Part IX to the Constitution, which provides for the establishment of Panchayats as units of local self-government.
The three tiers of the Panchayati Raj system are:
The 11th Schedule, added by the 73rd Amendment, lists 29 subjects on which Panchayats can make decisions. This schedule defines the functional domain of Panchayats, empowering them to work on various aspects of rural development, including agriculture, land reforms, education, and health.
Gram Sabha meetings involve all adult voters in a village and serve as a forum for direct democracy, where villagers can discuss issues and make recommendations. Gram Panchayat meetings, on the other hand, involve only elected representatives who make decisions based on these recommendations and other local needs.
State Election Commissions are responsible for conducting free and fair elections to Panchayati Raj Institutions. They oversee the entire electoral process, including voter registration, candidate nominations, polling, and result declaration, ensuring the democratic functioning of PRIs.
Own source revenue refers to the funds that Panchayats can generate through local taxes, fees, and user charges. This is crucial for the financial autonomy of PRIs, reducing their dependence on state grants and enabling them to fund local development initiatives independently.
Inter-village or inter-Panchayat issues are addressed through mechanisms like joint committees, inter-Panchayat coordination meetings, and the involvement of block and district-level PRI bodies. These forums allow for collaborative problem-solving and resource sharing among neighboring Panchayats.
PRIs address regional disparities by enabling localized planning and resource allocation based on specific needs and challenges of each area. They also facilitate the implementation of special development programs for backward regions, helping to bridge the gap between developed and underdeveloped areas.
The convergence approach involves integrating various government schemes and programs at the local level through PRIs. This helps in avoiding duplication, maximizing resource utilization, and creating synergies between different development initiatives for more effective outcomes.
Capacity building involves training elected representatives and officials of PRIs in various aspects of local governance, financial management, and development planning. This enhances their ability to effectively perform their roles, make informed decisions, and implement programs successfully.
Gram Swaraj, or village self-rule, is the idea of making villages self-reliant and self-governing units. The PRI system aims to realize this concept by empowering village-level institutions to make decisions on local matters, manage resources, and implement development programs independently.
PRIs promote environmental conservation through various means such as implementing local biodiversity management committees, creating village-level environmental plans, managing common property resources like water bodies and forests, and promoting sustainable agricultural practices.
PRIs play a crucial role in implementing national flagship programs by identifying beneficiaries, planning local-level interventions, monitoring progress, and ensuring last-mile delivery of services. They act as a bridge between national policies and local implementation, adapting programs to suit local contexts.
PRIs play a crucial role in disaster management by creating local disaster management plans, conducting risk assessments, organizing community-based early warning systems, and coordinating relief efforts during emergencies. They also work on long-term resilience building in vulnerable areas.
Participatory budgeting is a process where community members directly participate in deciding how to allocate a portion of the Panchayat's budget. This promotes transparency, citizen engagement, and ensures that budget allocations reflect local priorities and needs.
The reservation system in PRIs mandates seats for Scheduled Castes (SCs), Scheduled Tribes (STs), Other Backward Classes (OBCs), and women. This ensures representation of marginalized groups in local governance, promoting their participation in decision-making and addressing their specific needs.
PRIs address gender equality through mandatory reservation of one-third (in some states, up to 50%) of seats for women in all three tiers. This ensures women's participation in decision-making processes and helps in addressing gender-specific issues in rural development.
Rotation of reservation means that reserved seats for different categories (SC, ST, OBC, women) are not fixed to specific constituencies but rotate among different areas in each election. This system aims to prevent the monopolization of power and ensure fair representation across all communities over time.
The District Planning Committee (DPC) is responsible for consolidating plans prepared by Panchayats and municipalities in the district. It creates a comprehensive district development plan, considering spatial planning, environmental conservation, and the sharing of water and other physical and natural resources.
The Gram Panchayat Development Plan (GPDP) is a comprehensive, participatory planning process at the village level. It involves assessing local needs, prioritizing development goals, and creating a roadmap for achieving them. GPDP ensures that village-level planning is aligned with higher-level development objectives.
The Panchayati Raj system promotes grassroots democracy by involving local communities in decision-making processes, ensuring representation of marginalized groups, conducting regular elections, and devolving powers and responsibilities to elected local bodies for planning and implementing development programs.
Devolution of powers refers to the transfer of authority, functions, and resources from the state government to Panchayats. This empowers local bodies to make decisions on various subjects, implement development programs, and manage local resources, leading to more responsive and accountable governance.
Financial devolution involves transferring funds from state governments to Panchayats, enabling them to carry out their functions effectively. This includes grants from the state, a share in certain taxes, and the authority to levy and collect local taxes, ensuring financial autonomy for PRIs.
The State Finance Commission reviews the financial position of Panchayats and makes recommendations on the distribution of net proceeds of taxes between the state and Panchayats, allocation of grants-in-aid, and measures to improve the financial position of Panchayats.
PRIs contribute to decentralized planning by involving local communities in identifying needs, prioritizing development projects, and allocating resources. This bottom-up approach ensures that development plans reflect local realities and preferences, leading to more effective and targeted interventions.
The Panchayati Raj Institution (PRI) is a system of local self-governance in rural India. It is a three-tier structure at the village, block, and district levels, designed to ensure democratic decentralization and empower rural communities in decision-making and development processes.
Standing Committees are specialized groups within PRIs that focus on specific areas such as agriculture, education, or health. They provide in-depth attention to particular issues, conduct research, and make recommendations to the main Panchayat body, enhancing the efficiency of decision-making.
PRIs contribute to SDGs by localizing global goals, integrating them into village development plans, and implementing targeted interventions. They focus on areas like poverty alleviation, education, health, gender equality, and environmental sustainability at the grassroots level.
PRIs promote rural entrepreneurship by implementing skill development programs, facilitating access to credit, creating local market linkages, and supporting the establishment of micro and small enterprises. They also help in identifying and developing local resources for economic activities.
PRIs contribute to water conservation through initiatives like watershed development, rainwater harvesting, rejuvenation of water bodies, and community-based water management systems. They also play a crucial role in implementing national water conservation schemes at the local level.
Technology enhances PRI effectiveness through e-governance initiatives, digital record-keeping, online service delivery, and GIS-based planning. It improves transparency, reduces corruption, enables better monitoring of projects, and facilitates citizen engagement in local governance.
The PESA Act extends the provisions of the Panchayati Raj system to Scheduled Areas (areas with predominant tribal populations). It gives special powers to Gram Sabhas in these areas, including control over minor forest produce, land acquisition, and mining leases, to protect tribal rights and customs.
PRIs promote digital literacy by setting up community information centers, organizing training programs, facilitating access to digital devices, and integrating digital services into local governance. This helps bridge the digital divide and empowers rural communities to participate in the digital economy.
PRIs address rural-urban migration by creating local employment opportunities, improving rural infrastructure, enhancing access to education and healthcare, and implementing poverty alleviation programs. They aim to make rural areas more livable and economically viable to reduce outward migration.
Model Panchayats are exemplary local bodies that demonstrate best practices in governance, service delivery, and development. They serve as learning centers for other Panchayats, promoting peer learning and the replication of successful strategies across the PRI system.
PRIs promote renewable energy adoption by implementing solar lighting projects, biogas plants, and micro-hydro projects. They also create awareness about renewable energy benefits, facilitate access to government schemes, and integrate renewable energy solutions into local development plans.
PRIs address malnutrition by implementing nutrition-specific programs, monitoring the functioning of Anganwadis (child care centers), promoting kitchen gardens, and creating awareness about proper nutrition. They also coordinate with health departments to ensure effective delivery of nutrition interventions.
Gram Nyayalayas are village courts established to provide easy access to justice in rural areas. While not directly part of the PRI system, they work in coordination with Panchayats to resolve local disputes, reduce the burden on higher courts, and ensure speedy justice delivery at the grassroots level.
PRIs promote financial inclusion by facilitating the opening of bank accounts, organizing financial literacy camps, supporting the establishment of banking correspondents, and implementing direct benefit transfer schemes. They act as a bridge between financial institutions and rural communities.
PRIs play a crucial role in implementing the Right to Education Act by monitoring school enrollment, reducing dropout rates, ensuring the provision of mid-day meals, and overseeing the functioning of School Management Committees. They also help in planning for school infrastructure development.
PRIs contribute to women's empowerment by promoting women's self-help groups, implementing skill development programs for women, addressing issues of gender-based violence, and ensuring women's participation in all aspects of local development planning and implementation.
Gram Panchayat Spatial Planning involves creating comprehensive land use plans at the village level. It helps in better resource management, planned infrastructure development, and sustainable growth of rural areas, aligning local development with broader regional planning objectives.
PRIs address solid waste management by implementing segregation at source, composting organic waste, recycling initiatives, and creating awareness about proper waste disposal. They also work on developing local waste management infrastructure and enforcing regulations against littering and open dumping.
PRIs promote rural tourism by identifying and developing local attractions, preserving cultural heritage, facilitating homestay programs, and creating eco-tourism initiatives. They also work on improving local infrastructure and amenities to support tourism activities, generating additional income for rural communities.
PRIs contribute to climate resilience by implementing local climate adaptation plans, promoting climate-smart agriculture, developing disaster-resistant infrastructure, and creating community-based early warning systems. They also work on integrating climate considerations into all aspects of rural development planning.
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