Panchayati Raj Movement is in Distress
Syllabus: GS2/Governance;
Context
- Recent discussions in Parliament on the 75th anniversary of the Indian Constitution highlighted that the momentum towards deepening local governance has stalled.
- Several factors are contributing to the distress of the Panchayati Raj movement, necessitating urgent reforms.
About the Panchayati Raj in India
- Historical Background: The concept of Panchayati Raj has its roots in ancient India, where village assemblies (Panchayats) played a crucial role in local governance.
- Mahatma Gandhi envisioned Panchayati Raj as the foundation of India’s political system, advocating for village self-governance (Gram Swaraj).
- The 73rd Constitutional Amendment Act of 1992 institutionalized this vision by creating a three-tier system of local governance:
- Gram Panchayat at the village level;
- Panchayat Samiti at the block level;
- Zila Parishad at the district level;
Structure and Functioning of PRIs (As Per 73rd Amendment)
- The Panchayati Raj system operates through regular elections, held every five years, with reservations for women, SCs, and STs.
- It ensures inclusivity and representation of marginalized groups in local governance.
- The Gram Panchayat, as the basic unit of local administration, is responsible for implementing various development programs and schemes at the village level.
| Key Committees Related To Panchayati Raj Institutions – Balwant Rai Mehta Committee (1957): This landmark committee recommended the three-tier Panchayati Raj system, with Gram Panchayats (village level), Panchayat Samitis (block level), and Zilla Parishads (district level). – Ashok Mehta Committee (1977): Focused on strengthening financial resources and functional autonomy of Panchayats. – G.V.K. Rao Committee (1985): Emphasized the need for regular elections and greater participation of women and marginalized communities. – L.M. Singhvi Committee (1986): Recommended measures to address financial constraints and improve administrative efficiency of Panchayats. – P.K. Thungan Committee (1989): Proposed electoral reforms and devolution of more power and functions to Panchayats. – Natarajan Committee (1996): Assessed the implementation of the 73rd Amendment and recommended further devolution of power and resources. – Sachar Committee (2006): Highlighted the need for greater representation and empowerment of women in Panchayats. – M.V. Rajwade Committee (2017): Reviewed the functioning of Gram Sabhas and recommended steps to enhance their participation and effectiveness. |
Challenges Facing the Panchayati Raj System
- Administrative Decentralization Plateaued: Effective local governance requires state governments to devolve staff and administrative control to local governments.
- However, less than 20% of states have fully devolved all 29 subjects listed in the Eleventh Schedule of the Constitution. It hampers the functioning of panchayats.
- Declining Fiscal Autonomy: While the 73rd Amendment mandates financial devolution, in practice, Panchayats still depend heavily on state and central grants.
- While direct transfers to panchayats have increased from ₹1.45 lakh crore under the Thirteenth Finance Commission (2010-15) to ₹2.36 lakh crore under the Fifteenth Finance Commission (2021-26), there has been a significant reduction in untied grants.
- Untied grants, which allow local decision-making, have fallen from 85% to 60%, reducing the autonomy of local governments.
- 14th and 15th Finance Commissions recommended increased grants to PRIs, but fund utilization remains inefficient due to bureaucratic red tape.
- Gender and Social Inequality in Governance: Although the 73rd Amendment provides for 33% reservation for women, and many states have increased it to 50%, gender bias still exists in Panchayat politics.
- The phenomenon of ‘Sarpanch Pati’ (where husbands or male relatives make decisions on behalf of elected women representatives) undermines the true empowerment of women in local governance.
- Additionally, caste-based politics often prevents marginalized communities from actively participating in decision-making.
- Poor Accountability and Transparency: Social audits, which were introduced to improve transparency, are either not conducted regularly or manipulated.
- Misuse of funds in welfare schemes like Mid-Day Meal Scheme, PMAY-G, and PDS (Public Distribution System) has raised concerns about corruption in local governance.
- Shift in Welfare Distribution Mechanisms: The central government’s reliance on direct cash transfers, such as the Jan Dhan-Aadhaar-Mobile (JAM) platform, has bypassed gram panchayats in beneficiary selection and grievance redressal.
- It has minimized the traditional roles of panchayats in welfare delivery.
- Political Interference and Weak Autonomy: Local governance is frequently overshadowed by state politics, where village representatives have little say in actual policy implementation.
- State governments control funds, and many Panchayat leaders act as mere implementers of state schemes rather than decision-makers for local development.
- Bureaucratic Hurdles and Capacity Deficit: Many Panchayat functionaries lack proper training, leading to poor governance and inefficiency in implementing developmental schemes like MGNREGA (Mahatma Gandhi National Rural Employment Guarantee Act) and PMAY-G (Pradhan Mantri Awas Yojana – Gramin).
- Impact of Rapid Urbanization: With rapid urbanization, the focus of policy has shifted towards cities and municipal reforms rather than rural governance.
- In 1990, nearly 75% of India’s population lived in rural areas, but this has now declined to around 60%. It has affected the relevance and functioning of panchayats.
Revitalizing the Panchayati Raj System
- Strengthening Financial Autonomy: 15th Finance Commission has recommended increased funding for Panchayats, but timely allocation and effective utilization must be ensured.
- Panchayats should be given power to collect local taxes to reduce dependency on state and central grants.
- Enhancing Administrative Capacity: Proper training programs should be conducted for Panchayat representatives to improve governance.
- Use of digital governance tools can improve efficiency in fund management and service delivery.
- Reducing Political and Bureaucratic Interference: State governments must ensure greater autonomy for Panchayats by reducing bureaucratic control.
- Panchayat elections should be conducted fairly without political influence.
- Strengthening Social Audits and Accountability Mechanisms: Regular social audits should be mandated to reduce corruption and improve transparency.
- Gram Sabhas must be strengthened to allow active participation of villagers in governance.
- Women Empowerment in Panchayats: Strict laws should be enforced to prevent proxy representation in women-reserved seats.
- Leadership training programs should be provided to women representatives.
- Integration with Digital India and E-Governance: The use of e-Panchayat initiatives can enhance transparency and efficiency in governance.
- Digital literacy programs should be promoted in rural areas to improve citizen participation in governance.
Conclusion
- The Panchayati Raj system remains a powerful tool for decentralized governance, but it is currently in distress due to financial, administrative, and political challenges.
- Strengthening Panchayats with adequate financial autonomy, capacity building, and accountability mechanisms can revitalize the movement.
- Empowering local self-governance is not just a constitutional mandate but a necessity for ensuring holistic rural development in India.
