Panchayati Raj Institutions: Achievements, Challenges and Path Forward for Local Governance in India

Panchayati Raj Institutions (PRIs) play a vital role in promoting local governance and strengthening democracy in India. They enable citizens, especially from remote areas, to participate in decision-making processes that affect their lives. Through these institutions, marginalized groups, including women and scheduled castes, gain representation and a voice in governance. However, various challenges hinder their effectiveness, necessitating reforms to empower these local bodies further.

Strengthening Local Governance: A Comprehensive Overview of Panchayati Raj Institutions in India

Achievements of PRI’s

• Deepen the Roots of Democracy: The introduction of local governments has helped to deepen the roots of democracy in India where an individual present in a remote village finds himself/herself part of the decision-making process.
• Promoted Healthy Competition: The system has created healthy competition among the States and improved democratic decentralization. 
  • States are competing with regard to funds devolution, reservation quota for women, etc.
• Improved Implementation of Schemes: PRI ensures effective coordination between government programs and voluntary agencies leading to improved implementation of schemes at village level.
• Increased Representation of Marginalised Sections: It has increased representation of marginalized sections of the society such as scheduled castes, scheduled tribes and women as well. 
  • As of 2020, over 46% of the members of PRIs are women. 
  • 21 States in India have implemented a policy of reserving 50% of seats for women in PRIs.
• Developed Villages: The system plays a vital role in the village’s local government to develop the village in areas such as health, women’s development, primary education, child development, women’s participation in local government, and agricultural development.

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Factors Contributing to the Ineffective Performance of PRI

• Autonomy: 

• • • Limited devolution of subjects/powers (11th and 12th schedule) by the state governments resulted in halfhearted reforms. 
    • Absence of a clear demarcation of functions (6th report of 2nd ARC) limits the efficacy. 
    • Delay in realization of the constitutional mandate. 
      • Example: as per reports, as of March 2023, only 9 states have formed the 6th State Financial Commission
    • Critics question the independence and autonomy of the State Election Commission (SEC). 
      • Example: senior bureaucrats appointed as election commissioners. 

• Financial Autonomy Remains Elusive: 

• • • Inordinate delays in releasing bill payments, hampering development. 
    • Financial woes dampen the morale of elected representatives. 
      • Example: rampant delays in payment of salaries, etc. 
    • As per the economic survey, PRIs depend on devolved funds for 95% of their revenues; PRIs are ineffective in taxing their constituents, etc. 

• Authority: 

• Lack of powers to hold the cutting-edge bureaucracy accountable (Panchayat Secretaries) leads to bureaucratic apathy. 
• Dominance by parastatal bodies. 
  • Example: SPVs under the smart cities mission; District Rural Development Agency, etc.
• The functioning of PRIs smacks of ad-hocism. 
  • Example: the absence of a model code of conduct for bureaucrats. 
• The Gram Sabhas, especially powerful under the PESA, have become cosmetic in nature. 
  • Example: Women, SC/ST, etc., vulnerable members are not invited to Gram Sabha meetings

• Accountability: 

• • Lack of accountability has marred the objectives of PRIs. 
    • Example: Mani Shankar Aiyer committee held that Panchayati Raj has become Sarpanch Raj.
  • PRIs, DPCs & MPCs lack the wherewithal and capacity to make developmental plans, conduct social audits, etc.
  • Stronghold of patriarchal values. 
    • Example: prevalence of “Panchayat Patis”. 
  • Negation of the developmental/planning role of the Gram Sabha. 
    • Example: Cleavages in Gram Sabha on caste/religious lines.

Measures to Improve Panchayati Raj Institutions

• • Ensuring Political Autonomy: Devolving powers under the 11th and 12th Schedules to enhance the autonomy of local governance.
  • Dedicated Cadre for PRIs: Recruiting a dedicated cadre specifically for Panchayati Raj Institutions (PRIs) to improve their functionality.
  • Training and Capacity Building: Implementing training and capacity-building programs at the grassroots level, such as modules for social auditing
  • Autonomous Constitutional Bodies: Timely conducting elections and making constitutional bodies like SEC, and SFC more autonomous. 

• Reforms related to  Kerala model: 

• • •  Appointment of Panchayati Ombudsman. 
    • Complete activity and responsibility mapping of panchayats. 
    • Prescribe objective conditions for the dissolution of Panchayats. 
    • Developing a code of conduct for bureaucrats and officers

• Financial innovation (Green Masala Bonds by Indore Municipality); 

• • City Economic Councils (NITI Ayog) to attract investments; 
  • Monetisation of assets; credit rating of PRIs; 
  • Devolution of untied funds from Union Finance Commission etc., will strengthen local finances. 

Mani Shankar Aiyar Committee Recommendations

• The Aiyar Committee Report was released on the occasion of the 20th anniversary of the Constitution’s 73rd Amendment passed in 1992. 
• The Aiyar Report on Panchayats States, “Gram Sabha, the form of direct democracy, is the foundation on which the whole edifice of local governance is built. 

Important recommendations of the committee

• Informed Participation in Gram Sabhas: Encourage informed participation in Gram Sabhas rather than just physical presence by providing relevant information and awareness programs to members. 
  • Ensure that Gram Sabha meetings are mandatory and held regularly to promote active engagement.
• Financial Autonomy for Panchayats: Grant Panchayats the authority to raise their own funds through the collection of taxes. 
  • This financial autonomy can empower them to address local development needs effectively.
• Training for Panchayat Heads and Members: Provide training in accounting and auditing to Panchayat heads and members. 
  • This will equip them with the necessary financial management skills to handle their responsibilities efficiently.
• Effective Control of Deputed Employees: Ensure that Panchayats have effective control over employees deputed to them by the State government, including responsibility for their salary payments. 
  • This can enhance the accountability and efficiency of local government staff.
• Devolution of Power at the State Level: Promote the devolution of power at the State level to empower PRIs to function more effectively. 
  • This can involve delegating authority over specific subjects to PRIs, aligning with the State subject of Part VII of the Constitution.
• Single Ministry for Local Governance: Create a unified ministry responsible for overseeing both Panchayats and urban local bodies, ensuring better coordination and streamlined governance. 
  • This integrated approach can fall under the Ministry of Panchayat Raj and the Ministry of Urban Development.
• Ombudsman for Panchayats: Set up an ombudsman system for Panchayats in all States to address grievances, disputes, and issues related to the functioning of PRIs, ensuring accountability and fairness.

Establishing Educational Criteria for Contesting Panchayat Elections

• No Educational Criteria: The 73rd Constitutional Amendment Act did not provide for any educational criteria for the citizens to contest for the elections of any tier of the Panchayati Raj. 
• Debate on Educational Qualifications: States like Rajasthan and Haryana introduced laws requiring minimum educational qualifications for election candidates.
  • This created a debate about whether such a criterion is needed or not.

Government Interventions to Strengthen PRIs

• AuditOnline: The Ministry of Panchayati Raj launched AuditOnline in 2020, enabling online audits of Panchayat accounts.
• SWAMITVA Scheme: The SWAMITVA Scheme, which stands for “Survey of Villages and Mapping with Improvised Technology in Village Areas,” aims to provide records of property rights to rural households in inhabited villages and issue property cards to property owners. 
  • This initiative enhances PRIs with improved data on land ownership.
• Sabki Yojana Sabka Vikas: The People’s Plan Campaign, also known as “Sabki Yojana Sabka Vikas,” was initiated by the central government in September 2019. 
  • It seeks to formulate Gram Panchayat Development Plans (GPDPs) and make them accessible on a website for public scrutiny regarding the status of various government flagship schemes.
• Rashtriya Gram Swaraj Abhiyan: It is a centrally sponsored scheme focused on enhancing the capacity of Panchayati Raj Institutions (PRIs) for more effective rural local governance, catering to local development needs.
• e-GramSwaraj portal: The Ministry of Panchayati Raj has introduced e-GramSwaraj, a user-friendly web-based portal, to bolster e-Governance within PRIs nationwide. 
  • This portal consolidates the planning, accounting, and monitoring functions of Gram Panchayats.
• National Panchayat Awards: The National Panchayat Awards program identifies the best-performing Panchayats based on various criteria and indicators.

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Conclusion

Strengthening Panchayati Raj Institutions is essential for improving local governance and community empowerment in India. 

• Effective reforms can enhance accountability, representation, and the overall functioning of these bodies. 
• By addressing existing challenges, we can ensure that PRIs serve as true representatives of the people, fostering inclusive development at the grassroots level. Ultimately, these efforts will contribute to a more democratic and equitable society.

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