Panchayati Raj is a vital component of rural development in India, aimed at decentralizing governance and ensuring local participation in decision-making. It serves as a mechanism for self-governance in rural areas across most Indian states and Union Territories, with the exceptions of Nagaland, Meghalaya, Mizoram, Delhi, and a few other specific regions, such as Scheduled Areas, Tribal Areas, and certain districts like Darjeeling in West Bengal. This system plays a significant role in local governance, focusing on the development of rural communities, empowerment of villagers, and the facilitation of basic services at the grassroots level.
Evolution of Panchayati Raj
The Panchayati Raj system is not a post-independence development; it has deep historical roots in India. In ancient times, village councils, or panchayats, wielded executive and judicial powers and played a significant role in local governance. However, during periods of foreign rule, particularly under the Mughals and the British, the influence and authority of these local bodies waned. Before independence, panchayats often reinforced social and caste hierarchies, serving the interests of upper castes rather than promoting democratic governance.
After India gained independence, the need to re-establish local self-governance became crucial. Article 40 of the Indian Constitution directs the state to organize village panchayats and empower them to function as units of self-government. This vision laid the groundwork for modern Panchayati Raj institutions (PRIs).
Over the years, various committees have been appointed by the Government of India to study and recommend measures for effective self-governance at the rural level. These committees played a pivotal role in shaping the Panchayati Raj system as we know it today.
Key Committees for Panchayati Raj Development
1. Balwant Rai Mehta Committee
Appointed in 1957, the Balwant Rai Mehta Committee was tasked with examining the functioning of the Community Development Programme and National Extension Service. The committee made several key recommendations, which served as the foundation for the Panchayati Raj system:
- Three-tier system: Gram Panchayat (village level), Panchayat Samiti (block level), and Zila Parishad (district level).
- Democratic decentralization: Direct elections for Gram Panchayat members and indirect elections for Panchayat Samiti and Zila Parishad members.
- Planning and development focus: Panchayati Raj institutions were tasked with planning and implementing development programs.
- District Collector's role: The committee recommended that the District Collector be the chairman of the Zila Parishad. This report provided a robust framework for the democratic decentralization of governance, allowing local participation in development programs. Jawaharlal Nehru, India’s first Prime Minister, was a strong advocate of this system, emphasizing the need to empower people at the grassroots level.
2. Ashok Mehta Committee
In 1977, the Ashok Mehta Committee was constituted to address the weakening of Panchayati Raj institutions. It recommended:
- Two-tier system: Zila Parishad (district level) and Mandal Panchayat (group of villages).
- District-level planning: The Zila Parishad was to be the primary body responsible for planning at the district level.
- Taxation powers: Both Zila Parishads and Mandal Panchayats were granted compulsory taxation powers to raise their own revenue. The recommendations of the Ashok Mehta Committee focused on streamlining the system and providing more autonomy to local bodies.
3. G.V.K. Rao Committee
Appointed in 1985 by the Planning Commission, the G.V.K. Rao Committee addressed the lack of grassroots development due to excessive bureaucratization. Its key recommendations included:
- Zila Parishad as the primary body: The committee recommended empowering Zila Parishads to handle rural development programs.
- Creation of a District Development Commissioner: This official would serve as the chief executive officer of the Zila Parishad.
- Regular elections: The committee emphasized the need for timely and regular elections to Panchayati Raj institutions.
4. L.M. Singhvi Committee
In 1986, the L.M. Singhvi Committee was appointed to revitalize Panchayati Raj and make it a more effective system of democratic governance. The committee made several critical recommendations:
- Constitutional recognition: Panchayati Raj institutions should be constitutionally recognized.
- Judicial tribunals: Tribunals should be set up to handle disputes related to Panchayati Raj elections and functioning.
- Village reorganization: Villages should be reorganized to ensure the viability of Gram Panchayats.
73rd Constitutional Amendment Act (1992)
The most significant development in the Panchayati Raj system came with the 73rd Constitutional Amendment Act in 1992. This amendment provided a constitutional status to Panchayati Raj institutions and laid down a framework for their functioning.
Key Features of the 73rd Amendment
- Gram Sabha: The Gram Sabha is a village assembly consisting of all registered voters in a panchayat area. It is the foundation of the Panchayati Raj system, performing functions determined by state legislatures.
- Three-tier system: The amendment mandates the establishment of a three-tier system in all states, consisting of village-level Gram Panchayats, intermediate-level Panchayat Samitis, and district-level Zila Parishads.
- Election of members and chairpersons: Members of all three tiers are elected directly, while chairpersons of Panchayat Samitis and Zila Parishads are elected indirectly from among the elected members.
- Reservation of seats: The amendment ensures reservation of seats for Scheduled Castes (SCs), Scheduled Tribes (STs), and women (at least one-third of the total seats) at all levels of Panchayati Raj.
- Five-year term: Panchayats are elected for a five-year term. Fresh elections must be conducted before the expiration of this term.
- State Election Commission: An independent State Election Commission is established to supervise, direct, and control Panchayat elections.
- Powers and functions: State legislatures are tasked with endowing Panchayats with powers to enable them to function as institutions of self-government, responsible for preparing and implementing development plans and schemes.
- Finance Commission: A Finance Commission is set up at the state level to review the financial position of Panchayats and recommend measures to strengthen their finances.
PESA Act (1996)
While the 73rd Amendment provided a uniform structure for Panchayati Raj, the Provisions of the Panchayats (Extension to the Scheduled Areas) Act, 1996 (PESA) extended these provisions to Scheduled Areas, which are predominantly inhabited by tribal communities. PESA was designed to safeguard the rights and customs of tribal populations by giving them greater control over their local resources and governance.
Challenges and Criticism
Despite its many successes, the Panchayati Raj system faces several challenges. Key among them is the issue of social hierarchy, particularly the caste system, which often undermines the democratic principles of Panchayati Raj. The influence of powerful local elites sometimes leads to the exclusion of marginalized communities from decision-making processes. Additionally, the lack of financial autonomy and dependence on state governments for funds limits the effectiveness of Panchayats in carrying out developmental activities.
Another major criticism is the irregularity of elections in some states, which undermines the accountability of Panchayats. Moreover, while the reservation of seats for women has been a positive step, in many cases, their participation remains symbolic, with male relatives exercising actual power.
Conclusion
Panchayati Raj has transformed governance in rural India by bringing decision-making closer to the people and empowering local communities to participate in their own development. Despite the challenges, it remains a critical tool for promoting democratic decentralization and improving governance at the grassroots level. Continued efforts are needed to address the systemic issues that hinder its full potential, such as financial constraints, social inequities, and administrative inefficiencies. Nevertheless, the Panchayati Raj system stands as a testament to India's commitment to inclusive and participatory governance.
