Syllabus
GS Paper 2 – Functions and Responsibilities of the Union and the States, Issues and Challenges Pertaining to the Federal Structure, Devolution of Powers and Finances up to Local Levels and Challenges Therein.
Context
Every year on April 24, the Ministry of Panchayati Raj in India celebrates National Panchayati Raj Day to strengthen local bodies for the transformation of rural areas and improvement of life quality.
Panchayati Raj System
Introduction
The Panchayati Raj System, a cornerstone of India’s democratic framework, is a three-tier structure that empowers local self-governance. However, its potential remains untapped due to various challenges. Education is pivotal for this system to thrive, as it equips individuals with the knowledge and skills necessary to participate effectively. The system is grappling with issues nationwide, underscoring the urgent need for educational interventions. By fostering an educated populace, we can ensure the flourishing of the Panchayati Raj System, thereby strengthening democracy at the grassroots level. Hence, education is not just a necessity, but a must for the system’s success.
If we would see our dream of Panchayat Raj, i.e., true democracy realized, we would regard the humblest and lowest Indian as being equally the ruler of India with the tallest in the land.
— Mahatma Gandhi
Panchayati Raj
- Inception of Panchayati Raj System: The 73rd Constitutional Amendment Act of 1993 marked the birth of the Panchayati Raj System, a local government system. This system empowers local groups, known as Gram Panchayats, to govern their areas and dictate their development.
- Hierarchy of the System: The system operates on three levels:
- Gram Panchayat: The village council, which is the most fundamental level.
- Block Panchayat: This council supervises a cluster of villages.
- Zila Panchayat: The district council, which oversees a broader area.
- Democracy at Grassroots: The Panchayati Raj System is a significant stride for democracy, particularly in rural areas. It enables local groups to make decisions about their communities, making democracy more active and participatory.
- Community-Based Decision Making: Picture a village council where elected representatives from the community make decisions about local issues such as:
- Construction of roads and schools
- Provision of clean water and sanitation
- Management of healthcare facilities
- Accountability: The responsibility for their management, financial system, election, and structure organization rests with the State Government.
- Constitutional Provisions: Article 40 of the Indian Constitution contains provisions related to the organization of village Panchayats. However, it was not an enforceable procedure.
As per the ‘Rural Connection Network,’ there are 2,39,000 Gram Panchayats spread across the nation. These Panchayats are a State subject, as outlined in the Seventh Schedule of the Constitution.
Issues with Panchayati Raj Institutions
- Authority and Duties: Article 243(G) of the Constitution envisions Panchayati Raj Institutions (PRIs) as self-governing bodies. However, it leaves the degree of devolution of powers and functions to the discretion of the State Legislatures.
- Election Disparity: There is no uniform election system across the country as it is conducted by the State Election Commission, leading to functional irregularities.
- State’s Dominance: In India, panchayats are essentially an extension of the State, lacking a distinct administrative unit with a unique constitutional status. Notably, Kerala is the only state that has allocated 40% of its plan outlay to the PRIs. Only 13 states and 4 Union Territories have constituted the District Planning Committee.
- Impact of Illiteracy: Illiterate sarpanchs struggle to represent their Panchayat body effectively due to their lack of education and knowledge. They often stamp any page or document without understanding its content.
- Financial Constraints: The lack of funds hampers the successful operation of the Panchayati Raj. The Panchayati Raj bodies have limited authority to impose cesses and taxes and are generally hesitant to raise necessary funds for fear of losing public support.
- Administration Issues: Women, though elected as sarpanchs, do not administer; their husbands take over. Similarly, a person from the SC/ST category becomes a sarpanch, but the administration is run by a few affluent individuals.
- Fund Misappropriation: The Government allocates substantial funds for village development, but these funds are often spent on matters unrelated to the village or its residents.
- Unrealized Objective: The individual with access to the top of the administration occupies key positions, which is why the purpose for which the Panchayati Raj System was created remains unfulfilled.
Challenges faced by Panchayati Raj Institutions
- Bureaucratic Control: Initially, there was a significant dominance of bureaucracy over Panchayati Raj Institutions (PRIs). The state administration, along with various parallel bodies, has always been the implementing agent for all major programs, thereby undermining the importance of PRIs.
- Financial Shortcomings: The lack of adequate financial resources to carry out administration poses a serious problem. The grant-in-aid forms a major part of the PRI revenue.
- Rising Corruption: At the village level, corruption, groupism, casteism, and nepotism are gradually becoming rampant, particularly in the creation of community assets.
- Personal Over Public Interest: Elected representatives are often found prioritizing their personal interests over public welfare. They tend to benefit their caste members or other associates, which directly or indirectly serve their vested interests, rather than focusing on development activities in education, health, family planning, land improvement, minor irrigation, sanitation, animal husbandry, etc.
- Political Party Dominance: It is increasingly observed that PRIs are viewed merely as organizational arms of political parties, especially the ruling party in the state. As a result, the influence of PRIs is more political than economic.
- Vote Bank Politics: Local leaders maintain strong ties with state leaders, particularly ministers, who patronize them, knowing that they serve as a vote bank for their area.
- Absence of Dialogue: There is a lack of discussion between the candidate and the voter. Prominent political party leaders attend the polls primarily to tally their victories.
- Educational Deficit: Due to a lack of knowledge or education, the intentions and professional experiences of candidates are not scrutinized during elections.
- Women’s Status: Despite the provision for reservations in the Panchayati system under Article 243A, women and lower classes have been unable to fully benefit from it. Even today, voting in rural areas is influenced by several biased undercurrents.
Way forward
- Fostering Financial Autonomy: Enhance the funding to Panchayats directly from state and central budgets and empower them to levy local taxes to finance their own initiatives.
- Power Decentralization: Assign more responsibilities to Panchayats, especially in areas like health, education, and infrastructure, enabling them to make decisions that cater to local needs.
- Candidate Selection: Voters should choose the candidate who truly represents the people’s aspirations, rather than the ‘only’ candidate who promotes casteism, religion, regionalism, and self-interest.
- Investment in Capacity Building: There is a need to expedite investment in capacity-building programs, scale them up, and reinforce such training at regular intervals. Monitoring the quality of these programs is crucial. Special emphasis should be placed on training women in digital technology to enhance their efficiency in Panchayat duties.
- Promoting Community Involvement: Foster active community participation in the planning and execution of local development projects. This can be achieved through regular public meetings, participatory planning processes, and involving local NGOs and community-based organizations in decision-making.
- Consistent Elections: Conduct elections regularly and on schedule to uphold democratic legitimacy and continuity.
- Efficient Monitoring: Establish systems to routinely assess the performance and impact of Panchayat initiatives, ensuring resources are utilized judiciously.
Conclusion
Institutional and administrative reforms, skills development, and capacity-building programmes, along with comprehensive data availability, are indeed the stepping stones to fortify the political agency and foster equitable participation in India’s electoral politics. The Panchayati Raj System, with its potential to decentralize power and democratize decision-making, can play a pivotal role in this transformation. However, its success hinges on overcoming challenges such as financial constraints, bureaucratic dominance, and lack of education among representatives. By addressing these issues and leveraging the strength of community participation, the Panchayati Raj System can truly become a beacon of grassroots democracy in India.
Reference: The Hindu | Indian Express | Business Standard
Related PYQs
Assess the importance of the Panchayat system in India as a part of local government. Apart from government grants, what sources the Panchayats can look out for financing development projects? [UPSC Civil Services Exam – 2018 Mains]
In absence of well–educated and organised local level government system, ‘Panchayats’ and ‘Samitis’ have remained mainly political institutions and not effective instruments of governance. Critically discuss. [UPSC Civil Services Exam – 2015 Mains]
Khap panchayats have been in the news for functioning as extra–constitutional authorities, often delivering pronouncements amounting to human rights violations. Discuss critically the actions taken by the legislative, executive and the judiciary to set the things right in this regard. [UPSC Civil Services Exam – 2015 Mains]
Practice Question
Discuss the significance of Panchayat Raj institutions for women’s empowerment, what issues and challenges do they face in these roles, and what measures can be implemented to overcome these challenges? [250 words]
How to approach this question?
Introduction:
- Start by briefly explaining the Panchayat Raj Institutions (PRIs) and their role in local self-governance.
- Highlight the significance of these institutions in promoting women’s empowerment.
Body:
- Significance for Women’s Empowerment:
- Discuss how PRIs provide a platform for women to participate in decision-making processes at the grassroots level.
- Explain how this participation enhances their social and political status, thereby contributing to their empowerment.
- Challenges Faced by Women:
- Discuss the societal prejudices, lack of education, and limited access to resources that women often face in these roles.
- Talk about the resistance they may encounter from male counterparts and the struggle of balancing domestic responsibilities with their roles in the Panchayat.
- Measures to Overcome Challenges:
- Suggest measures such as gender sensitization programs, capacity-building initiatives, and educational campaigns.
- Discuss the importance of ensuring equal access to resources and creating supportive networks for women.
Conclusion:
- Summarize the key points discussed in the body of the essay.
- Conclude by emphasizing the potential of PRIs in empowering women and the need for concerted efforts to overcome the challenges they face.
Remember to provide a balanced answer, incorporating relevant facts and figures, and propose feasible solutions. Structure your answer well, with a clear introduction, body, and conclusion. Also, ensure that your answer is within the word limit specified for the exam. Good luck!