Grassroots Democracy - 1 | PSIR Optional for UPSC (Notes) PDF Download

Introduction - Grassroots Democracy

In India, political power is distributed among three levels of governance - the central government, state government, and local government. The local government encompasses Panchayati Raj Institutions (PRIs) in rural areas and Municipal and Metropolitan Councils in urban areas, collectively referred to as Local Self-Governance (LSG) institutions. These institutions represent grassroots democracy in action. The 73rd and 74th Constitutional Amendments have expanded the role and scope of local self-governance in the country.

Historical Background of Rural Self- Government In India

The concept of rural self-government in India, also known as Panchayati Raj, has a long history dating back to ancient times when rural communities organized institutions to manage their own affairs. Village autonomy was significantly present during the Mughal era, resulting in minimal impact on local communities from the Mughal administration. However, the formal structure of rural self-government was introduced in 1882 through Ripon's Resolution, primarily to secure the support of local Indian elites for the colonial administration. The contemporary local self-government in India can be considered more as a continuation of the British-introduced system rather than the pre-British era.

• Several provincial acts were passed during the British rule, which laid the foundation for many other provincial and central legislations. The village Panchayat system in rural areas was established based on the recommendations of the Royal Commission of Decentralization in 1907. The main objective was to decentralize power and involve the local population in administration through village Panchayats. Each Panchayat was meant to represent a single village, or in the case of very small villages, a group of adjoining villages. Panchayats were not to be controlled by local boards but by the deputy commissioner.
• Village Panchayats had certain judicial and administrative powers, and they were also entitled to a portion of land cases and special grants. The Rural Self-Government Bill of 1925 provided for a nine-member village authority elected on the basis of restricted adult franchise. A successful village authority could be granted more powers. A Panchayat could represent more than one cadastral village and could be entrusted with specific functions such as water supply, medical relief, and sanitation. In cases where no recognized forms of village organization existed, a single-member village authority could also be established.

Panchayati Raj in Post-Independence India

• The Panchayati Raj in post-independence India aimed to establish democratic institutions in villages to improve governance and development. In January 1957, the Planning Commission appointed the Committee on Plan Projects, headed by Balwant Rai G. Mehta, to explore the potential relationship between village panchayats and higher-level organizations for effective implementation of community projects and national extension services. The committee also aimed to determine the stages of reorganization of district administration to help democratic bodies take over general administration and development.
• The Mehta Committee conducted a nationwide survey and found that community projects and national extension services did not effectively involve people and functioned in an ad hoc manner. To address this issue, the committee recommended the establishment of village panchayats with adequate powers and finances. The Mehta Committee report emphasized the need for financial support for rural institutions to evoke local interest and initiatives for development. However, it also acknowledged the potential pitfalls of excessive government control and interference.
• The report suggested that the functions of local bodies should include agriculture development, cattle improvement, local industry growth, public health, welfare work, primary school administration, and statistics. It also recommended that panchayats act as agents of state government in executing special development schemes.
• To preserve the autonomy of village communities, the Mehta Committee report advised that the relationship between the state and Panchayati Raj bodies should not be overly controlled by the government. It emphasized that these institutions should have the power to make mistakes and learn from them while also receiving guidance to avoid unnecessary errors. However, the resulting structures primarily focused on development functions.

There are differing opinions on the success of Panchayat Raj in rural development. Some argue that it has not only failed to contribute significantly but has also hindered progress due to power politics and distribution of developmental patronage, as well as disturbing village harmony through factional conflicts. Others believe that the failures are due to lack of finances, insufficient cooperation from government departments, half-hearted policies, and a defective structure for implementation.

The 73rd Constitutional Amendment Act, 1992

The 73rd Constitutional Amendment Act, 1992 aimed to address the shortcomings of the Community Development Programmes and Extension Services Programmes in India. These programs were initially introduced to achieve all-round development of rural India, but they faced issues such as corruption and inefficiency. To overcome these challenges, various committees were formed to recommend measures for improvement, ultimately resulting in the 73rd and 74th Constitutional Amendments.

Key features of the 73rd Constitutional Amendment Act include:

• A three-tier system of Panchayati Raj at village, block (intermediate level), and district levels for all states with a population of over 20 lakhs.
• Regular Panchayat elections every 5 years, with elections held within six months after the term of the existing Panchayati Raj expires.
• Reservation of seats for Scheduled Castes, Scheduled Tribes, women (33%), and general seats.
• Appointment of State Finance Commission to make recommendations regarding the financial powers of Panchayats.
• Constitution of District Planning Committee to prepare draft development plans for the entire district.

The Constitution empowers state legislatures to enact laws enabling Panchayats to function as institutions of self-governance. The devolution of powers mainly relates to the preparation of plans for economic development, social justice, and the implementation of various schemes. The Eleventh Schedule of the Constitution lists 29 subjects related to agriculture, land reforms, minor irrigation, rural infrastructure, poverty alleviation, and more.

Panchayats can be authorized by the state legislature to levy, collect, and appropriate taxes, duties, tolls, and fees collected by the state government, as well as receive grant-in-aid from the Consolidated funds of the state. The financial relations between the state and the Panchayats are governed by the State Finance Commission.

In addition to the 73rd Amendment, the Panchayats (Extension of Scheduled Areas) Act, 1996 extended Panchayat provisions to the Scheduled Areas in eight Indian states. This act aimed to empower the tribal society to take control of their own destiny and preserve traditional rights over natural resources.

The Panchayati Raj Institutions in the Post - 73rd Amendment Era: The Case of UP

The 73rd Amendment Act has been implemented in most states in India, leading to the establishment of Panchayati Raj Institutions (PRIs). These institutions are considered as the third layer of federalism and serve as an extension of the two-layer federalism between the Centre and the states. Before the confirmation and implementation of the 73rd Amendment Act, five state governments had already introduced PRIs: Maharashtra, Gujarat, West Bengal, Andhra Pradesh, and Karnataka. The 73rd Amendment provides a common framework for the structure of PRIs, with some variations in the nomenclature of the structures at various levels. This article discusses the structure of PRIs in Uttar Pradesh (UP) as an example. The PRIs in UP consist of the following structure:

1. Gram Panchayat: This consists of the gram sabha (village council) and members of the village panchayats, who are directly elected by the electorate and headed by the Pradhans. The Gram Panchayat has jurisdiction over all 29 subjects mentioned in the 11th Schedule and functions through four committees: Samata Samiti, Vikas Samiti, Shiksha Samiti, and Lok Hita Samiti.
2. Kshetra Panchayat: This intermediate tier comprises elected pradhans of the gram panchayats within the block, members elected by direct elections from the territorial constituencies in the panchayat area, MLAs and MLCs, and representatives of zila parishad (Zila Panchayat).
3. Zila Panchayat (Zila Parishad): Like kshetra panchayats, zila parishad includes elected members chosen directly in territorial constituencies, MLAs and MLCs, along with the Parmukhs of all kshetra panchayats in the district. The primary functions of the zila parishad are to supervise the activities of gram panchayats and Kshetra Samitees, classify fairs and festivals, and classify roads for maintenance.
4. PRIs: An Assessment: The performance of PRIs varies across states and is influenced by the social, economic, and political environment in the villages. While some states have been more successful in implementing PRIs and devolving powers to local bodies, others have faced challenges such as factionalism, casteism, and corruption.

One of the main hindrances in the performance of PRIs has been the lack of will on the part of many state governments to devolve power to them. However, states like Karnataka, West Bengal, Kerala, and Tamil Nadu have shown better performance much before the introduction of the 73rd Amendment. In the era of globalization, PRIs in states like Madhya Pradesh, Rajasthan, Andhra Pradesh, and Kerala have made special efforts to involve people in planning, decision-making, and implementation of state policies.

The 73rd Constitutional Amendment has made it mandatory for all states to have reservation for SCs, STs, OBCs, and women in the PRIs. This has enabled these groups to participate in and lead local bodies. However, PRIs still face serious challenges such as factionalism, casteism, and corruption, which have hindered their democratization. For instance, transfer of important subjects like education to the PRIs has resulted in the politicization of issues in some states, adversely affecting decentralization and governance.

Conclusion

In conclusion, the concept of grassroots democracy and local self-governance in India has evolved significantly over time, with Panchayati Raj Institutions (PRIs) playing a crucial role in rural development. The 73rd and 74th Constitutional Amendments have provided a framework for the establishment and functioning of these institutions, with the aim of promoting democratization, empowering disadvantaged groups, and improving governance. However, despite the progress made, PRIs still face challenges such as factionalism, casteism, and corruption that hinder their effectiveness. To ensure the success of grassroots democracy in India, it is essential for the state governments to genuinely devolve power to PRIs, foster transparency, and encourage active participation of citizens in the decision-making processes.

Frequently Asked Questions (FAQs) of Grassroots Democracy

What is the historical background of rural self-government in India?

The concept of rural self-government in India, also known as Panchayati Raj, dates back to ancient times when rural communities organized institutions to manage their own affairs. The formal structure of rural self-government was introduced in 1882 through Ripon's Resolution, primarily to secure the support of local Indian elites for the colonial administration.

What is the purpose of the 73rd Constitutional Amendment Act, 1992?

The 73rd Constitutional Amendment Act, 1992, aimed to address the shortcomings of the Community Development Programmes and Extension Services Programmes in India. Its focus is on the democratization, empowerment of disadvantaged groups, and improvement in the functioning of Panchayats (local self-governments) in rural areas.

What are the key features of the 73rd Constitutional Amendment Act?

Some key features of the 73rd Constitutional Amendment Act include a three-tier system of Panchayati Raj at village, block, and district levels; regular Panchayat elections every 5 years; reservation of seats for Scheduled Castes, Scheduled Tribes, and women; appointment of State Finance Commission to make recommendations regarding the financial powers of Panchayats; and constitution of District Planning Committee to prepare draft development plans for the entire district.

How has the 73rd Constitutional Amendment impacted the structure and functioning of Panchayati Raj Institutions (PRIs)?

The 73rd Amendment has led to the establishment of PRIs in most states in India, serving as an extension of the two-layer federalism between the Centre and the states. This has resulted in the devolution of powers mainly relating to the preparation of plans for economic development, social justice, and the implementation of various schemes. However, the performance of PRIs varies across states and is influenced by the social, economic, and political environment in the villages.

What challenges do Panchayati Raj Institutions (PRIs) face in their democratization and functioning?

PRIs face challenges such as factionalism, casteism, and corruption, which have hindered their democratization. Transfer of important subjects like education to the PRIs has resulted in the politicization of issues in some states, adversely affecting decentralization and governance. Additionally, a lack of will on the part of many state governments to devolve power to PRIs has been a significant hindrance to the performance and democratization of these institutions.