NCERT Textbook: Grassroots Democracy — Part 2: Local Government in Rural Areas | Indian Polity for UPSC CSE PDF Download

 Page 1


163
11 ? Grassroots Democracy – Part 2
Grassroots Democracy – Part 2
Local Government in  
Rural Areas
CHAPTER
11
 
The real India lives in its villages.
– M.K. Gandhi
Let us now see how the government functions at the local 
level. In this chapter , our focus will be on local government in 
rural areas; we will move to urban areas in the next chapter. 
India is a country of enormous size and diversity. We have 
about 600,000 villages, 8,000 towns and over 4,000 cities. 
Our population has crossed 1.4 billion, almost two-thirds of 
which live in rural areas. How do we govern ourselves in this 
complex society? 
Let us take a trip to Lakshmanpur, a small village in the 
foothills of the Himalayas. It has 200 houses and a population 
of about 700, most of whom are farmers. People cultivate 
The Big 
Questions
1. What are Panchayati Raj 
institutions?
2. What are their functions? 
3. Why are they important in 
governance and democracy?
11_100724_v5.indd   163 11_100724_v5.indd   163 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
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163
11 ? Grassroots Democracy – Part 2
Grassroots Democracy – Part 2
Local Government in  
Rural Areas
CHAPTER
11
 
The real India lives in its villages.
– M.K. Gandhi
Let us now see how the government functions at the local 
level. In this chapter , our focus will be on local government in 
rural areas; we will move to urban areas in the next chapter. 
India is a country of enormous size and diversity. We have 
about 600,000 villages, 8,000 towns and over 4,000 cities. 
Our population has crossed 1.4 billion, almost two-thirds of 
which live in rural areas. How do we govern ourselves in this 
complex society? 
Let us take a trip to Lakshmanpur, a small village in the 
foothills of the Himalayas. It has 200 houses and a population 
of about 700, most of whom are farmers. People cultivate 
The Big 
Questions
1. What are Panchayati Raj 
institutions?
2. What are their functions? 
3. Why are they important in 
governance and democracy?
11_100724_v5.indd   163 11_100724_v5.indd   163 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
164
Exploring Society: India and Beyond 
Governance and Democracy
their lands and rear cows or goats. Some have relatives 
serving in the armed forces; a few younger villagers have 
migrated to the city in search of jobs. What are the needs 
of this village — maybe water for the fields, repairing the 
main road if it got damaged by heavy rains, or maintaining 
the village’s primary school? How will the villagers take 
decisions about such matters that affect their daily lives? 
And where will they get the resources to meet those needs? 
What will happen if there is a dispute about land or if some 
of the crop is stolen? Many such questions can arise in a 
village. Can people run to the State or the national capital 
for every such issue?
Panchayati Raj System
Like every village in India, the Lakshmanpur people have 
a system of local government called ‘Panchayat’, which 
refers to a village council. Panchayats bring governance 
closer to the people, making it possible for them to actively 
participate in decision-making processes. That is why 
the Panchayat system, also known as Panchayati Raj, is 
a form of self-government. Panchayats play a vital role 
in addressing local issues, promoting development and 
ensuring that the benefits of government schemes reach 
the grassroots level.
District level
Block level
Village level
Village Parishad / 
Gram Panchayat
District Panchayat/  
Zila Parishad
Block Panchayat / 
Panchayat Samiti / 
Mandal Parishad
Fig. 11.1
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Page 3


163
11 ? Grassroots Democracy – Part 2
Grassroots Democracy – Part 2
Local Government in  
Rural Areas
CHAPTER
11
 
The real India lives in its villages.
– M.K. Gandhi
Let us now see how the government functions at the local 
level. In this chapter , our focus will be on local government in 
rural areas; we will move to urban areas in the next chapter. 
India is a country of enormous size and diversity. We have 
about 600,000 villages, 8,000 towns and over 4,000 cities. 
Our population has crossed 1.4 billion, almost two-thirds of 
which live in rural areas. How do we govern ourselves in this 
complex society? 
Let us take a trip to Lakshmanpur, a small village in the 
foothills of the Himalayas. It has 200 houses and a population 
of about 700, most of whom are farmers. People cultivate 
The Big 
Questions
1. What are Panchayati Raj 
institutions?
2. What are their functions? 
3. Why are they important in 
governance and democracy?
11_100724_v5.indd   163 11_100724_v5.indd   163 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
164
Exploring Society: India and Beyond 
Governance and Democracy
their lands and rear cows or goats. Some have relatives 
serving in the armed forces; a few younger villagers have 
migrated to the city in search of jobs. What are the needs 
of this village — maybe water for the fields, repairing the 
main road if it got damaged by heavy rains, or maintaining 
the village’s primary school? How will the villagers take 
decisions about such matters that affect their daily lives? 
And where will they get the resources to meet those needs? 
What will happen if there is a dispute about land or if some 
of the crop is stolen? Many such questions can arise in a 
village. Can people run to the State or the national capital 
for every such issue?
Panchayati Raj System
Like every village in India, the Lakshmanpur people have 
a system of local government called ‘Panchayat’, which 
refers to a village council. Panchayats bring governance 
closer to the people, making it possible for them to actively 
participate in decision-making processes. That is why 
the Panchayat system, also known as Panchayati Raj, is 
a form of self-government. Panchayats play a vital role 
in addressing local issues, promoting development and 
ensuring that the benefits of government schemes reach 
the grassroots level.
District level
Block level
Village level
Village Parishad / 
Gram Panchayat
District Panchayat/  
Zila Parishad
Block Panchayat / 
Panchayat Samiti / 
Mandal Parishad
Fig. 11.1
11_100724_v5.indd   164 11_100724_v5.indd   164 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
165
11 ? Grassroots Democracy – Part 2
As is clear from the diagram, the Panchayati Raj system 
works at three levels — from bottom up — the village, the 
block and the district. This is called a ‘three-tier system’. 
Together, these institutions’ responsibilities cover almost 
all aspects of life in the district, from agriculture, housing, 
maintenance of roads, management of water resources, 
education, health care and social welfare to cultural 
activities.
Gram Panchayat
Let us begin with the base of Fig. 11.1 on page 164 — the Gram 
Panchayat, which is closest to the people in rural areas. Its 
members are elected directly by the Gram Sabha, which is 
a group of adults from a village (or group of neighbouring 
villages) who are enrolled as voters. In the Gram Sabha, 
women and men discuss all matters related to their area 
and take decisions. Each Gram Panchayat elects a head 
or president called the ‘Sarpanch’ or ‘Pradhan’. In recent 
years, more and more women have become Sarpanchs.
11_100724_v5.indd   165 11_100724_v5.indd   165 11-Jul-24   4:27:21 PM 11-Jul-24   4:27:21 PM
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163
11 ? Grassroots Democracy – Part 2
Grassroots Democracy – Part 2
Local Government in  
Rural Areas
CHAPTER
11
 
The real India lives in its villages.
– M.K. Gandhi
Let us now see how the government functions at the local 
level. In this chapter , our focus will be on local government in 
rural areas; we will move to urban areas in the next chapter. 
India is a country of enormous size and diversity. We have 
about 600,000 villages, 8,000 towns and over 4,000 cities. 
Our population has crossed 1.4 billion, almost two-thirds of 
which live in rural areas. How do we govern ourselves in this 
complex society? 
Let us take a trip to Lakshmanpur, a small village in the 
foothills of the Himalayas. It has 200 houses and a population 
of about 700, most of whom are farmers. People cultivate 
The Big 
Questions
1. What are Panchayati Raj 
institutions?
2. What are their functions? 
3. Why are they important in 
governance and democracy?
11_100724_v5.indd   163 11_100724_v5.indd   163 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
164
Exploring Society: India and Beyond 
Governance and Democracy
their lands and rear cows or goats. Some have relatives 
serving in the armed forces; a few younger villagers have 
migrated to the city in search of jobs. What are the needs 
of this village — maybe water for the fields, repairing the 
main road if it got damaged by heavy rains, or maintaining 
the village’s primary school? How will the villagers take 
decisions about such matters that affect their daily lives? 
And where will they get the resources to meet those needs? 
What will happen if there is a dispute about land or if some 
of the crop is stolen? Many such questions can arise in a 
village. Can people run to the State or the national capital 
for every such issue?
Panchayati Raj System
Like every village in India, the Lakshmanpur people have 
a system of local government called ‘Panchayat’, which 
refers to a village council. Panchayats bring governance 
closer to the people, making it possible for them to actively 
participate in decision-making processes. That is why 
the Panchayat system, also known as Panchayati Raj, is 
a form of self-government. Panchayats play a vital role 
in addressing local issues, promoting development and 
ensuring that the benefits of government schemes reach 
the grassroots level.
District level
Block level
Village level
Village Parishad / 
Gram Panchayat
District Panchayat/  
Zila Parishad
Block Panchayat / 
Panchayat Samiti / 
Mandal Parishad
Fig. 11.1
11_100724_v5.indd   164 11_100724_v5.indd   164 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
165
11 ? Grassroots Democracy – Part 2
As is clear from the diagram, the Panchayati Raj system 
works at three levels — from bottom up — the village, the 
block and the district. This is called a ‘three-tier system’. 
Together, these institutions’ responsibilities cover almost 
all aspects of life in the district, from agriculture, housing, 
maintenance of roads, management of water resources, 
education, health care and social welfare to cultural 
activities.
Gram Panchayat
Let us begin with the base of Fig. 11.1 on page 164 — the Gram 
Panchayat, which is closest to the people in rural areas. Its 
members are elected directly by the Gram Sabha, which is 
a group of adults from a village (or group of neighbouring 
villages) who are enrolled as voters. In the Gram Sabha, 
women and men discuss all matters related to their area 
and take decisions. Each Gram Panchayat elects a head 
or president called the ‘Sarpanch’ or ‘Pradhan’. In recent 
years, more and more women have become Sarpanchs.
11_100724_v5.indd   165 11_100724_v5.indd   165 11-Jul-24   4:27:21 PM 11-Jul-24   4:27:21 PM
166
Exploring Society: India and Beyond 
Governance and Democracy
Exemplary Sarpanchs
Dnyaneshwar Kamble is a transgender person who was 
elected Sarpanch of Tarangfal village in the Solapur district of 
Maharashtra in 2017. Kamble’s motto is lok seva, gram seva, 
that is, ‘Service to the village is service to 
the public.’ Kamble defeated six other 
candidates to become the Sarpanch. 
Vandana Bahadur Maida, 
a member of the Bhil 
commu-nity from the 
village of Khankhandvi  
in Madhya Pradesh, defied  
patriarchal norms to become the first 
female Sarpanch of her village. She 
convinced women in the village to attend 
the Sabha meetings and addressed critical 
issues like education and sanitation, 
earning recognition far and wide. 
Vandana’s journey shows how women  
can play a leading role  in transforming  
rural India.
Hiware Bazar, a village in Ahmednagar district of Maharashtra, used 
to be affected by frequent droughts and poor agricultural yield. After 
Popatrao Baguji Pawar became its Sarpanch, he started applying 
Anna Hazare’s model of rainwater harvesting, watershed conservation 
and massive tree planting of lakhs of trees, all of which contributed to 
the recharge of groundwater. With the collaboration of the villagers, 
Hiware Bazar became a green and prosperous village in a few years. 
Shri Popatrao Pawar was awarded the Padma Shri in 2020.
11_100724_v5.indd   166 11_100724_v5.indd   166 11-Jul-24   4:27:23 PM 11-Jul-24   4:27:23 PM
Page 5


163
11 ? Grassroots Democracy – Part 2
Grassroots Democracy – Part 2
Local Government in  
Rural Areas
CHAPTER
11
 
The real India lives in its villages.
– M.K. Gandhi
Let us now see how the government functions at the local 
level. In this chapter , our focus will be on local government in 
rural areas; we will move to urban areas in the next chapter. 
India is a country of enormous size and diversity. We have 
about 600,000 villages, 8,000 towns and over 4,000 cities. 
Our population has crossed 1.4 billion, almost two-thirds of 
which live in rural areas. How do we govern ourselves in this 
complex society? 
Let us take a trip to Lakshmanpur, a small village in the 
foothills of the Himalayas. It has 200 houses and a population 
of about 700, most of whom are farmers. People cultivate 
The Big 
Questions
1. What are Panchayati Raj 
institutions?
2. What are their functions? 
3. Why are they important in 
governance and democracy?
11_100724_v5.indd   163 11_100724_v5.indd   163 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
164
Exploring Society: India and Beyond 
Governance and Democracy
their lands and rear cows or goats. Some have relatives 
serving in the armed forces; a few younger villagers have 
migrated to the city in search of jobs. What are the needs 
of this village — maybe water for the fields, repairing the 
main road if it got damaged by heavy rains, or maintaining 
the village’s primary school? How will the villagers take 
decisions about such matters that affect their daily lives? 
And where will they get the resources to meet those needs? 
What will happen if there is a dispute about land or if some 
of the crop is stolen? Many such questions can arise in a 
village. Can people run to the State or the national capital 
for every such issue?
Panchayati Raj System
Like every village in India, the Lakshmanpur people have 
a system of local government called ‘Panchayat’, which 
refers to a village council. Panchayats bring governance 
closer to the people, making it possible for them to actively 
participate in decision-making processes. That is why 
the Panchayat system, also known as Panchayati Raj, is 
a form of self-government. Panchayats play a vital role 
in addressing local issues, promoting development and 
ensuring that the benefits of government schemes reach 
the grassroots level.
District level
Block level
Village level
Village Parishad / 
Gram Panchayat
District Panchayat/  
Zila Parishad
Block Panchayat / 
Panchayat Samiti / 
Mandal Parishad
Fig. 11.1
11_100724_v5.indd   164 11_100724_v5.indd   164 11-Jul-24   4:27:19 PM 11-Jul-24   4:27:19 PM
165
11 ? Grassroots Democracy – Part 2
As is clear from the diagram, the Panchayati Raj system 
works at three levels — from bottom up — the village, the 
block and the district. This is called a ‘three-tier system’. 
Together, these institutions’ responsibilities cover almost 
all aspects of life in the district, from agriculture, housing, 
maintenance of roads, management of water resources, 
education, health care and social welfare to cultural 
activities.
Gram Panchayat
Let us begin with the base of Fig. 11.1 on page 164 — the Gram 
Panchayat, which is closest to the people in rural areas. Its 
members are elected directly by the Gram Sabha, which is 
a group of adults from a village (or group of neighbouring 
villages) who are enrolled as voters. In the Gram Sabha, 
women and men discuss all matters related to their area 
and take decisions. Each Gram Panchayat elects a head 
or president called the ‘Sarpanch’ or ‘Pradhan’. In recent 
years, more and more women have become Sarpanchs.
11_100724_v5.indd   165 11_100724_v5.indd   165 11-Jul-24   4:27:21 PM 11-Jul-24   4:27:21 PM
166
Exploring Society: India and Beyond 
Governance and Democracy
Exemplary Sarpanchs
Dnyaneshwar Kamble is a transgender person who was 
elected Sarpanch of Tarangfal village in the Solapur district of 
Maharashtra in 2017. Kamble’s motto is lok seva, gram seva, 
that is, ‘Service to the village is service to 
the public.’ Kamble defeated six other 
candidates to become the Sarpanch. 
Vandana Bahadur Maida, 
a member of the Bhil 
commu-nity from the 
village of Khankhandvi  
in Madhya Pradesh, defied  
patriarchal norms to become the first 
female Sarpanch of her village. She 
convinced women in the village to attend 
the Sabha meetings and addressed critical 
issues like education and sanitation, 
earning recognition far and wide. 
Vandana’s journey shows how women  
can play a leading role  in transforming  
rural India.
Hiware Bazar, a village in Ahmednagar district of Maharashtra, used 
to be affected by frequent droughts and poor agricultural yield. After 
Popatrao Baguji Pawar became its Sarpanch, he started applying 
Anna Hazare’s model of rainwater harvesting, watershed conservation 
and massive tree planting of lakhs of trees, all of which contributed to 
the recharge of groundwater. With the collaboration of the villagers, 
Hiware Bazar became a green and prosperous village in a few years. 
Shri Popatrao Pawar was awarded the Padma Shri in 2020.
11_100724_v5.indd   166 11_100724_v5.indd   166 11-Jul-24   4:27:23 PM 11-Jul-24   4:27:23 PM
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11 ? Grassroots Democracy – Part 2
The Gram Panchayat is assisted by a 
Panchayat Secretary who performs 
administrative functions such as 
calling meetings and maintaining 
records. Most Gram Panchayats are 
also assisted by an officer called 
‘Patwari’ in many parts of India, who 
maintains the villagers’ land records. 
In some cases, the Patwari keeps 
maps that are generations old! 
THINK ABOUT IT
How do you think can these old maps be helpful for us?  
Can they tell us something about the past and the present?
Child-Friendly Panchayat Initiative
Panchayats are supposed to listen to everyone’s voice 
— including the voice of children. The Child-Friendly 
Panchayat Initiative creates opportunities for children to 
express their ideas and opinions on matters that concern 
their wellbeing. Steps are being taken in several States to 
encourage the participation of children in Bal Sabhas and 
Bal Panchayats on a regular basis, while village elders try 
to find solutions to their concerns. 
In Maharashtra, for example, a few Bal Panchayats have 
worked to eliminate child labour and child marriage. 
They have brought many children back to school. The Bal 
Panchayat members get together to convince parents and 
other adults to send their wards back to school, and not to 
arrange marriages for girls who should be studying.
Several Gram Panchayats have won awards for taking 
child-friendly initiatives. Here’s an example from Sikkim:
Sangkhu Radhu Khandu Gram Panchayat, in west Sikkim, 
has given a lot of importance to children’s needs and rights. 
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