Decentralization and Panchayati Raj | Public Administration Optional for UPSC (Notes) PDF Download

Introduction

Decentralization plays a crucial role in ensuring a vibrant and dynamic local self-government system. It enables realistic programming, prompt attention to local issues, and enhanced accountability. To achieve this goal and uphold Gandhi ji's principle of Sarvodaya (upliftment and progress for all), the Government of India launched the Community Development Programme on Gandhi Jayanti, October 2nd, 1952. However, the implementation revealed a lack of citizen interest and popular participation in local-level development programs.

The Balwant Rai Mehta Committee

To address the disinterest in local-level development, the Balwant Rai Mehta Committee was formed in 1957. The committee proposed a three-tier Panchayati Raj structure, consisting of the Zilla Parishad (District), Gram Panchayat (Village level), and Panchayat Samiti (Block/Taluk level). It recommended direct elections for Gram Panchayats, while higher-level appointments were to be made through nominations. The committee envisioned the district as the unit for democratic decentralization, planning, organizing, and supervising district administrative functions.

Divergent Approaches in Implementation

While some states embraced the recommended three-tier structure, others favored making the District/Zilla Parishad the executive body. Maharashtra, Gujarat, and Karnataka adopted the district-based model, highlighting its ability to provide necessary resources, administrative personnel, and equipment. The G.V.K Rao Committee also supported this approach. However, the central government's focus on agricultural production and the introduction of new technologies diminished the role of Panchayati Raj in rural development. The central government bypassed the Panchayati Raj institutions by developing independent administrative hierarchies, leading to an alienation between bureaucracy and grassroots politicians.

Challenges and Janata Party's Initiative

State governments' apathy toward timely elections, inadequate funds, and interference from higher authorities further hampered the functioning of Panchayati Raj institutions. Recognizing the dire situation, the Janata Party established the Ashok Mehta Committee in 1977 to examine the issues. The committee recommended a two-tier structure, with Mandal Panchayats at the lower level and Zilla Parishad at the upper level. It proposed the participation of political parties, a dedicated cabinet minister for Panchayati Raj, and the establishment of Nyaya Panchayats for judicial matters.

Journey towards Constitutional Status

Despite several attempts to pass bills for the constitutional status of Panchayati Raj, success was elusive until the 73rd Constitutional Amendment Act in December 1991. This landmark legislation established a three-tier system of Panchayati Raj for states with a population exceeding 20 lakhs. It mandated regular elections, reserved seats for marginalized communities, and the establishment of Gram Sabhas for decentralized governance. The amendment aimed to extend and deepen democracy, making Panchayats institutions of self-governance.

Current Scenario and Issues

Presently, Panchayati Raj institutions encompass millions of elected representatives, covering a significant portion of India's villages and rural population. However, challenges persist in implementation:

• Lack of autonomy for Panchayats as the Centre and states retain power in planning.
• Delayed elections due to political considerations, requiring stronger State Election Commissions independent of state governments.
• Role and governance of Panchayats depend on the ruling regime, limiting their effectiveness.
• Limited responsibilities assigned to Panchayats, focusing mainly on implementing state and union schemes.
• Reluctance to share fiscal powers, necessitating a separate tax domain exclusively for PRIs.
• Need for a local list in the Constitution's Seventh Schedule, clearly defining the domains of Panchayati Raj institutions and preventing encroachment by higher levels of government.
• Inadequate financial resources and dependence on state governments for funding, leading to limited capacity for local development initiatives.
• Gender disparity and underrepresentation of women in Panchayati Raj institutions, despite reservation of seats for women.
• Lack of awareness and capacity building among elected representatives and citizens, hindering effective participation in decision-making processes.
• Interference and dominance of political parties in Panchayati Raj institutions, undermining their autonomy and grassroots democracy.

Way Forward and Empowering Local Governance

To address these challenges and empower Panchayati Raj institutions for effective local governance, the following steps can be taken:

• Strengthening Autonomy: Grant greater decision-making powers and financial autonomy to Panchayats, allowing them to plan and implement local development programs.
• Timely Elections: Ensure regular, free, and fair elections at all levels of Panchayati Raj institutions, with the establishment of independent State Election Commissions.
• Capacity Building: Provide training and capacity-building programs for elected representatives and officials to enhance their understanding of local governance and development issues.
• Expanded Responsibilities: Assign a wider range of responsibilities to Panchayats, including areas such as education, healthcare, infrastructure development, and natural resource management.
• Fiscal Empowerment: Devolve financial powers to Panchayats, enabling them to generate revenue through local taxes and have control over their own finances.
• Women's Empowerment: Ensure effective implementation of women's reservation in Panchayati Raj institutions and promote gender equality and women's participation in decision-making processes.
• Strengthening Gram Sabhas: Empower Gram Sabhas, the village-level assemblies, to play a more active role in decision-making, planning, and monitoring of local development initiatives.
• Transparent and Accountable Governance: Establish mechanisms for transparency, accountability, and grievance redressal in Panchayati Raj institutions, ensuring public participation and accountability of elected representatives.
• Constitutional Amendments: Consider further constitutional amendments to solidify the role and powers of Panchayati Raj institutions, including a local list in the Seventh Schedule to protect their domain.
• Public Awareness: Conduct awareness campaigns to educate citizens about the importance of local governance, their rights, and their role in the functioning of Panchayati Raj institutions.

By implementing these measures, India can realize the true potential of Panchayati Raj and achieve decentralized governance that empowers local communities, fosters inclusive development, and strengthens grassroots democracy. It is through these efforts that the vision of Mahatma Gandhi and the aspirations of the Indian Constitution can be realized, bringing about holistic progress and Sarvodaya for all.