Panchayati Raj System in Karnataka | KPSC KAS Preparation: All subjects - KPSC KAS (Karnataka) PDF Download

Meaning of Decentralized Governance

• Decentralized governance signifies a pivotal shift in political strategies and ideologies, emphasizing transparency, responsiveness, and accountability within democracies. It serves as a fundamental approach to instigate reforms and enhance governance quality.
• Today, decentralization plays a crucial role in local governance, standing out as a key theme in developmental narratives. In the swiftly evolving landscape of societal changes and developmental endeavors, debureaucratization and decentralization have emerged as pertinent solutions to address the ongoing forces of globalization, liberalization, and privatization.
• Decentralized governance, often synonymous with terms like 'local governance', 'local self-governance', 'panchayat administration', or 'decentralization panchayat governance', encapsulates the essence of political reform processes focused on democratizing the state further.

Features of Decentralized Governance

• Empowerment through Deconcentration and Devolution: Decentralization underpins the empowerment of local communities by redistributing authority and responsibilities through deconcentration and devolution mechanisms.
• Utilization of Local Initiatives: Decentralized governance endeavors to harness local initiatives and practices by engaging grassroots organizations such as self-help groups, thereby fostering community involvement in decision-making processes.
• Facilitating Representative and Participatory Democracy: Decentralized governance facilitates both representative democracy and participatory democracy by providing platforms for community members to actively engage in governance issues and policy-making.
• Interactive Policy Making: An essential characteristic of decentralized governance is interactive policy making, which encourages dialogue and collaboration among various stakeholders, ensuring that policies meet the diverse needs of local populations effectively.

Evolution of Panchayati Raj Institutions in Karnataka

• Decentralized decision-making involves the active participation of various sectors such as the government, private sector, NGOs, communities, and grassroots organizations to influence policy and suggest alternatives.
• Decentralized governance prioritizes people-centric, participatory, and bottom-up development approaches, enhancing understanding of government actions and responsiveness to local needs.
• In Karnataka, the evolution of Panchayati Raj institutions has a rich history, with roots dating back to ancient times, experiencing a decline in village autonomy under British rule.

Brief Overview of Historical Phases

• The first phase (1978-82) focused on district planning, establishing bodies like the District Planning Committee (DPC) and District Development Councils (DDC) for drafting district plans.
• The second phase (1983-86) emphasized more control and devolution of funds to districts based on state-level directives.
• The third phase (1986-1993) saw the implementation of the 1985 Act, leading to the establishment of Zilla Panchayats, Taluk Panchayats, and Mandal Panchayats, enhancing decentralized planning and governance.

Key Legislation and Implementation

• The Karnataka Panchayati Raj Act of 1993 aimed at achieving democratic decentralization in rural governance, establishing Panchayati Raj Institutions at various levels.
• The Act brought about significant changes in district planning structures and the Panchayati Raj system, empowering local bodies and promoting grassroots democracy.

Structural Changes and Features

• The Nyaya Panchayats Act of 1983, influenced by the Ashok Mehta Committee, introduced bodies like Mandal Panchayats and Grama Sabhas, enhancing local governance and oversight mechanisms.
• The Act set the stage for a more inclusive and participatory governance model by involving elected representatives at different levels of administration.

Rural Local Governance in Karnataka: Issues and Trends

• The state of Karnataka enacted a comprehensive Panchayati Raj Act aligning with the 73rd Constitutional Amendment, effective from May 10, 1993.
• The Act established a three-tier system comprising Grama Panchayat, Taluk Panchayati Samiti, and Zilla Panchayat.
• Currently, Karnataka has 5,628 village panchayats, 175 taluk panchayati samitis, and 30 zilla panchayats.

Institutional Representation

• The governance system in Karnataka witnessed a period of stagnation due to irregular elections and bureaucratic control.
• While members of all three tiers are directly elected, the Adhyaksha and Upadhyaksha of these bodies are chosen indirectly from among the elected members.
• The 1993 Act introduced reservations for SC, ST, and women, a departure from previous practices.

Elected Members

• The state has 91,402 elected Grama Panchayat members, with significant representation from SC, ST, OBC, and women.
• Women account for around 43% of the total elected members in Karnataka's Panchayati Raj Institutions.

Elected Members of Grama Panchayats, Karnataka

• As per data, in Karnataka, there are 3,708 Total Panchayat Samiti (TPS) members, with 41.24% being women.
• Community-based breakdown of TPS members:
  • 678 members are from Scheduled Castes (SC) (18.40%),
  • 347 members are from Scheduled Tribes (ST) (9.42%),
  • 841 members belong to Other Backward Communities (OBC) (20.83%),
  • 1,842 members belong to other communities (50.01%).

Elected Members of Taluk Panchayat Samitis, Karnataka

• Among 1,005 Zilla Panchayat (ZP) members, 37.1% are women.
• Categorical breakdown of ZP members:
  • 184 members from Scheduled Castes (18.30%),
  • 84 members from Scheduled Tribes (8.35%),
  • 245 members from OBC (24.37%),
  • 492 members from other communities (48.95%).

Distribution of Elected 3-Tier Panchayat Members in Karnataka

Key Features of 73rd Amendment and Karnataka Panchayats Act 1993

• Introduction of a three-tier system: Grama Panchayat at the village level, Taluk Panchayati Samiti at the block level, and Zilla Panchayat at the district level.
• Mandatory conduct of local body elections every five years.
• Reservation of seats and offices for SC/STs in proportion to their population in each local body with a provision for rotation of reserved seats and offices.
• Introduction of reservations for women.
• Establishment of a State Election Commission as an independent body to conduct elections for rural and urban local bodies periodically.
• Formation of a State Finance Commission to recommend resource allocation from the State Government to rural and urban local bodies.
• Creation of a District Planning Committee to consolidate plans prepared by rural local bodies for comprehensive district development planning.
• Introduction of the Grama Sabha, comprising all registered voters in a Grama Panchayat, promoting transparency, accountability, and public participation.

Structure of Rural Local Bodies

• The Grama Sabha, a fundamental democratic institution in each village, consists of registered voters in the Grama Panchayat.
• A vibrant Grama Sabha is crucial for effective Grama Panchayat operations by enhancing transparency, accountability, and public engagement.
• Special Grama Sabha meetings can be called upon request by at least ten percent of members with specified agenda items, maintaining a minimum three-month gap between such meetings.
• The quorum for a Grama Sabha meeting should be at least one-tenth of the total members or a hundred members, with a mandate for women and proportional representation of SC/ST members.

Functional Devolution

• Various committees are tasked with devolving functions to the three tiers of panchayats, emphasizing decentralization and delegation of powers.
• The process of delegating powers and functions to rural bodies, especially Grama Panchayats, is dynamic and open to further empowerment.

Grama Panchayats

• Karnataka houses 5638 Grama Panchayats across its 30 districts and 176 Taluk Panchayat areas.

Powers and Functions of Grama Panchayats

• Key functions include providing sanitary facilities, aiming for full coverage, and ensuring progress in sanitation facilities annually.

Powers

• The Grama Panchayat is empowered to carry out all necessary acts related to its functions without external approval and has specific powers outlined in the Act.
• Cheques for payments require joint signatures from the President and Panchayat Development Officer, with provisions for alternative signatories if needed.
• The Grama Panchayat can undertake works up to Rs. 5.00 lakh from its general fund without external approval.
• The Grama Panchayat has been delegated powers to promptly address repairs and maintenance tasks for hand pumps, power pumps, and street lights.
• The Grama Panchayat can independently procure street light materials meeting quality standards.

Taluk Panchayati Samiti

• Composition and Elections
  • Comprising members directly elected by residents of non-urban areas, with varying numbers based on population.
  • Reserved seats for scheduled castes and a limited number for women.
  • Participation of MLAs and MLCs in the proceedings.
• Term and Structure
  • Members serve a five-year term, while MLAs and MLCs hold office until the end of their legislative tenure.
  • Election of presidents and vice-presidents from among the members.
• Functions
  • Responsibilities include water supply development, reporting on Grama Panchayat activities, and ensuring basic infrastructure and services in villages.
  • Monitoring progress in areas like education, taxation, and public utilities.

Zilla Panchayat

• Role and Structure: There are 30 Zilla Panchayats in the state, serving as advisory bodies.
• Functions: Tasks include providing and maintaining school infrastructure, acquiring land for waste disposal, and overseeing immunization programs.
• Establishment of health centres including maternity centres to cover the entire population within five years, following government norms.
• Construction of underground water recharge structures to ensure water availability in drinking water wells.
• Prevention of drilling irrigation bore wells near drinking water wells to maintain adequate drinking water supply, especially during lean seasons.
• Development of a social forestry plan in each taluk, allocating a specified percentage of the District Plan funds annually as directed by the government.

Issues in Panchayati Raj Institutions (PRIs)

Functional Issues

• Functional autonomy is limited to Gram Panchayats (GPs), with psychological dependency still existing among GP presidents, leading to inefficiencies.
• Lack of training programs for elected officials and staff, hampering their effectiveness in implementing schemes.
• Technical Personnel Service (TPS) and Zilla Panchayat (ZP) mainly supervise developmental works instead of capacity building at the grassroots level.

Financial Issues

• PRIs in Karnataka have financial autonomy with funds allocated based on State Finance Commission (SFC) recommendations.
• Challenges include joint cheque signing powers causing obstacles, inadequate allowances for elected members, and lack of openness among women members during meetings.

Conclusion

• Successful decentralized governance hinges on power devolution, financial resource allocation, administrative efficiency, and accountability mechanisms.
• PRIs in Karnataka exhibit colonial remnants with Zilla Panchayats primarily performing administrative roles, necessitating stronger district-level decentralized authority.
• While Karnataka has taken steps to empower PRIs, there is still a long journey ahead for the system to mature.