Panchayati Raj System Towards Changing Rural India (Kurukshetra January 2021)

Panchayati Raj System Towards Changing Rural India

  • PRIs got constitutional status in 1992.
  • Institutions of local self-governance.
  • Bihar was the first state to adopt Panchayati Raj System in 1947 like the system of local self-governance started by Lord Ripon in British era.
Panchayati Raj System Towards Changing Rural India

Post-Independence Phase

  • The Balwant Rai Mehta Committee headed by Member of Parliament Balwant Raj Mehta was appointed by the Govt. in Jan 1957.
  • To examine the work of the Community Development Programme (1952) .
  • To examine the National Extension Service (1953) .
  • To suggest measures to improve their work.

Balwant Rai Committee

  • The first to recommend the formal organization and structure of Panchayati Raj.
  • The Committee, in 1957, recommended the establishment of the scheme of democratic decentralization which ultimately came to be known as Panchayati Raj.
  • It recommended a three-tier system at village, block, and district level.
  • It also recommended direct election of village level panchayat.
  • On October 2,1959, Rajasthan (Nagaur district) became the first state to introduce the panchayat system in India.

Ashok Mehta Committee

  • On Panchayati Raj was appointed in 1977.
  • In 1978 submitted its report with various recommendations to revive and strengthen the declining Panchayati Raj System in the country.
  • Its key recommendations included two tier system of panchayat, regular social audit, representation of political parties at all levels of panchayat elections, provisions for regular elections, reservation to SC⟋S-T in panchayats and a minister for Panchayati raj in state council of ministers.

G. V. K. Rao Committee

  • In 1985 recommended measures to strengthen Panchayati Raj Institutions.
  • In 1986, for the first time recommended for the constitutional status of PRIs.
  • Suggested for constitutional provisions to ensure regular, free, and fair elections to the Panchayati Raj Bodies.

73Rd Constitutional Amendment Act, 1992

  • A bill for providing constitutional backing to PRIs in Lok Sabha in September, 1991.
  • Introduced by the then Prime Minster V Narasimha Rao led government.
  • It came into force on 24th April, 1993.
Key Elements of 73Rd Amendment Act 1992
  • A new part IX to the constitution was added.
  • The Article 243-G of the Constitution intended to empower the Gram Panchayats (GPs) .
  • Enabling the State Governments to devolve powers and authority in respect of all 29 subjects listed in the 11th Schedule for local planning and implementation of schemes for economic development and social justice.
  • Some provisions are binding to the States and others have been left to be decided by respective State Legislatures at their discretion.

Organization of Gram Sabha՚s

  • Creation of a three-tier Panchayati Raj Structure at the District (Zila) , Block and Village levels.
  • Most of these posts at three levels to be filled by direct elections.
  • Minimum age for contesting elections to the PRIs is 21 years.
  • Only the post of Chairman at the District and Block levels should be filled by indirect election.
  • Provision for reservation of seats for SCs and STs in Panchayats, in proportion to their population and for women in Panchayats up to one-third seats.
  • State Election Commission to be set up in each State to conduct elections to PRIs.
  • The tenure of PRIs is five years, if dissolved earlier and, fresh elections to be held within six months.
  • Creation of a State Finance Commission in each state every five years.
  • Some of the provisions have been considered as only guidelines including giving representation to the members of Central and State legislatures in district and middle-level PRIs, provisions of reservation for backward classes and financial powers to PRIs such as taxes, levy fees, etc.

Role of PRIs in Implementation of Mega Social Sector Scheme

  • Implementation of MGNREGA-Mahatma Gandhi National Rural Employment Guarantee, since its launch in 2006.
  • MGNREGA provides alternative employment to people in rural areas through providing guaranteed employment of ₹ 100 days to each rural household.
  • 261 permissible works out of which around 164 types of works are relating to agriculture and allied activities including water conservation.
  • For dealing with COVID-19, spread, the permissible works under MGNREGA had been enhanced to 262 numbers by adding unskilled wage component of 230 persons-days.
  • Constructing Community Sanitary Complexes in convergence with Swachh Bharat Mission (Grameen) .
  • 50% of the works must be executed by PRIs.
  • PRIs are primarily responsible for planning, implementing, and monitoring of the works undertaken.
  • For 2020 - 21, ₹ 61,500 crore was initially allocated.
  • Govt. has also made an additional allocation of ₹ 40,000 crore to MGNREGA under AatmaNirbhar Bharat Abhiyan for dealing with COVID-19.

PRIs Role in Jal Jeevan Mission

  • JJM is a flagship programme launched in 2019.
  • Aims to provide all rural households tap water in adequate quantity and of prescribed quality by 2024.
  • During the current fiscal (2019 - 20) , ₹ 8,050 crore have been allocated to the States for implementing JJM by the central government.
  • In every Gram Panchayat, the sub-committee-Village Water & Sanitation Committee or Paani Samitis have been constituted for planning at village level.
  • Role of gram panchayats has been to identify beneficiaries under the Pradhan Mantri Awaas Yojana-Gramin.
  • Scheme helps BPL families who are either houseless or having inadequate facilities for constructing a safe and durable shelter.

Rashtriya Gram Swaraj Abhiyan

  • Being implemented from 2018 - 19 to 2021 - 22.
  • Primary aim of developing governance capabilities of PRIs.
  • To deliver on Sustainable Development Goals.
  • Main thrust on convergence with Mission Antyodaya and emphasis on strengthening PRIs in 117 Aspirational districts.

Composition of Panchayats

  • Three-tier structure based on direct elections at all the three tiers namely village (gram panchayat) , intermediate (panchayat samiti) and district (Zila Parishad) .
  • Exemption from the intermediate tier is given to the small states having less than 20 lakhs population.
  • Functions regarding preparing plans for economic development and social justice regarding 29 important matters mentioned in XI schedule such as agriculture, primary and secondary education, health, and sanitation, drinking water, rural housing, the welfare of weaker sections, social forestry etc.

Gram Panchayat

Functions like preparation of annual development plan of panchayat area, annual budget, relief in natural calamities, removal of encroachment on public lands and implementation of and monitoring of poverty alleviation programmes were expected to be performed by panchayats.

Obligatory Functions

Civic functions relating to sanitation, cleaning of public roads, minor irrigation, public toilets and lavatories, primary health care, vaccination, the supply of drinking water, constructing public wells, rural electrification, social health, and primary and adult education, etc.

Panchayat Samiti

  • The second or middle tier of Panchayati Raj.
  • Provides a link between Gram and Zila Parishad.
  • The strength of a Panchayat Samiti also depends on the population in a Samiti area.
  • In Panchayat Samiti, some members are directly elected.
  • Sarpanchs of Gram Panchayats are ex-officio members of Panchayat Samiti.
  • Panchayat Samitis are the main hub of developmental activities.
  • Some functions are entrusted them like agriculture, land improvement, watershed development, social and farm forestry, technical and vocational education, etc.

Zila Parishad

  • Also known as District Panchayat.
  • Uppermost tier of the PRIs.
  • Has directly elected members.
  • Number differs from State to State as it is also based on population.
  • Chairpersons of Panchayat Samitis are ex-officio members of Zila Parishads.
  • Members of Parliament, Legislative Assemblies and Councils belonging to the districts are also nominated members of Zila Parishads.
  • It prepares district plans integrates Samiti plans into district plans for submission to the State Government.
  • Zila Parishad looks after development works in the entire district.
Substantial Progress in Terms of Implementing the Key Aspects of the Legislation
  • All the states and UTs have passed conformity acts.
  • State Election Commissions have been established and regular elections have been conducted under their supervision in all States.
  • State Finance Commission have been constituted in all the States and their recommendations obtained.
  • Infrastructure and governance systems in panchayats across the country have improved significantly.
Devolution of Funds, Function and Functionaries to PRIs
  • The funds, function and functionaries that form the three main components of the devolution of power.
  • Vary across the states.
  • Devolution Report in 2015 - 16:
    • Published by the Ministry of Panchayati Raj.
    • Devolution has two main aspects.
      • The operational core includes funds, function, functionaries.
      • Support system that includes capacity building of PRIs, operationalizing constitutional mechanisms and introducing systems of transparency and accountability.
  • Kerala, Tamil Nadu, Maharashtra, and Karnataka have performed better than other states in terms of devolving function.
  • Another critical aspect of legislation following the 73rd amendment was insertion of a clause under the article 280 (3) (bb) of the constitution that the Union Finance Commission would recommend measures to supplementing the resources of the panchayats.
Rising Financial Devolution to PRIs
  • Beginning with the Tenth Finance Commission (1995 - 2000) , an amount of ₹ 3576 crore was released to the States.
  • No terms of reference for local bodies.
  • Recommended ₹ 100 per capita grants to the rural population.
  • As per the 1971 Census to PRIs.
  • Worked out to ₹ 4380 crore to discharge the new roles assigned to PRIs.
  • 11th Finance Commission (2000 - 2005) recommended the grant of ₹ 8,000 crore for Panchayats.
  • Untied grant was to be used for maintenance of accounts and audit followed by the development of a financial database.
  • Remaining amount to be utilized for maintenance of core services like primary education, health care, drinking water provision, street lighting and sanitation in the villages.
  • During 2000 - 2005, ₹ 6601 crore was released to the states.
  • The 12th Finance Commission (2005 - 2010) had recommended ₹ 20,000 crore grants for the PRIs, against which an amount of ₹ 18,926 crore was released to the PRIs in 27 states.
  • The actual release of grants during the 13th finance commission (2010 - 15) was ₹ 58,256 crore which was 89.4% of allocation.
  • The grants of XIVth finance commission (2015 - 2020) had been to the tune of ₹ 1,80, 237 crore released for the Gram Panchayats in 26 states.
  • For the XVth finance commission (2020 - 21) , a grant of ₹ 60,750 crore, for Rural Local Bodies (RLBs) in 28 states which has been the highest annual Finance Commission allocation for the RLBs so far.
E-Gram Swaraj Portal and Mobile Application Swamitya Scheme
  • Launched on April 24 (National Panchayati Raj Day) , 2020.
  • The e-Gram Swaraj helps prepare and execute Gram Panchayat Development Plans.
  • The portal will ensure real time monitoring and accountability.
  • A major step towards digitization down to the Gram Panchayat level.
  • The Swamitva scheme which is launched in pilot mode in six states helps to map rural inhabited lands using drones and latest survey methods.
  • The scheme will ensure streamlined planning, revenue collection and provide clarity over property rights in rural areas.

Examrace Team at Aug 23, 2021