This article has been written by Rhea M B. The article has been edited by Khushi Sharma (Trainee Associate, Blog iPleaders) and Vanshika Kapoor (Senior Managing Editor, Blog iPleaders).

Abstract

The establishment of panchayati raj systems since the 90s has enhanced substantial thrust to the course of decentralisation and has a greater implication on India’s system of governance. With the evolution of the democratic process, the traditional community’s metamorphosis has always been linked with disputes. In 1992, the 73rd Constitutional Amendment gave the panchayats the status of local self-government; they are implemented to ensure economic progress and social justice is carried out. These institutions look forward to elevating infrastructural amenities, authorising the weaker sections to commence the development process in rural India. In contemporary times, panchayati raj’s concept is occasionally laced with a political agenda for strategic and economic reasons. Panchayati raj’s institutions have been benevolent in recognising actual beneficiaries to obtain paramount advantage out of these schemes. However, various components such as casteism, factionalism, and rivalries hamper these institutions’ performance. The failure to identify these hurdles and deficiencies have led to subsequent problems in its implementation. The study gives an overview of the origin, composition, and various issues within this intuition. In addition, it aims to identify the roles of women in the existing patriarchal society and its ardent influence threatening the very shackles of democracy. It is truly a vision our father of the nation envisaged bringing out the essence of democracy through people’s power.

Introduction

The idea of local government has been prominent in India since the ancient period. History has showcased that there exist some traces of Village Panchayats in the form of village communities. Over the years, invaders have established and ravaged empires; however, these villages have preserved their identities. Villages were considered an economic and an administrative unit; the village headmen were recognised as government representatives. 

Panchayati Raj Institutions have played a pivotal role in transforming the socio-economic dimensions of rural India. The effectiveness of these bodies is determined based on the communities’ active involvement, contribution, and participation. It is significant for achieving human welfare through ‘Social Justice’ and ‘Empowerment of weaker sections based on various development initiatives. Through active engagement, the democratic principles and notions of decentralisation paved the way to the process of nation-wide development can be achieved through the working of an effective system of local government. The notion of ‘Gram Swaraj’ as envisioned by Mahatma Gandhi is the true spirit of democracy. It is now instrumental in the development and rural reconstruction. 

Good governance consists of a structure that allows the government to provide services to citizens and generate resources and revenue for societal development. Progress and growth can be attained by the engagement of the various stakeholders in the development process. The development will commence and start primarily in the village. Gandhiji famously stated, “If India is not to perish, we have to begin with a lower rung of the ladder. If that was rotten, all work done at the top of the intermediate level was bound to fall ultimately.” Gandhiji advocated the need for decentralisation and liberation of the villages from exploitation. (See here)

Background

The expression ‘Panchayat’ connotes an assembly of five elderly leaders elected by the local community. Mahatma Gandhi, in 1946 had stated that Indian independence must commence at the grass-root level. Gandhiji’s vision has been transformed into reality with the commencement of a three-tier Panchayati Raj system that enables people’s participation in rural reconstruction.  Panchayat Raj signifies democratic decentralisation and appointment of local self–government at different levels: village, block, and District levels. (see here)

Rural development and growth require uplifting the socio-economic status of the rural population on a sustainable basis through ideal usage of local resources, both natural and human. The spirit of progress and expansion is not in ‘providing’ but in ‘promoting’ the rural sector. Therefore, the principal notion of rural development should be self-reliance. Gandhi has always promoted self-sufficiency and self-reliance of the village community and highlighted the need to utilise local resources for development purposes effectively. Villages should strive to achieve total self-sufficiency, especially with regards to basic needs such as food, clothing, shelter, education, health, etc. 

Various committees such as Malaviya Committee (1956), Balwant Rai Mehta Committee (1957), Ashok Mehta Committee (1978), Hanumantha Rao Committee (1983), G.V.K. Rao Committee (1985), Singhvi Committee (1986), etc., have analysed and examined the development, functioning, autonomy, freedom, weaknesses, and remedial measures for consolidating the system of Panchayati Raj.

Rural development has been a significant concern for policy planners since the 1950s. In 1952, the Community Development Programme (CDP) was intimated. It was a programme introduced for rural reconstruction. It is outlined based on rural life being an organic whole, and no development in any sector was feasible unless a simultaneous attack was made on all sectors. However, due to the lack of people’s participation and initiative, the CDP had failed to achieve its objectives. 

The Balwant Rai Mehta Committee identified the requirement for initiating democratic institutions at the foundation level called panchayat to ensure people’s engagement in executing rural development programmes.

Further, the Ashoka Mehta committee had been commissioned to understand the role of panchayat raj and the means to achieve accelerated growth and rural development. The committee gave several recommendations for the growth and expansion of the panchayat raj system in India, primarily based on decentralisation principles. One of the significant suggestions by the Ashoka Mehta committee was the formation of constitutional status for the panchayat raj systems.  In 1966, India adopted a new plan of action for agricultural development and reforms based on the usage of high yielding varieties of wheat and paddy supported by a policy of remunerative prices to the farmers. This policy is outlined on the basis that the lack of economic growth embeds poverty. Over the years, the essence of the Panchayati Raj System as an effective instrument for people’s participation has been emphasised by the reflection of several committees such as the Balwant Rai Mehta Committee in 1957, Ashok Mehta Committee in 1977 and much more, after years of deliberations the 73rd Amendment to the constitution came in 1992. With this huge development, this Amendment provided the foundational constitutional framework for democracy at the grass-root level. 

The Panchayath Raj system is a three-tier structure it consists of i) Zilla Panchayath ii) Taluk Panchayath iii) Gram Panchayath. Strengthening the institutions of Panchayati raj and economic reforms have been crucial policy development since the 1990s. Both of these aspects are essential for the advancement and progress of our society, providing easy access to services to the community. The need for local self-governance at the foundational level has paved the way to the 73rd and 74th constitutional Amendments. (see here) 

Panchayat Raj

The XIth Schedule of the Constitution states the power and authority of the panchayat that may enable the functions of these institutions. (see here) These laws equip for the devolution of powers and responsibilities upon Panchayats to achieve economic development and social justice and execute the schemes entrusted to them. It must be noted that the term for panchayat is five years from the date of appointment and commencement of their first meeting unless dissolved sooner.

Issues

Absence of Conceptual Clarity 

The deficiency in understanding the role, concept and the primary objectives the members of the panchayat are intended to fulfil. For some, it is merely an administrative agency; for others, it is a charter of rural local government. This lack of clarity could hamper the effectiveness of the process, subsequently leading to confusion and ambiguity.

Lack of Computer-based knowledge and Infrastructure

 In some instances, the lack of skills in relation to computer usage leads to quick diminishing standards of efficient working. The government initiated the e-panchayat project in about 360-gram panchayats. However, these districts lack infrastructure and have poor broadband internet connectivity. The project of e-governance is to provide citizen-centric services electronically, maintain a database on the assets of the gram panchayats, and effortlessly access gram panchayat data and services transparently. (see here)

Poor Coordination among Different Administrative Bodies

 There is a deficiency of proper cooperation and coordination between the people and the officials. In addition, the Gram Pradhans experience shortcomings due to poor coordination among different administrative bodies. The failure of officials to perform their duty effectively and efficiently has resulted in delayed developmental activities and underutilization of funds. Furthermore, The Panchayati Raj bodies experience several administrative hurdles such as politicization of the local administration, absence of coordination and differences between the popular and bureaucratic officials, lack of good opportunities, promotions and incentives for those involved in the administration etc.

Proxy Presence: Female Gram Pradhans

Previously, women who were assumed to be weak and vulnerable are currently empowered. However, they will take time to get used to the system and cope with their new status. During this time, men and other bureaucrats are likely more likely to misuse or abuse their power.

Female pradhans are more likely to be influenced by the family members to stand for the polls and post winning; most of the work is handled by the male family members. On the face, the women won the election but are indirectly being controlled by the male members. The male members took care of the matter and answered people’s queries whilst the females continued their household chores.

Panchayat Raj and political parties: 

Panchayats are regarded and considered to be a ground for political games and rallies. It is generally viewed as extended arms of the ruling political parties in the state. Moreover, the state government permits the panchayats to function to their advantage and not in accordance with ideals of democratic decentralization.

Furthermore, differences can arise between politicians and bureaucrats. The implementation of the 73rd Amendment has mitigated the power and authority enjoyed by the bureaucracy. There is a stark contrast in their understanding and approach, between the Pradhan’s and bureaucrats. 

MLAs, ministers, and bureaucrats have felt intimidated due to the fears of losing power in the process of delegation of powers to the Panchayati Raj institutions. It has been seen that higher political members have become hostile towards lower political figures due to the lack of experience or understanding and other failings. They would take the opportunity to malign the functioning of the Panchayati Raj. In addition, the MLA’s and MP’s are threatened because the careers of the local level politicians are likely to elevate. Hence the confrontation between the local politicians and the decentralization process.

Role of Women in Panchayati Raj

The 73rd and 74th Constitution Amendment has brought significant changes that promote equal access and increased engagement of women’s in politics. About one-third of total Constituencies have been reserved for women. It also ensures and enhances women’s participation in public life. It strives to achieve National policy for women at the foundational level. The commencement of the reservation system in the Panchayati raj institutions empowers women and elevates women’s economic, social, and political status in society. It enables liberalisation from the traditionally male-dominated society and brings in a fresher perspective in good governance. The reservation system encourages women’s participation in the political framework. It has brought in some positive results and better outcomes in education, health, increase in family income. 

This transformation in the system had remarkable results bringing lakhs of women in Panchayats for leadership. The adoption of this Amendment has led the Panchayati Raj system to recognise women’s rights, a significant step to bring the unseen potential of women to governance. It enables women’s engagement in planning, decision-making, execution of the necessity in the village Panchayats. Women representatives have exhibited their prowess and can adapt and learn managing funds, efficient community-based development, etc. Despite such positive outcomes, women are greatly excluded from the PRI and local governance structures. 

Some issues still exist, such as proxy politics, power-brokering, and gender-based discrimination. The women sarpanch have had to counter extreme violence for challenging subsisting power centres in their communities. It is also observed that the male family members utilise the position of the women in their families to stand for the polls and upon the men can control the PRI through the women. 

According to Palanithurai (1994), the candidates feared that the women from upper caste and wealthy sections would oppose the reserved category women and would not like the surge in the number of women representatives from weaker sections to local government bodies in Tamil Nadu. There are about thirty types of discrimination and unsolicited practices of untouchability against Dalits in the four villages he chose to study. According to him, Dalit women panchayat leaders were not permitted to visit the gram panchayat office nor manage and control the gram Sabhas. Their husbands were managing office work as proxies.  In the district of Agra, Uttar Pradesh, women have been on the sidelines due to various factors such as illiteracy, proxy candidature, low status of women in family and society, poverty, etc. In addition, the issue of caste-based violations of human rights continues to exist, resulting in the exploitation of Dalits, specifically in rural India. (see here)(see here) Several such problems exist; it is the duty of the citizens to progress and adopt a more progressive approach towards women. These issues can be removed when we accept women empowerment and change the traditional path of thinking. 

Conclusion

The institution of Panchayat Raj is a milestone in the journey of administrative institutions at the grass-root level. Panchayats have played a notable role in the development of the rural areas in India. The system of Panchayati Raj has faced several hurdles that have been addressed above. However, it is high time that specific corrective action should be taken to ensure a truly representative form of governance. These issues can be combated, but it requires cooperation by the people to accept these changes. The still prevailing traditional thought system must be slowly eradicated for people to understand the meaning of this system truly. Primarily, there should be recognition of the issue that prevails in society. There must be aware of the intricacy of the problems faced; further publicity and its acknowledgement in parliament during the question hour can be considered. Funding must be adequate in order to run these institutions effectively and smoothly. There must also be accountability at all administrative levels in order to hold corrupt officials responsible. 

In addition, in various states in India, PRIs is viewed as a platform to provide social justice through the mechanism of dispute resolution, making it accessible, cost-effective, participatory. The dispute resolution function of PRIs is a part of the constitutional directive to make justice accessible to everyone. (see here) It mitigates the burden on the judiciary and provides faster access to justice. Furthermore, dispute resolution forums have also been initiated at the various levels of panchayat that function under the jurisdiction of the Panchayats. Also, the focus must be on the training and development of human resources to eliminate any conceptual inconsistency. Women’s role in the panchayat must be recognised and not taken over by the male family members; the reason for implementing the reservation policy would truly be a failure. Instead, they need to work towards elevating the overall participation of the community. Hence, there is a need for specific reformation in the policies and laws to truly achieve the people’s participation in this system of governance.

Bibliography and References

Websites

• https://www.thehindu.com/news/national/telangana/infrastructure-deficiencies-haunt-epanchayat/article7782881.ece
• https://www.in.undp.org/content/india/en/home/library/democratic_governance/centre_of_excellenceforlocalgovernancedetailedprojectreport.html
• https://www.thehindu.com/news/national/telangana/infrastructure-deficiencies-haunt-epanchayat/article7782881.ece

Articles

• An Empirical Study on The Role of Panchayat Raj on the Rural Development of Karnataka State by Dr. Honnappa, S
• The Role of Women Representatives in the Local Self Government (Panchayat Raj) with special reference to Thane District – A Study by Dushyantraj Sahibram Mallick
• A Case Study on Women leadership in Panchayati Raj Institutions (PRI) at the Gram Panchayat level by Narender Pau
• Advocating for Change: Promoting Women’s Participation and Leadership in Local Governance by Nibedita Phukan, Ganesh Kumar, Mariyam Majeed
• Potential and Possibilities by Priya Das, Alpaxee Kashyap, Subhalakshmi Nandi, Nandita Bhatla and Poulomi Pal
• A Case Study on Madamakki Gram Panchayat by Ministry of Panchayat Raj
• Dushyantraj Sahibram Mallic, The Role of Women Representatives in the Local Self Government ( Panchayat Raj)with  special reference to Thane District – A Study.
• A Case Study on Women leadership in Panchayati Raj Institutions (PRI) at the Gram Panchayat level
• Administrative Competency Framework for Effective Governance at Grassroots Level- G. Palanithurai

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