Chapter 11 Grassroots Democracy – Part 2 Local Government In Rural Areas

The Panchayati Raj System

With a vast population, a large number of villages, towns, and cities, and significant diversity, India requires an effective system of governance at various levels. Given that nearly two-thirds of India's population resides in rural areas, local government plays a crucial role in their daily lives.

The local government system in rural India is known as the Panchayati Raj System. It is a form of self-government that brings governance closer to the people, enabling them to actively participate in decision-making processes that affect their villages and local areas.

Overview And Three-Tier Structure

The Panchayati Raj system is structured as a three-tier system, operating at different administrative levels in rural areas:

1. Village Level: At the base is the Gram Panchayat, which is the governing body for a village or a group of neighbouring villages.
2. Block Level: Above the village level is the Block Panchayat (also known by names like Panchayat Samiti or Mandal Parishad), which coordinates the activities of Gram Panchayats within a block.
3. District Level: At the top is the District Panchayat (or Zila Parishad), which operates at the district level and oversees the Block Panchayats.

The responsibilities of these Panchayati Raj institutions are broad, covering aspects of rural life such as agriculture, housing, infrastructure (roads, water), education, healthcare, social welfare, and cultural activities.

It is notable that an ancient Indian text on governance, the Arthashastra by Kautilya (around 2,300 years ago), described a hierarchical administrative structure from the village level upwards, similar in principle to the multi-tier system used today. Kautilya's proposed structure included administrative headquarters for groups of 10, 100, 400, and 800 villages, showing an early understanding of layered local administration.

The Village Level

Gram Panchayat And Gram Sabha

The Gram Panchayat is the primary unit of local self-governance at the village level. Its members are elected directly by the Gram Sabha.

The Gram Sabha is the assembly of all adult residents (aged 18 and above) of a village or a group of villages who are registered as voters. The Gram Sabha is a crucial body for direct democratic participation in rural areas. In Gram Sabha meetings, men and women discuss and make decisions on matters affecting their area, such as village needs, development plans, and scheme implementation.

The head or president of the Gram Panchayat is called the Sarpanch or Pradhan. In recent years, there has been a positive trend of increasing numbers of women being elected as Sarpanchs, demonstrating their growing participation in local leadership.

Examples of exemplary Sarpanchs include:

• Dnyaneshwar Kamble: A transgender person elected as Sarpanch in Maharashtra, focusing on public and village service.
• Vandana Bahadur Maida: A woman from the Bhil community in Madhya Pradesh who became the first female Sarpanch of her village, actively addressing issues like education and sanitation and encouraging women's participation.
• Popatrao Baguji Pawar: Sarpanch of Hiware Bazar in Maharashtra, who transformed the village from drought-prone to prosperous through watershed conservation, rainwater harvesting, and tree plantation, receiving the Padma Shri award for his efforts.

Role Of Elected Members And Secretaries

The elected members of the Gram Panchayat, led by the Sarpanch, are responsible for implementing decisions made by the Gram Sabha and carrying out development work in the village.

The Gram Panchayat is supported by a Panchayat Secretary, who is typically a government employee. The Secretary's administrative duties include calling Gram Sabha and Gram Panchayat meetings, recording minutes, and maintaining official records.

In many parts of India, a government officer called the Patwari assists the Gram Panchayat by maintaining land records of the villagers. Patwaris often hold old maps and records which are valuable for understanding historical land ownership and village boundaries.

Child-Friendly Panchayat Initiative

Recognizing that the voice of all residents should be heard, including children, some Panchayats implement Child-Friendly Panchayat Initiatives. These initiatives create platforms for children to express their ideas, concerns, and opinions on issues related to their well-being and development.

Steps are being taken in several states to establish Bal Sabhas (Children's Assemblies) and Bal Panchayats (Children's Councils) where children can regularly voice their perspectives, and village elders can work towards addressing their concerns.

Examples of the impact of such initiatives:

• In Maharashtra, some Bal Panchayats have successfully campaigned to eliminate child labour and child marriage, encouraging children to return to school by convincing parents and community members.
• The Sangkhu Radhu Khandu Gram Panchayat in Sikkim has been recognized as child-friendly for prioritizing children's needs, such as building compound walls for school safety and constructing hygienic kitchens for midday meals.
• The 'Children's Parliament' in Rajasthan, an initiative stemming from the 'Barefoot College', empowered underprivileged children through education and democratic participation, teaching them about governance and social responsibility and enabling them to advocate for issues like education, sanitation, and equality. This initiative received international acclaim.

The Block And District Levels

Structure And Role Of Higher Tiers

Above the village level, the Panchayati Raj system extends to the block and district levels with institutions designed to coordinate activities and planning across wider areas.

• At the block level is the Panchayat Samiti (or Block Panchayat/Mandal Parishad).
• At the district level is the Zila Parishad (or District Panchayat).

The members of these higher-tier institutions are also typically elected by local people, but their composition can also include representatives from the lower tiers (like Sarpanchs from the block's villages) and sometimes local Members of the State Legislative Assembly.

Coordination And Development Functions

The Panchayat Samiti serves as a link between the Gram Panchayats and the Zila Parishad. Its key role is to coordinate activities among the Gram Panchayats within its block. Panchayat Samitis play a vital role in collecting development plans prepared by individual Gram Panchayats, consolidating them, and presenting them to the District or State levels for consideration and funding.

The Zila Parishad operates at the highest level of the Panchayati Raj system within a district. It oversees and coordinates the work of the Block Panchayats. The Zila Parishad plays a significant role in district-level planning, resource allocation, and implementing development schemes from the state or central government, such as programs for rural road construction (like the Pradhan Mantri Gram Sadak Yojana).

Provision For Disadvantaged Sections

Across all three tiers of the Panchayati Raj system, special provisions are made to ensure that the needs and voices of disadvantaged sections of the population are heard and addressed. These provisions include the reservation of seats.

Notably, the Panchayati Raj institutions have a provision for reserving one-third of the seats for women. This ensures significant representation of women in local governance, empowering them to participate in decision-making processes that affect their communities.

While the specific structure and functions of Panchayati Raj institutions may vary slightly from one State to another, as States have authority over these bodies, their overarching objectives remain consistent: empowering rural communities to actively participate in their own governance, manage local issues, and collaborate in local development planning and implementation.