Panchayati Raj Institution (PRI)

The Panchayati Raj Institution (PRI) is a system of rural local self-governance in India. Local self-government refers to the management of local affairs by bodies elected by the local populace. The PRI was formally institutionalized through the 73rd Constitutional Amendment Act of 1992 to foster grassroots democracy and focus on rural development. Although it has existed for 26 years, significant work remains to further decentralize power and enhance democracy at the local level.

Evolution of the Panchayati Raj System in India
The history of Panchayat Raj in India can be traced through several phases:

1. Vedic Era:
   Early Sanskrit texts mention the term ‘Panchayatan’, referring to a group of five individuals, including a spiritual leader. Over time, the inclusion of the spiritual leader was removed. Local democratic bodies like the Sabha, Samiti, and Vidatha were recognized, where the king sought approval for decisions.
   
2. Epic Era:
   In the Ramayana and Mahabharata, the administration was split into ‘Pur’ (town) and ‘Janpad’ (village). The Mahabharata mentions village-level governance, with positions such as the ‘Gramik’ (village head) and other officials for groups of villages, responsible for local administration and taxes.
   
3. Ancient Period:
   Kautilya’s Arthashastra and the Mauryan and Gupta periods emphasize local governance through village councils. Village self-governance was prevalent, although there was no mention of women’s participation in these panchayats.
   
4. Medieval Period:
   During the Sultanate period, village governance included officials like the Mukkaddam (administrator), Patwari (revenue collector), and Choudhrie (dispute settler), supported by the Panch. However, the feudal system under the Mughals undermined local self-governance.
   
5. British Period:
   Under British rule, village panchayats lost autonomy. However, after 1870, the concept of elected local representatives gained ground with Mayo’s Resolution and Lord Rippon’s reforms. In the early 20th century, local bodies were recognized, though they remained weak.
   
6. Post-Independence:
   The Indian Constitution’s Article 40 (Directive Principles) initially mentioned panchayats, though they lacked a clear structure. The 1950s and 1960s saw various developmental initiatives, including the Community Development Programme (CDP), though these programs often failed due to issues like bureaucracy and political interference.
   

In 1957, the Balwant Rai Mehta Committee recommended a three-tier Panchayati Raj system, leading to its implementation in some states by the late 1950s. The Ashok Mehta Committee (1977) proposed a two-tier structure, and further reforms followed in the 1980s and 1990s, culminating in the 73rd and 74th Constitutional Amendments (1992), which institutionalized local self-governance.

Salient Features of the 73rd and 74th Amendments:
The 73rd and 74th Amendments introduced local self-governance through the creation of Panchayats (rural) and Municipalities (urban). Key features include:

• A three-tier system of Panchayats at the village, intermediate block, and district levels (except in small states).
  
• Direct elections for all seats, with reservations for SC/ST and women (one-third).
  
• A five-year term for elected bodies, with mandatory elections in case of dissolution.
  
• Devolution of functions related to economic development and social justice to Panchayats (outlined in the 11th Schedule).
  
• Financial provisions, including budgetary allocations from state governments, revenue sharing, and Union Finance Commission grants.
  
• Creation of a Finance Commission at the state level to ensure financial resources for local bodies.
  

Reforms in Panchayati Raj Institutions (PRIs):
Over the past 26 years, PRIs have achieved notable successes but also faced significant challenges:

• Successes:
  The PRI system has empowered local governments and provided political representation at the grassroots level. Women’s representation has increased, with over 1.4 million women holding elected positions. Studies show that female representation improves public service delivery, especially in sectors like drinking water and infrastructure. Financial allocations for local bodies have increased through successive Finance Commissions.
  
• Challenges:
  Despite constitutional empowerment, PRIs face difficulties such as insufficient funds, lack of effective devolution, gender bias (e.g., Sarpanch Pati), inadequate infrastructure, and insufficient support staff. There is also a lack of convergence between various government programs, leading to inefficiencies in development.
  

Steps for Improvement:
To strengthen PRIs, the following measures are recommended:

• Implementing the 2nd Administrative Reform Commission’s suggestions, including fiscal autonomy for local bodies.
  
• Clear demarcation of functions for each tier of government.
  
• Encouraging states to outsource specific functions to public or private agencies.
  
• Providing comprehensive training for PRI officials in areas like financial management and rural development.
  
• Establishing audit committees for financial oversight.
  

Way Forward:
The future of PRIs lies in ensuring that decentralization leads to tangible improvements in the socioeconomic and health status of rural populations. The government should focus on promoting democracy, social inclusion, and fiscal accountability. Clear function assignments, independent financial resources for local governments, and stronger convergence of developmental programs are essential for the effective functioning of PRIs.