The strength and sustenance of local institutions in India has shifted from their formative phase of ‘Functions, Functionaries and Funds’ to the contemporary stage of ‘Functionality’. Highlight the critical challenges faced by local institutions in terms of their functionality in recent times. (UPSC IAS Mains 2020 General Studies Paper – 2)
“When the panchayat raj is established, public opinion will do what violence can never do.” – Mahatma
Gandhi Local Self Government is the management of local affairs by such local bodies who have been elected by the local people. The history of local institutions in India goes back to 1952 when the Community Development Programme (CDP) was introduced.
Formative Years of Local Institutions
- In the developing phase of the local institutions, the debate was around what functions shall be allotted to these institutions, who will execute these functions and how the funds will be mobilised for their implementation.
- In 1957, Balwant Rai Mehta Committee reviewed the working of the CDP. The committee suggested a threetier PRIs, namely, Gram Panchayats at the village level, Panchayat Samiti at the block level, and Zilla Parishad at the district level.
- In 1977, Ashok Mehta Committee recommended compulsory power of taxation and in 1985 the GVK Rao Committee recommended assigning an role with respect to planning, implementation and monitoring of rural development programmes.
- The Gadgil Committee in 1988 made comprehensive recommendations on local institutions. Based on its recommendations, 73rd and 74th Constitutional Amendments were passed.
- It provided a three-tier system for local government and assigned them constitutional status.
- Gram Sabha is the foundation of the Panchayati Raj system.
- All members of local bodies shall be directly elected by the people and seats shall be reserved for SC/ST and women at all three levels.
- State Election Commission to supervise elections.
- Endowment of power and functions, such as preparation of plans for economic development and social justice.
- Formation of State Finance Commission every 5 years to review the financial provisions of local bodies.
- The above amendments have been able to address the functions, functionaries and funds debate. However, in recent times strength and sustenance of local bodies are facing functionality related issues.
Functionality related challenges
- Structural Deficiencies: PRIs suffer from structural deficiencies i.e. inadequate secretarial support and lower levels of technical knowledge which restricted the aggregation of bottom-up planning.
- Adhocism: There is a presence of adhocism i.e. lack of clear setting of agenda in Gram Sabha, Gram Samiti meetings and no proper structure.
- Proxy Representation: Though women and SCs/STs have got representation in PRIs through reservation mandated by 73rd amendment, proxy representation, for example, in case of women through Panch-Pati, acts as a major hurdle.
- Overlapping Functions: The issue of ambiguity in the division of functions and funds has allowed concentration of powers with the states and thereby restraining the elective representatives who are more aware and sensitive to the ground level issues to take control.
Local institutions have been able to strengthen democracy at the root level. But as the institutions have evolved, new challenges have emerged. Their rectification will require raising awareness among masses and their representatives, clear demarcation of responsibility and a system of accountability.
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