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PANCHAYATI RAJ INSTITUTIONS IN INDIA E- GOVERNANCE As per World Bank, E-Governance refers to the use of information technologies by government agencies (such as Wide area Network, internet and mobile computers) that have the ability to transform...

PANCHAYATI RAJ INSTITUTIONS IN INDIA E- GOVERNANCE As per World Bank, E-Governance refers to the use of information technologies by government agencies (such as Wide area Network, internet and mobile computers) that have the ability to transform relations with citizens, businesses and other arms of government. GOI with an intention to transform the Govt landscape by ensuring participation of citizens in policy making & providing ease of access to information to citizens, introduced the National E-Governance Plan (NeGP) in 2006. The vision of NeGP was to “Make all Govt services accessible to the common man in his/her locality, through common service delivery outlets & ensure efficiency, transparency & reliability of such services at affordable costs to realize the basic needs of the common man”. E- Panchayat in one of the Mission Mode Project (MMP) currently being implemented with a vision to empower and transform rural India. At a first step towards formulating the project, the Ministry of Panchayati Raj constituted an Expert Group in June, 2007, under the chairmanship of Dr. BK Gairola, Director General, NIC, and Govt of India. The expert group was entrusted with the task of assessing the IT programs of Ministry of Panchayati Raj & recommending cost effective solutions along with the cost implications. Adopting consultative approach, the committee interacted with the States/UTs to assess the existing status of computerization up to the Gram Panchayat Level, including the initiatives undertaken by the state governments, in order to understand the ground realities, the committee conducted field visits to some of the Gram Panchayats in the selected Rural Areas where some IT initiatives had been undertaken. Inputs from eminent experts in the public and private sectors were also taken into account as part of the consultative process. In essence, it found that while some computerization efforts had already been made at Panchayat level by states, like Gujarat, West Bengal, Karnataka, Kerala, Andhra Pradesh & Goa, these attempts were limited as they were driven by short term goals and were unable to completely transform Panchayats due to lack of holistic perspective. It was felt that a more comprehensive approach was required to make a cognizable impact on the functioning of the Panchayats for the benefit of the citizens. These recommendations formed the basis for the conceptualization of e-Panchayat MMP. The e-Panchayat project holds great promise for the rural masses as it aims to transform the Panchayati Raj Institutions PRIs into symbols of modernity, transparency and efficiency. This is a one of its kind nationwide IT initiative introduced by the Ministry of Panchayati Raj that endeavors to ensure people’s participation in Programme decision making,  Implementation and delivery. The project aims to automate the functioning of more than 2.5 lakh Panchayats in the country. The project addresses all aspects of Panchayat functioning including Planning, Monitoring, Implementation, Budgeting, accounting, social audit and delivery of citizen services like issue of certificates, licenses etc. Necessity and objective of E-Governance in the Panchayats. Necessity of E-Governance If the panchayats are to perform efficiently and effectively all the mandated tasks which are increasing day by day, extensive use of information technology is the only way. Moreover, there is a strong need to build a digital inclusive society where large sections of rural populations are able to benefit from new technologies can access and share information and services freely and can participate in the development process more effectively. The panchayats being at the interface of rural citizens and governance structure are an effective vehicle to induce mass ICT culture at the grass root level. Objectives of E-Panchayat It is with this broad vision that Mo PR has formulated a scheme for ICT enablement of all the panchayats in the country in a mission mode approach. The e-Panchayat mission mode project (MMP) in intended to provide a whole range of IT related services to central ministries, state depts., citizens etc. such as citizens centric services, decentralized database, planning, budgeting & accounting, implementation & monitoring of central and state sector schemes. Unique codes to panchayats and individual, essential GIS base applications, on line self-learning etc. to citizens. The panchayats being the basic unit for planning and implementation of a large number of schemes and services, this MMP would also go a long way improving public service delivery with better outcomes. ISNA, BPR and DPR for e-Panchayat Essentially six components are required for successful rollout of the e-Panchayats 1. A) ISNA – Information & service need Assessment B) BPR – Business Process Reengineering C) DPR – Detailed Project Report 2. Computing Infrastructure 3. Application development & deployment 4. Connectivity 5. Capacity building 6. Project Management ISNA, BPR & DPR Mo PR has carried out detailed assessment of information & service Needs (ISNA) of all stakeholders including central line ministries, state departments, District Administration, Panchayats & citizens based on ISNA reports, (a) Business Process Re-engineering (BPR) reports, in which the identified services have been re-engineered for optimizing the efficiency/effectiveness of service delivery & (b) Detailed Project Reports (DPR) which is a complete roadmap for operationalizing e- Panchayat MMP, has been prepared for each of the 34 states & UTs. The DPRs give rollout model, project cost & operational strategies. States need to re-engineer their processes for internal functioning of the Panchayats & also for citizen service delivery. The revised process maps have been indicated in the state BPR reports. Legal charges & revised processes have also been listed in these reports. Objectives of E-Panchayat Mission Mode Project If the panchayats are to perform efficiently & effectively all the mandated tasks, which are increasing day by day, extensive use of information & communication technology (ICT) is needed. Moreover, there is a strong need to build a ‘digital inclusive society’ where large sections of rural population are able to benefit from new technologies, can access & share information & services freely & can participate in the development process more effectively. The panchayats being at the interface of rural citizens & governance structure are an effective vehicle to induce mass ICT culture at the grass root level. It is with this broad vision that Mo PR formulated a scheme for ICT enablement of all the panchayats in the country on a Mission Mode approach. The e-Panchayat mission mode project (MMP) is intended to address all the aspects of panchayats functioning from internal core, functions such as decentralized planning, budgeting, accounting implementation & monitoring etc. to service delivery like issue of certificates, licenses etc. Key objectives are -: 1. Automation of internal workflow process of panchayats 2. Improving delivery of services to citizens 3. Capacity building of Panchayat Representatives & Officials 4. Social audit 5. Transparency, accountability, efficiency & RTI compliance of Panchayats 6. Improving governance of local self-government The Panchayat being the basic unit for planning & implementation of a large number of schemes & services, tis MMP would also go a long way in improving public service delivery through PRIs with better outcomes. Project Conceptualization E-Panchayat is aimed at automating internal workflow processes of all the 2.5 lakh Panchayats across the country. This will cover approximately 30 lakh elected members & several lakh PRI functionaries. In 2009-10, in order to lay a strong foundation for e-Panchayat & to ensure that evolved through an elaborate consultative process, Ministry of Panchayati Raj commissioned a comprehensive study covering all states & UTs to identify all the information & service needs of the stakeholders viz, central ministries, state depts., Panchayats & citizens. Field studies were conducted in 135 Panchayats across 45 Districts covering the then 34 States/UTs. 23 central schemes were studied & discussions were held with 11 central line Ministries, their state depts., district & block administrations & several field level functionaries. Inputs were also taken from Gram Sabha meetings & through other focused group discussions with citizens. After the need assessment study, process re-engineering was suggested & a roadmap for e- enabling panchayats across the country was developed. These reports on information & service needs assessment (ISNA), BPR & DPR developed for every State/UT in the country. These efforts culminated in the formulation of a national ISNA, National BPR & National DPR that set the roadmap for radically transforming decentralized local governance in the country. THE THREE TIER STRUCTURE OF PANCHAYATI RAJ IN INDIA & THE FUNCTIONS OF PRI The structure of Panchayati Raj varies from state to state. Some states have three tier structure, (Gram Panchayat at village level, Panchayat Samiti at block level & Zila Parishad at district level) while some have two tier structure Gram Panchayat at village level & Panchayat Samiti at block level and some have just one body at village level. A. GRAM PANCHAYAT Gram Panchayat is the base or bottom tier of the PR system. It is the first executive tier having jurisdiction over a village or a group of villages. The members of a gram Panchayat, Sarpanch and Panch are directly elected. In case the village is very small, Panchayat consists of more than one village. Their number in each Panchayat vary from 5 to 31 according to the population of the concerned village(s). in addition to the elected Panchas & Sarpanch MEMBERSHIP Sarpanch Panch 2 Women ST Member SC member Role of Sarpanch  1. Occupies a pivotal position in Gram Panchayat. 2. Supervises & coordinates Panchayat activities. 3. An ex-offico member of the Panchayat Samiti. 4. Participates in Decision making as well as election of Pradhan & other standing committees. 5. Acts as executive head of Panchayat. 6. Represents the Panchayat in Panchayat Samiti. 7. Coordinates activities with other local institutions. Panchayat Secretary- assists the Sarpanch in administration. Assists in recording decisions, Keeping minutes Preparing budgets, estimates & reports Preparing notices, explaining circulars & organizing gram Sabha etc. Village Level Worker- administrative assistant Now known as Village development officer, assists in drawing up agricultural production plans, Helps farmers in securing loans, Arrange the supply of inputs like seeds & fertilizers, Educate farmers about modern agricultural practices, Principal link between Panchayat & Panchayat Samiti Keeps the Panchayat informed of development programs Updates the Samiti of the schemes & achievement of targets Accountable to the Sarpanch at Panchayat level & to the Block Development Officer & others at Samiti level. Source of Funds Taxes & duties (tax on animals, vehicles, houses, vacant lands & professions). Grants from government Funds allocated by Govt Voluntary grants by groups or individuals. Main functions of Panchayat are :- 1. Law and order- maintenance of peace & harmony 2. Welfare- famine & flood relief work, welfare programs for women, children, handicapped & weaker sections. 3. Administrative- fund collection, maintenance of records, budgets & accounts, registration of birth & death etc. 4. Commercial- supervision of community orchards, grazing grounds etc.  5. Developmental- preparation & execution of plans for the promotion of agriculture, irrigation, cooperatives, cottage & small scale industries.  Socio-Economic: The various socio-economic functions performed by Gram Panchayat are:  Construction and maintenance of playgrounds, libraries, guest houses, marriage halls, etc.  Development and promotion of small scale industries and co-operation among villagers.  Establishment and regulation of fair price shops, cooperative credit societies, cattle pound.  Planting of trees, parks, gardens and playgrounds for recreation.  Development of agriculture by providing improved seeds, keeping of model farms, promotion of co-operative farming, and protection of crops.  Development of medical and health care by setting up dispensaries and medical centers, preventing contagious diseases, taking care of expecting mothers and needy children in the village.  Judicial: In case of judicial functions, at some places the Panchayat itself acts as a court, whereas in other places, the Nyay Panchayat is a separate institution which administers justice. When performing such functions:  They deal with petty civil and criminal cases - theft, quarrels, trespassing and encroachment on public property.  They take up cases that involve money disputes not exceeding amounts up to Rs.500.  They are not entitled to award a sentence of imprisonment; however they can impose a fine of Rs.100 or Rs.200 (in some states).  Lawyers are not allowed to appear before these Panchayats.  No appeal can be filed against the Nyay Panchayats decision, if the powers are exercised within their jurisdiction.  Administrative: The administrative functions include the following:  All kinds of public welfare works - construction, repair and maintenance of roads, ponds, public wells, tracks, bridges, drains and tanks.  Upkeep of cremation and burial grounds.  Providing proper education.  Registration of births and deaths.  Helping the government maintain law and order.  Development of health and sanitation centers and dispensaries.  Arranging irrigation facilities, seeds and fertilizers.  Maintaining records of the village property, their sale and purchase and land grants PANCHAYAT SAMITI Middle tier of the PR system. Coterminous with Tehsil/Taluka Consists of 20-60 villages, depending on area & population Average population under Samiti is 80,000 but it ranges from 35,000 to 1, 00,000. MEMBERSHIP 1. Pradhan – Head of the Samiti 2. Up Pradhan 3. Sarpanch as ex-officio members 4. MLA of the area without the right to vote. 5. 20 members elected by & from the Panchas of all the areas. 6. Two women members 7. One SC member 8. One ST member 9. Two local persons possessing experience of public life & administration. 10. Representative for the working within the block jurisdiction 11. One representative, elected by & from members of each small municipality lying within the geographical unit of block 12. Members of the state & union legislature representing the area are to be taken as associate members. ROLE OF PRADHAN - The Pradhan is the official head of the entire Samiti. - Guides the Panchayat in making plans & carrying out production programs - He ensures the implementation of the decisions & resolutions of the Samiti & its standing committees. - He exercises control over the vikas adhikari(BDO) & his staff. - He is a member of the Zila Parishad by virtue of his office as Pradhan.  - He is the ex-officio chairman of the standing committees of the Samiti. BLOCK DEVELOPMENT OFFICER - Chief executive officer of the Samiti - Entrusted with the responsibilities of implementing the resolutions of the Samiti & its standing committees. - Prepare the budget of the Samiti & places before Samiti for approval. - Prepare annual report of the Samiti & send it to Zila Parishad - Accountable to the president of the Samiti for his actions. SOURCE OF FUNDS  land and water use taxes, professional taxes, liquor taxes and others  income-generating programmes  grants-in-aid and loans from the state government and the local Zila Parishad  voluntary contributions For many Panchayat Samiti, the main source of income is state aid. For others, the traditional taxing function provides the bulk of revenues. Tax revenues are often shared between the gram panchayats and the Panchayat Samiti. FUNCTIONS OF THE PANCHAYAT SAMITI 1. Agriculture- formulation of plans of development of agriculture, tree plantation & soil conservation. 2. Animal husbandry 3. Health & Sanitation 4. Education- running primary schools 5. Communication- construction & maintenance of inter-Panchayat roads etc. 6. Co-operation- promotion of cooperative societies 7. Development of Cottage & small scale industries 8. Miscellaneous work. ZILLA PARISHAD It is the apex body of PR system located at the district level. Also known as District Council in some states. MEMBERS Members of the Zila Parishad are elected from the district on the basis of adult franchise for a term of five years. Zila Parishad has minimum of 50 and maximum of 75 members. 1. Zila Pramukh/President 2. Vice president  3. Representatives of the Panchayat Samiti 4. All the members of the state legislature or parliament represent whole or part of the district. 5. District level officers of medical, public health, public works, engineering, agriculture, vetinary, education & other development departments. 6. Two women representatives 7. One SC member 8. One ST member 9. Chief Executive Officer (IAS Officer/state civil services) appointed by the state Govt, heads the administrative setup. 10. deputy chief executive officer from General Administration department at district level is ex-officio secretary of Zila Parishad 11. MPs, MLAs & MLCs of the area. 12. Representatives for cooperative societies, municipalities, banks etc. SOURCE OF FUNDS 1. Taxes on water, pilgrimage, markets, etc. 2. grant from the State Government in proportion with the land revenue 3. Money for works and schemes assigned to the Parishad. 4. It can collect some money from the panchayats with the approval of the government. 5. It gets a share from the income from local taxes. FUNCTIONS 1. Provide essential services and facilities to the rural population and the planning and execution of the development programmes for the district. 2. Supply improved seeds to farmers. Inform them of new techniques of training. Undertake construction of small-scale irrigation projects and percolation tanks. Maintain pastures and grazing lands. 3. Renders advice to the Govt at times with regard to the implementation of various development schemes. 4. Set up and run schools in villages. Execute programmes for adult literacy. Run libraries. 5. Start Primary Health Centers and hospitals in villages. Start vaccination drives against epidemics and family welfare campaigns. 6. Construct bridges and roads wherever needed 7. Execute plans for the development of the scheduled castes and tribes. Run ashramshalas for adivasi children. Set up free hostels for scheduled caste students. 8. Encourage entrepreneurs to start small-scale industries like cottage industries, handicraft, agriculture produce processing mills, dairy farms, etc. Implement rural employment schemes. 9. They even supply work for the poor and needy people.  LIMITATIONS OF PRI 1. Competitive elections have politicized the environment of villages. 2. Panchayat elections have given birth to cast politics (Casteism), communal politics (Communalism), & groupism in the villages. PANCHAYATI RAJ SYSTEM – AN OVERVIEW The Panchayati Raj system was initially set up by three states in 1959. After 1959, a network of PRIs went on being built up by most of the state governments. By 1964-65, the PRIs began to function in 12 out of the then 15 states in India. Among the six union territories, only one set up Panchayati Raj. The failure of the community development programmes in involving people with the development of the rural communities led to the establishment of Panchayati Raj on the recommendations of Balwant Rai Mehta Committee. The objects of the Panchayat Raj were democratization, decentralization and modernization. The panchayats were expected to tackle village problems at the grassroots level and mobilize local manpower resources for purposes of economic and social progress. In fact, Panchayati Raj in India has come into existence through a long process of evolution. Its expansion may be analyzed in five phases: from 1950 to 1960, from 1961 to 1964, from 1965 to 1985, from 1986 to 1992 and from 1993 to 1999. A provision was made in the Constitution of India promulgated in January 1950 about organizing village panchayats as local self-governing units. The First Five Year Plan also emphasized in 1951-52 promoting people’s participation in the management of rural development through local representative institutions. Balwant Rai Mehta Committee reviewing the CDPs also recommended in 1956 the establishment of PRIs to ensure continuity in the process of improving economic and social conditions in rural areas. The Planning Commission had already forcefully opined that village panchayats should be strengthened and this new democratic set-up should gradually be given the responsibility for taking over development administration. The B.R. Mehta Committee had this plea in view while recommending organization of three-tiered Panchayati Raj system. The Panchayati Raj system was initially set up by three states in 1959. After 1959, a network of PRIs went on being built up by most of the state governments. By 1964-65, the PRIs began to function in 12 out of the then 15 states in India. Among the six union territories, only one set up Panchayati Raj. The structure, however, differed in these states. During 1965-85, the Panchayati Raj began to stagnate and even declined in efficacy of its role in the management of development processes. Its credibility began to suffer a setback. Its powers and functions were reduced by the executive orders of the government on grounds of inefficiency, corruption and factionalism in many states. The Janata Party government in 1977 appointed Ashok Mehta Committee to inquire into the causes of decline in the working of Panchayati Raj and suggest measures to strengthen the PRIs. In 1978, this Committee made a number of recommendations for revitalization of PRIs. These included: assigning more powers to PRIs, making Zila Parishad primary unit in PR system, political parties taking part in Zila PR elections, and imparting training to Panchayat members. The Santhanam Committee was appointed to study the problems of resources and finances of PRIs. It recommended measures like: (i) Giving powers to panchayats to levy special taxes based on land revenue, house- tax, etc. (ii) Sanctioning of grants to panchayats by state governments. (iii) Handing over sources of revenue to PRIs, (iv) Evolving mutual financial relations between different levels of PRIs, (v) Augmenting financial resources through gifts and donations, and (vi) Setting up Panchayati Raj Financial Corporation to provide loans and financial assistance to panchayats and help them in providing basic amenities in villages. However, revival and renovation of panchayats came in 1985, when earlier in 1984, the then Prime Minister wrote to Chief Ministers to hold overdue elections to PRIs as well as to revitalize their functioning. Two Committees were also appointed in 1985 (G.V. K. Rao Committee) and in 1986 (L.M. Singhvi Committee). Main Problems Panchayats used to face before amendment-: (1) Functions and powers given to panchayats were limited. (2) Panchayats were ill-equipped in terms of manpower to undertake planning. (3) Panchayats had no power to generate their own resources through taxation, etc. (4) Elections were not held on regular basis. (5) Women and weaker sections had no representation. Thus, the high hopes with regard to the panchayats were not fulfilled. The main obstacles in the successful functioning of PRIs were described as: non-legalistic status of PRIs, irregular elections, frequent suppressions and suspensions, inadequate representation of weaker sections, insufficient powers given to panchayats, lack of financial resources, non- cooperation on the part of bureaucracy, lack of people’s participation and lack of political will. Identified five causes of failure of the Panchayati Raj confusion about functions, absence of autonomy, confusion in administrative arrangement, absence of coordination and fragmented and overlapping structure. Confusion about functions refers to non-delineation of functions between the three tiers. What functions are to be performed at each level is not clear. There is also variation of functions in different states. The role of planning assigned to Gram Sabha does not exist in reality because they do not have the required capacity of formulating objectives, identifying priorities, and formulating strategies. Ashok Mehta Working Group and Rao Committee had suggested Zila Parishad as appropriate forum for the planning function. The Gram Panchayats and the Panchayat Samiti can indicate their needs to the Zila Parishad. The 74th amendment has provided for the constitution of District Planning Committee for planning but the composition of this committee has been criticized. Absence of autonomy refers to lack of autonomy at district level as state and national plans have to be accommodated. Many schemes (like IRDP, ICDS, drinking water supply, etc.) are centrally funded and their targets and norms are more or less defined. How can district plan, therefore, be meaningful? In the hierarchical administrative system in our country, there is little scope for culture of decentralization. More than 95 per cent of Panchayat budgets are committed. In the absence of functional and financial autonomy, how can panchayats be expected to be free in working? Confusion in administrative arrangement refers to loyalty of the extension officers to their departments (agriculture, animal husbandry, cooperatives, etc.) and independent functioning as opposed to integration. Even the District Rural Development Agency (DRDA) which shared a major share of rural development budget was not within the Panchayat set-up; though now it has been brought under the purview of the Zila Parishad. Absence of coordination refers to fragmentation of the administrative structure at the district and the block levels. There is no coordination between various units. The VLW (now designated as Village Development Officer-VDO) is assigned varied functions. He has to cover a number of villages and a number of schemes. He has to collect taxes levied by the village panchayats, mobilize people’s participation in development programmes and undertake several activities for helping the poor. Fragmented and overlapping structure means that all development programmes have not been assigned to panchayats. Varied programmes, therefore, create confusion in the absence of clearly defined responsibilities. Analyzing the performance of the PRI in the early 1990s, it was decided by the central government to amend the Constitution and make panchayats more powerful and effective. Mahatma Gandhi often emphasized that India lives in village (more than 82.7% Indians used to reside in villages during independence period), and unless villages aren’t revitalized, the whole nation can’t make progress. These ideas & the article 40 of the constitution of India, which declared that ‘the state shall take steps to organize village Panchayats & to endow them with such powers & authority as may be necessary to enable them to function as the units of self- government’, paved the way for the introduction of Panchayati Raj- A scheme of democratic decentralization in India. The Present Panchayat System is the result of Failure of the Community Development Projects. CDPs- a kennel Programme of rural development launched in 1952 as an arm of five year plans. The two successive plans had failed to not only produce desired results but also generate real enthusiasm among the people. It was felt that the scheme of CDP failed because of the lack of proper governance. In context of this crisis of governance (inefficiency, corruption, lack of accountability, mounting disillusionment of the citizens towards Govt institutions), decentralization was widely accepted as a powerful means to instil confidence & revive trust of people in Govt programmes. Democratic Decentralization The word democracy is derived from Greek word “Demos” means ‘the people’ & “cracy” means ‘rule of’. Decentralization means devolution of central authority among local units close to the areas served. Where authority devolves by this process on people’s institution, it is democratic decentralization. The concept of democratic decentralization was not easily understood by people, therefore, the 3-tier administration was introduced in the name of Panchayati Raj. The state of Madras tried this as pilot project as early as 1957. In 1958 Andhra Pradesh had 20 such pilot projects. Based on these successes, Rajasthan became the pioneer to bring the whole state under democratic decentralization on October 2, 1959. In Gujarat in 1963, April 1. WHY PANCHAYATI RAJ? The ‘Gram Swaraj’ dream of Mahatma Gandhi & the ‘Power to People’ exhortation of Rajiv Gandhi are the essence of true democracy. Specific objectives- 1. Assistance to the economically weaker sections 2. Cohesion & cooperative self-help in the community 3. Development of cooperative institutions.  4. Development of local resources, including utilization of manpower. 5. Production in agriculture as the highest priority in planning. 6. Progressive dispersal of authority & initiative both vertically & horizontally with emphasis on role of voluntary organizations. 7. Promotion of Rural Industries. 8. Understanding & harmony between the peoples’ representative & people servants through comprehensive training/education. PHASES OF DEVELOPMENT/EVOLUTION OF PANCHAYAT India has a chequered history of Panchayati Raj starting from self-sufficient & self-governing village communities that survived the rise & fall of empires in the past to the modern institutions of governance at the third tier provided by constitutional support. POST INDEPENDENCE PERIOD Constitutional provision 1950- following independence, the first draft of India’s constitution did not include any provision for the Panchayats, even though Gandhiji had sought to make village Panchayats the very foundation of democracy in Independence of India. President of the constituent assembly, Dr. Rajendra Prasad drew attention of the law minister, Dr.B.R Ambedkar to this lacunin a letter dated 10 May 1948, initiating a discussion & debate, both outside & within the constituent assembly. This eventually led to the passage of an amendment proposed by the well-known Gandhian, Shri K. Santhanam, on 25 November 1948, including village Panchayats in part IV of the constitution containing non-mandatory directive principles of state policy. The amendment which was eventually numbered as Article 40 reads: “the state shall take steps to organize village Panchayats & endow them with such power & authority as may be necessary to enable them to function as unit of self-government”. Community Development Project 1952 & the Panchayats Community Development projects were inaugurated in 1952 & were modelled after the earlier experiments at Shantiniketan, Baroda & Nilokheri. However the dynamic driving force behind the movement, Minister S.K Dey was of the consistent view that CD Projects could not achieve their full potential in the absence of effective institutions for people’s participation. Balwant Rai Mehta Committee In 1957, a historic breakthrough in establishing Panchayati Raj was effected through the report of the Balwant Rai Committee, which recommended- public participation in community work should be organized through statutory representative bodies. It was of the view that without an agency at the village level that could represent the entire community, assume responsibility & provide the necessary leadership for implementing development programs, real progress in rural development could not come about at all. Subsequently, National Development Council (NDC) endorsed the basic principle of democratic decentralization enunciated in the Balwant Rai Mehta report laid on the states the duty of working out the structure suitable in each state. It was during this period that the term- Panchayati Raj gained currency as a process of governance organically linking the will of the people from the gram Sabha to the government. Jay Prakash Narayan Committee The Jayaprakash Narayan committee spoke of the contradictory positions developing within the government in respect of Panchayati Raj, pointing out that- after having accepted Panchayati Raj as the agency responsible for planning & execution of plans, there is no longer any valid reason for continuing individual allocations subject wise even to serve as guide. The ministry of community development was brought under the ministry of Food & Agriculture, & in 1971 the title community development was dropped & replaced by Rural Development. Ashok Mehta Committee By the early 70s, however, the panchayats had gone from a phase of early ascendency to one of decline & stagnation. The Ashok Mehta committee (formed in 1978) made for reaching recommendations to amend the situation & recommended that Panchayati Raj be included in the constitution. In keeping with the spirit of the Ashok Mehta Committee recommendations, some states including West Bengal, Karnataka & Andhra Pradesh- revisited their respective Panchayati systems, & undertook several new initiatives to endow local bodies with more powers which served as a prime inspiration & example for subsequent reforms. The west Bengal Panchayats Constitutional Amendment Bills Constitution 64th Amendment Bill: Prime Minister Rajiv Gandhi (1984-89) was driven by a vision to provide the people with a- representative, ministration as he emphasized in his address to the nation in January 1985 and also included the twenty point program of 1986. Rajiv Gandhi’s vision was that people must determine their own destiny as well as destiny of nation. To the people of India, let us ensure maximum democracy, maximum devolution, let us give power to people. A subcommittee of the consultative committee of parliament attached to the MoRD under the chairmanship shri Thungon recommended that Panchayat Raj bodies should be constitutionally recognized. By 1989, Prime Minister Rajiv Gandhi himself introduced the 64th constitutional amendment bill, saying- “our bill will ensure that Panchayati Raj has a democratic character similar to the lok Sabha & other state assemblies & constitutional protection for the functioning as representative institution of people. The constitutional ( 64th amendment) bill was followed by the constitutional (65th amendment) Bill in July 1989 that sought to endow upon local bodies- from town panchayats & municipalities to metropolitan councils- with powers similar to those that were sought to be devolved to the rural Panchayats. A particularly significant provision was for buckling the of the Rural Hinterland in every district to the neighboring urban centers through the mechanism of a district planning committee (DPC) jointly elected by, from & amongst the members of the panchayats at all three levels & the municipalities within the district. The DPCs so constituted were to be entrusted with the task of consolidating the plans prepared at lower levels into a draft district development plan which would then be forwarded to the state government. In September 1990, the national front government introduced the constitution (74th Amendment) Bill- a combined Bill on panchayats & municipalities- but before this was taken up for discussion, there was a change of government. Constitution 73rd Amendment Act The congress government under Prime Minister PV Narsimha Rao introduced the 72nd (Panchayats) & 73rd (Nagarpalika) Constitution Amendment Bills based substantially on the bills moved in the eighth Lok Sabha by Shri Rajiv Gandhi but also incorporating some of the changes sought by the National Front Government. These two bills were referred to a Joint Select Committee of the Parliament which effected some further changes but conforming considerably to the earlier 1989 initiative. The Lok Sabha & the Rajya Sabha passed both bills (72 & 73) in December 1992. By the time the parliament passed the two bills, their sequence changed to 73rd & 74th respectively. Following their ratification by more than half the state assemblies, as required under the constitution, the President of India gave his assent, the Acts came into force as the constitution (73rd Amendment) Act,1992 on 24th April 1993 & the Constitution (74th Amendment ) Act, 1992 on 1st June 1993. Tis added two new parts to the Constitution, namely Part IX titled- The Panchayats & Part IXA titled- The Municipalities.