Introduction
- PRIs are rural local self-government institutions in India.
- Institutionalized by the 73rd Constitutional Amendment Act, 1992.
- Aim: Democratize governance at the grassroots level and empower rural development.
- PRI is a three-tier system: Gram Panchayat (village), Panchayat Samiti (block), Zila Parishad (district).
Historical Evolution
- Ancient Period: Rigveda, Mahabharata, Arthashastra mentioned self-governing village councils.
- Medieval Period: Village autonomy declined due to centralization under Delhi Sultanate and Mughals.
- British Era: Lord Mayo (1870) and Lord Ripon (1882) pushed for local governance reforms.
- Post-Independence: Article 40 (DPSP) recognized PRIs; major initiatives include:
- CDP (1952), NES (1953) – limited success due to weak participation.
- Balwant Rai Mehta Committee (1957) – proposed 3-tier structure.
- Ashok Mehta Committee (1977) – suggested 2-tier with Zila Parishad at apex.
- Other Committees: G.V.K. Rao (1985), L.M. Singhvi (1986), Sarkaria (1988).
73rd Constitutional Amendment Act, 1992
- Came into effect: 24th April 1993.
- Added Part IX (Art. 243–243O) and 11th Schedule (29 subjects).
- Key Features:
- Three-tier PRI structure (except in states <20 lakh pop.).
- Direct elections to all seats at every level.
- Reservation: 1/3rd for women, SCs/STs proportionate to population.
- 5-year tenure, fresh elections within 6 months if dissolved.
- Gram Sabha: democratic body of village voters.
- State Finance Commission (Art. 243I) and Election Commission (Art. 243K) established.
- Planning Functions: PRIs to prepare plans for social justice and economic development.
PESA Act, 1996
- Applies 73rd Amendment to Fifth Schedule Areas (tribal regions).
- Empowers Gram Sabhas to manage natural resources, approve development plans, etc.
Achievements of PRI System
- Decentralized governance with 3 million elected representatives.
- India has the highest number of elected women representatives.
- Enhanced local accountability and planning (e.g., investments in drinking water).
- 15th Finance Commission and SWAMITVA scheme show growing central support.
Challenges in PRI Functioning
- Incomplete Devolution: States reluctant to transfer 3Fs—functions, funds, functionaries.
- Inadequate Finance: Heavy dependence on state and central grants; low Own Source Revenue (OSR).
- Sarpanch Pati Culture: Women representatives lack real authority due to patriarchal interference.
- Infrastructure Deficit: Many Gram Panchayats lack basic facilities and internet connectivity.
- Human Resource Shortage: Inadequate trained staff like engineers, secretaries.
- Lack of Convergence: Disjointed implementation of schemes by different departments.
Recommendations & Reforms
- 2nd ARC (6th Report):
- Clear functional division across PRI tiers.
- Fiscal federalism with autonomy and accountability.
- Encourage outsourcing for efficient service delivery.
- Create audit committees for financial oversight.
- Need for capacity building, convergence, and digital infrastructure.
Way Forward
- Strengthen participatory governance and functional devolution.
- Ensure financial autonomy and empower local bodies to raise OSR.
- Promote inclusive governance with real empowerment of women and marginalized groups.
- Enhance coordination among departments, and digitalize PRIs to ensure transparency.