{"id":3505,"date":"2026-08-11T22:11:29","date_gmt":"2026-08-11T16:41:29","guid":{"rendered":"https:\/\/forumias.com\/psir\/notes\/panchayati-raj\/"},"modified":"2026-08-12T02:57:52","modified_gmt":"2026-08-11T21:27:52","slug":"panchayati-raj","status":"publish","type":"psir_note","link":"https:\/\/forumias.com\/psir\/notes\/panchayati-raj\/","title":{"rendered":"Panchayati Raj"},"content":{"rendered":"<div class=\"n-wrap\">\n<div class=\"n-shell\">\n<div class=\"n-crumb\"><a href=\"\/psir\/psir-notes\/\">PSIR Notes<\/a><span class=\"sep\">\u203a<\/span><a href=\"\/psir\/psir-notes\/#i-b\">I-B Indian Government and Politics<\/a><span class=\"sep\">\u203a<\/span><span>Panchayati Raj<\/span><\/div>\n<header class=\"n-head\">\n<div class=\"n-eyebrow\">Paper I \u00b7 Indian Government and Politics<\/div>\n<h1 class=\"n-title\">Panchayati Raj<\/h1>\n<div class=\"n-syl\"><b>Syllabus \u00b7 Paper I-B \u00b7 5<\/b> \u2014 Grassroots Democracy : <span class=\"cur\">Panchayati Raj<\/span> and Municipal Government; Significance of 73rd and 74th Amendments; Grassroot movements.<\/div>\n<\/header>\n<div class=\"n-grid\">\n  <main class=\"n-body\"><\/p>\n<h3 id=\"what-it-means-conceptual-foundations\">What It Means \u00b7 Conceptual Foundations<\/h3>\n<p><span class=\"n-term\">Local self-government<\/span> = governance by people at the local level through elected bodies \u2014 local responsibility for local affairs, self-management, mutual cooperation, and direct participation through <span class=\"n-term\">Gram Sabha<\/span> and <span class=\"n-term\">Ward Committees<\/span>, with decentralised planning and service delivery.<\/p>\n<p><span class=\"n-term\">Venkatarangaiya<\/span> and <span class=\"n-term\">Pattabhiram<\/span> \u2014 five features of local government:<\/p>\n<ul>\n<li>a local body<\/li>\n<li>local inhabitants electing and controlling that body<\/li>\n<li>autonomy from higher authorities within a limited sphere<\/li>\n<li>distinction between local and non-local services<\/li>\n<li>local taxation<\/li>\n<\/ul>\n<p><span class=\"n-term\">Core elements<\/span><\/p>\n<p>Self-governance \u00b7 Self-management \u00b7 Mutual cooperation \u00b7 Political equality \u00b7 Freedom \u00b7 Equity \u00b7 Accountability \u00b7 Local taxation \u00b7 Local planning<\/p>\n<p><span class=\"n-term\">Decentralisation<\/span> = shifting political, administrative and fiscal powers from higher tiers to lower tiers. <span class=\"n-term\">Abay Asfaw<\/span> \u2014 a complex, multi-dimensional concept (fiscal, political, administrative).<\/p>\n<p><span class=\"n-term\">Political-theory linkages \u2014 grassroots democracy is not only administrative reform<\/span><\/p>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Thinker<\/th>\n<th>Anchor for the village \/ Gram Sabha<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td><span class=\"n-sch\">Carole Pateman<\/span><\/td>\n<td>Democracy needs participation beyond elections; PRIs are training grounds for active citizenship<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Hannah Arendt \u00b7 Rousseau<\/span><\/td>\n<td>Public action as freedom fits Gram Sabha; General Will \u2192 collective deliberation in local assemblies<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">J\u00fcrgen Habermas<\/span><\/td>\n<td>Grassroots forums can embody public reason \u2014 only if Sabhas are inclusive and empowered<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Mahatma Gandhi<\/span><\/td>\n<td>Gram Swaraj = ethical, self-reliant, participatory life; Panchayats are the moral base of democracy<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">B. R. Ambedkar<\/span><\/td>\n<td>Village democracy can reproduce caste domination \u2192 rights-based, socially-equal foundation first<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Partha Chatterjee<\/span><\/td>\n<td>\u201cPolitical society\u201d \u2014 rights negotiated through informal networks, not only formal institutions<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Menon<\/span>, <span class=\"n-sch\">Young<\/span>, <span class=\"n-sch\">Fraser<\/span>, <span class=\"n-term\">Mill<\/span><\/td>\n<td>Feminist lens: women\u2019s entry challenges public\u2013private divide; reservation necessary but not sufficient<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<p><span class=\"n-lab\">Global context: Prabhat Datta<\/span> \u2014 many countries use legal frameworks for participatory decentralised governance (Canada, China, Philippines, Uganda, Honduras, Namibia, Tanzania, Nepal, Bolivia, Colombia). <span class=\"n-term\">Artatrana Gochhayat<\/span> stresses participation across caste, class, gender and community.<\/p>\n<h3 id=\"historical-evolution-ancient-colonial-constitutional\">Historical Evolution \u00b7 Ancient \u2192 Colonial \u2192 Constitutional<\/h3>\n<p><span class=\"n-term\">Ancient &amp; pre-colonial<\/span><\/p>\n<ul>\n<li><span class=\"n-term\">Janapadas<\/span> &amp; <span class=\"n-term\">Mahajanapadas<\/span> \u2014 forms of direct democracy<\/li>\n<li><span class=\"n-sch\">Kautilya<\/span>\u2019s Arthashastra \u2014 early local-governance insights<\/li>\n<li><span class=\"n-sch\">Aristotle<\/span> praised local administrative systems<\/li>\n<li>village assemblies managed local affairs<\/li>\n<li>Mughal period \u2014 villages enjoyed fair autonomy<\/li>\n<\/ul>\n<p><em>Not modern democratic bodies, but evidence of an old social base for local governance.<\/em><\/p>\n<p><span class=\"n-term\">Colonial<\/span><\/p>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Milestone<\/th>\n<th>Year \/ figure<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td>First Municipal Corporation, Madras<\/td>\n<td>1687<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-lab\">Lord Mayo<\/span> \u2014 supported local bodies<\/td>\n<td>for administrative convenience<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Lord Ripon<\/span>\u2019s Resolution \u2014 elected local bodies<\/td>\n<td>1882 \u00b7 the \u201cMagna Carta\u201d figure of local self-government<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<blockquote class=\"n-quote\">\n<p>\u201cto tap local resources and support the colonial administration\u201d<\/p>\n<p><cite>the colonial purpose<\/cite><\/p><\/blockquote>\n<p><span class=\"n-sch\">Arora<\/span> and <span class=\"n-term\">Goyal<\/span> \u2014 by the late 19th\u2013early 20th century rural and urban bodies were recognised, but stayed subordinate.<\/p>\n<p><span class=\"n-term\">Post-Independence \u2014 <span class=\"n-law\">Article 40<\/span><\/span><\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cThe state shall take steps to organize village panchayats and endow them with such powers and authority as may be necessary to enable them to function as units of self-government.\u201d<\/p>\n<p><cite>Article 40, Constitution of India<\/cite><\/p><\/blockquote>\n<p>A Directive Principle (Part IV), reflecting Gandhian Gram Swaraj. <span class=\"n-sch\">Granville Austin<\/span> \u2014 <span class=\"n-law\">Article 40<\/span> lacked mandatory force \u2192 half-hearted early implementation. The Community Development Programme &amp; National Extension Service failed to generate local participation; <span class=\"n-term\">Balwantrai G. Mehta<\/span> found the absence of people\u2019s participation as the core weakness.<\/p>\n<p><span class=\"n-term\">Three generations of Panchayati Raj \u2014 Prabhat Datta (enthusiasm \u2192 stagnation \u2192 constitutional revival).<\/span> <span class=\"n-term\">1950s\u201360s ENTHUSIASM<\/span> (B. Mehta 1957 \u00b7 3-tier \u00b7 Rajasthan 1959) \u2192 <span class=\"n-term\">1970s\u201380s STAGNATION<\/span> (Ashok Mehta 1977 \u00b7 64th CAB fails) \u2192 <span class=\"n-term\">1990s \u2192 REVIVAL<\/span> (73rd &amp; 74th CAA 1992 \u00b7 constitutional status)<\/p>\n<p><span class=\"n-term\">Major committees<\/span><\/p>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Committee<\/th>\n<th>Year<\/th>\n<th>Key recommendation<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td><span class=\"n-term\">Balwantrai G. Mehta<\/span><\/td>\n<td>1957<\/td>\n<td>Three-tier PR: Gram Panchayat \u00b7 Panchayat Samiti \u00b7 Zila Parishad; democratic decentralisation; social audit<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Ashok Mehta<\/span><\/td>\n<td>1977\u201378<\/td>\n<td>Two-tier (Mandal Panchayat + Zila Parishad); party-based polls; constitutional status<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">G. V. K. Rao<\/span><\/td>\n<td>1985<\/td>\n<td>PRIs as principal channel of rural development; District Development Agencies<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">L. M. Singhvi<\/span><\/td>\n<td>1986<\/td>\n<td>Constitutional recognition; Nyaya Panchayats; decentralised planning<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">P. K. Thungon<\/span><\/td>\n<td>1988<\/td>\n<td>More powers, resource mobilisation, financial base<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Narasimha Rao<\/span><\/td>\n<td>1989<\/td>\n<td>Direct elections to all seats; reservation for weaker sections<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Sarkaria \u00b7 Gadgil<\/span><\/td>\n<td>\u2014<\/td>\n<td>Strengthen grassroots democracy; constitutional &amp; institutional reform<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Cmte. on Status of Women<\/span><\/td>\n<td>1976<\/td>\n<td>All-women Panchayats (appeared briefly in some areas)<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<p><span class=\"n-term\">Generations<\/span> (<span class=\"n-sch\">Prabhat Datta<\/span>): 1st \u2014 1957 (elite capture, bureaucratic resistance); 2nd \u2014 1977 (64th CAB failed Rajya Sabha; <span class=\"n-term\">Indira Hirway<\/span> on the failed corruption\/empowerment attempt); 3rd \u2014 1992 (constitutional status; <span class=\"n-term\">Gayadhar Malik<\/span> \u2014 inclusive democracy, gender justice, all stakeholders). <span class=\"n-sch\">Jawaharlal Nehru<\/span> inaugurated Panchayati Raj on 2 October 1959 at Nagaur, Rajasthan.<\/p>\n<h3 id=\"gandhi-ambedkar-nehru-on-the-village\">Gandhi \u00b7 Ambedkar \u00b7 Nehru on the Village<\/h3>\n<p><span class=\"n-term\">Gandhi \u2014 Gram Swaraj<\/span><\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cIndia lives in her village. Independence must begin at the bottom, thus making every village a republic or Panchayati, enjoying full powers\u201d<\/p>\n<p><cite>Mahatma Gandhi<\/cite><\/p><\/blockquote>\n<ul>\n<li>every village a republic<\/li>\n<li>decentralised democracy<\/li>\n<li>self-sufficient local economy<\/li>\n<li>power beginning from below<\/li>\n<\/ul>\n<p><span class=\"n-term\">Ambedkar \u2014 social-justice critique<\/span><\/p>\n<blockquote class=\"n-quote\">\n<p>\u201ca sink of localism, a den of ignorance and communalism\u201d<\/p>\n<p><cite>B. R. Ambedkar (on the village)<\/cite><\/p><\/blockquote>\n<ul>\n<li>village society caste-ridden<\/li>\n<li>Dalits could be oppressed by dominant castes<\/li>\n<li>political democracy without social equality is incomplete<\/li>\n<\/ul>\n<blockquote class=\"n-quote\">\n<p>\u201cTrue democracy \u2026 [has] to be worked from below by the people of every village \u2026 centre of power now is in New Delhi, or in Calcutta, Bombay\u2026 I would have it distributed among the seven hundred thousand villages of India.\u201d<\/p>\n<p><cite>Mahatma Gandhi<\/cite><\/p><\/blockquote>\n<p><span class=\"n-lab\">Gayadhar Malik<\/span> \u2014 Ambedkar\u2019s warning stays relevant: dominant groups can capture Panchayat power and silence Dalits.<\/p>\n<p><span class=\"n-term\">Nehru \u2014 modernist development<\/span><\/p>\n<ul>\n<li>professional bureaucracy guides transformation<\/li>\n<li>rural masses need organised state support<\/li>\n<li>industrialisation &amp; planned development central<\/li>\n<li>PR accepted, but the state retained a strong role<\/li>\n<\/ul>\n<p>The Indian experiment fuses all three: <span class=\"n-term\">Gandhian localism<\/span> + <span class=\"n-term\">Ambedkarite social justice<\/span> + <span class=\"n-term\">Nehruvian development administration<\/span>.<\/p>\n<h3 id=\"gram-swaraj-local-economic-development\">Gram Swaraj &amp; Local Economic Development<\/h3>\n<p>Gram Swaraj is Gandhi\u2019s model of self-reliant village reconstruction \u2014 two dimensions: <span class=\"n-term\">individual Swaraj<\/span> and <span class=\"n-term\">political Swaraj<\/span>.<\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cAt the individual level, Swaraj is vitally connected with the capacity for dispassionate self-assessment, ceaseless self-purification and growing self-reliance\u201d<\/p>\n<p><cite>on individual Swaraj<\/cite><\/p><\/blockquote>\n<blockquote class=\"n-quote\">\n<p>\u201cself-governance in which every individual has self-rule and self-restraint through participation in decision-making\u2026 the role of the state machinery becomes less and power lies in the people\u2019s hand\u201d<\/p>\n<p><cite>on political Swaraj<\/cite><\/p><\/blockquote>\n<p><span class=\"n-term\">Core elements<\/span><\/p>\n<p>Supremacy of human being \u00b7 Equality \u00b7 Self-sufficiency \u00b7 Cooperation \u00b7 Decentralisation \u00b7 Nai Talim \u00b7 Full employment \u00b7 Swadeshi \u00b7 Trusteeship \u00b7 Ethical economics<\/p>\n<p><span class=\"n-term\">Local resources, agriculture &amp; village industries<\/span><\/p>\n<p><em>Village industries<\/em><\/p>\n<ul>\n<li>hand grinding<\/li>\n<li>soap making<\/li>\n<li>cattle farming<\/li>\n<li>compost manure<\/li>\n<li>oil pressing<\/li>\n<li>paper making<\/li>\n<li>dairying<\/li>\n<li>farming crafts<\/li>\n<\/ul>\n<p><em>The idea<\/em><\/p>\n<ul>\n<li>meet basic needs locally<\/li>\n<li>reduce rural\u2013urban migration<\/li>\n<li>labour-intensive works raise farm productivity<\/li>\n<li>cities depend on village raw material<\/li>\n<\/ul>\n<blockquote class=\"n-quote\">\n<p>\u201cGandhi spoke incessantly of the need for village industries in India while maintaining that India\u2019s survival and future were dependent on the state of the villages where most Indians reside\u201d<\/p>\n<p><cite>on village industries<\/cite><\/p><\/blockquote>\n<p><span class=\"n-lab\">Cooperation<\/span>: Gandhi founded the <span class=\"n-term\">All India Spinner Association<\/span> and <span class=\"n-term\">All India Village Industries Association<\/span>.<\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cthe secret of successful cooperative effort is that the members must be honest and know the great merit of cooperation and it must have a definite progressive goal\u201d<\/p>\n<p><cite>on cooperation<\/cite><\/p><\/blockquote>\n<p>Indian agriculture can give a \u201cfoundation for the growth in the industry\u201d. The <span class=\"n-term\">Kuthambakkam<\/span> model, nurtured by <span class=\"n-term\">R. Elango<\/span>:<\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cNetwork Economy among a few villages in the region, through which the local economy builds, sustains and nurtures itself, without dependence on the mainstream, global economy, although not completely divorcing itself from it either\u201d<\/p>\n<p><cite>Kuthambakkam model<\/cite><\/p><\/blockquote>\n<p><span class=\"n-term\">Assessment \u2014 Gandhi was not simply anti-machine<\/span><\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cHe welcomed every improvement in small machines which could provide employment to millions of artisans in the villages\u201d<\/p>\n<p><cite>on machinery<\/cite><\/p><\/blockquote>\n<p>His criticism targeted big industry that could not absorb mass unemployment \u2014 whose aim is \u201cprimarily to make money for the few owners, never the direct one of finding employment for the unemployed millions\u201d. Gram Swaraj seeks mass employment, not only mass production.<\/p>\n<div class=\"n-pyq\"><span class=\"n-pyq-chip\">UPSC 2022 \u00b7 15m<\/span><span class=\"n-pyq-q\">Panchayats with Gram Sabhas \u2192 identify locally available resources for agriculture &amp; industry (Gram Swaraj).<\/span><\/div>\n<h3 id=\"the-73rd-amendment-1992-part-ix\">The <span class=\"n-law\">73rd Amendment<\/span>, 1992 \u2014 Part IX<\/h3>\n<p>The 73rd CAA added <span class=\"n-term\">Part IX<\/span> (Panchayats), in force <span class=\"n-term\">24 April 1993<\/span>. It turned PRIs from statutory bodies into constitutionally-recognised institutions of self-government \u2014 <span class=\"n-term\"><span class=\"n-law\">Articles 243\u2013243<\/span>-O<\/span> + <span class=\"n-term\"><span class=\"n-law\">Eleventh Schedule<\/span><\/span> (29 subjects).<\/p>\n<p><span class=\"n-term\">Key articles<\/span><\/p>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Article<\/th>\n<th>Provision<\/th>\n<th>Article<\/th>\n<th>Provision<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td>243A<\/td>\n<td>Gram Sabha<\/td>\n<td>243D<\/td>\n<td>Reservation (SC\/ST, women, chairpersons)<\/td>\n<\/tr>\n<tr>\n<td>243B<\/td>\n<td>Three-tier Panchayat system<\/td>\n<td>243E<\/td>\n<td>Five-year term<\/td>\n<\/tr>\n<tr>\n<td>243C<\/td>\n<td>Composition &amp; direct elections<\/td>\n<td>243G<\/td>\n<td>Powers, authority &amp; responsibilities<\/td>\n<\/tr>\n<tr>\n<td>243K<\/td>\n<td>State Election Commission<\/td>\n<td>11th Sch.<\/td>\n<td>29 subjects (agriculture \u2192 PDS)<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<p><span class=\"n-term\">Constitutional architecture \u2014 three-tier rural &amp; categorised urban local government.<\/span> <em>RURAL \u2014 PRI (Part IX):<\/em> <span class=\"n-term\">Gram Sabha<\/span> (all adult voters \u00b7 direct democracy) \u2192 <span class=\"n-term\">Gram Panchayat<\/span> (village) \u2192 <span class=\"n-term\">Panchayat Samiti<\/span> (intermediate \/ block) \u2192 <span class=\"n-term\">Zila Parishad<\/span> (district). <em>URBAN \u2014 ULB (Part IX-A):<\/em> <span class=\"n-term\">Municipal Corporation<\/span> (larger urban area) \u00b7 <span class=\"n-term\">Municipal Council<\/span> (smaller urban area) \u00b7 <span class=\"n-term\">Nagar Panchayat<\/span> (transitional area) \u2014 + Ward Committees \u00b7 DPC (243ZD) \u00b7 MPC (243ZE).<\/p>\n<p><span class=\"n-term\">Compulsory vs voluntary \u2014 a national floor, real devolution left to states<\/span><\/p>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Compulsory (the \u201cskeleton\u201d)<\/th>\n<th>Voluntary (the \u201cflesh &amp; blood\u201d)<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td>three-tier structure; Gram Sabha<\/td>\n<td>actual transfer of functions<\/td>\n<\/tr>\n<tr>\n<td>regular 5-year elections; fixed tenure<\/td>\n<td>taxation powers; control over staff<\/td>\n<\/tr>\n<tr>\n<td>State Election Commission<\/td>\n<td>Gram Sabha authority; activity mapping<\/td>\n<\/tr>\n<tr>\n<td>reservation (SC\/ST\/women); State Finance Commission<\/td>\n<td>accountability codes; depth of planning power<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<blockquote class=\"n-quote\">\n<p>\u201cintroduces just a skeleton; flesh and blood have to be added to make it successful\u201d<\/p>\n<p><cite>on the Act<\/cite><\/p><\/blockquote>\n<blockquote class=\"n-quote\">\n<p>\u201cuntil and unless some issue becomes a matter of public discourse, governments will not respond\u201d<\/p>\n<p><cite>Amartya Sen<\/cite><\/p><\/blockquote>\n<p><span class=\"n-term\">Empowerment of marginalised sections<\/span><\/p>\n<blockquote class=\"n-quote\">\n<p>\u201ca tremendous widening of the democratic base of the country\u201d<\/p>\n<p><cite>George Mathew<\/cite><\/p><\/blockquote>\n<p><span class=\"n-term\"><span class=\"n-law\">Article 243D<\/span><\/span> reserves seats for SC\/ST in proportion to population, not less than one-third for women, and chairperson posts. <span class=\"n-term\">Raghabendra Chattopadhyay<\/span> and <span class=\"n-sch\">Esther Duflo<\/span> \u2014 villages headed by women \u201cinvest more in drinking-water infrastructure\u201d; SC heads invest more in public goods in SC hamlets.<\/p>\n<p><span class=\"n-term\">Criticism \u2014 a \u201chalf-baked cake\u201d<\/span><\/p>\n<ul>\n<li>real devolution left to states<\/li>\n<li>Gram Sabha powers unclear in state laws<\/li>\n<li>centrally-sponsored schemes bypass Panchayats<\/li>\n<li>functions transferred without funds\/staff<\/li>\n<li>dependence on grants<\/li>\n<li>bureaucratic dominance persists<\/li>\n<\/ul>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Scholar<\/th>\n<th>Assessment<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td><span class=\"n-sch\">George Mathew<\/span><\/td>\n<td>a compromised document \u2014 states resisted strong Panchayats<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">M. Govinda Rao<\/span><\/td>\n<td>presented as decentralisation, but actual devolution remained limited<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">James Manor<\/span><\/td>\n<td>uneven implementation \u2014 Kerala\/Maharashtra strong, Bihar\/UP weak<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">B. S. Baviskar<\/span><\/td>\n<td>incremental value \u2014 laid groundwork for local empowerment<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">E. Sridharan<\/span><\/td>\n<td>compulsory elections &amp; reservations created a basic democratic structure<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Niraja Gopal Jayal<\/span><\/td>\n<td>state flexibility can permit innovation (Kerala\u2019s participatory planning)<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<blockquote class=\"n-quote\">\n<p>\u201cthe objectives of democratic decentralisation are not only to bring governance closer to the people but also to make it more participatory, inclusive and accountable to the weaker sections of society\u2026\u201d<\/p>\n<p><cite>K. Krishna Murthy v Union of India<\/cite><\/p><\/blockquote>\n<blockquote class=\"n-quote\">\n<p>\u201cthis epoch-making Seventy-third Constitution Amendment \u2014 a turning point in the history of local self-governance with sweeping consequences in view of decentralisation, grass-root democracy, people\u2019s participation, gender equality and social justice\u201d<\/p>\n<p><cite>Bhanumati v State of Uttar Pradesh<\/cite><\/p><\/blockquote>\n<div class=\"n-pyq\"><span class=\"n-pyq-chip\">UPSC 2022 \u00b7 20m<\/span><span class=\"n-pyq-q\">Unique features of the 73rd CAA; will it achieve empowerment of marginalised sections?<\/span><\/div>\n<h3 id=\"gram-sabha-direct-democracy-at-the-base\">Gram Sabha \u2014 Direct Democracy at the Base<\/h3>\n<p><span class=\"n-lab\"><span class=\"n-law\">Article 243A<\/span><\/span> \u2014 the Gram Sabha consists of all persons on the electoral rolls of a village within a Gram Panchayat. It is the direct democratic base of PR \u2014 the \u201cheart and soul\u201d of decentralisation. Its actual powers vary by state law and local mobilisation.<\/p>\n<p><span class=\"n-lab\">Functions<\/span><\/p>\n<ul>\n<li>approve village development plans \/ GPDP<\/li>\n<li>conduct social audit of public works<\/li>\n<li>scrutinise muster rolls, bills, expenditure<\/li>\n<li>identify beneficiaries (poverty programmes)<\/li>\n<li>review Panchayat accounts<\/li>\n<li>discuss water, health, sanitation, roads, ration<\/li>\n<\/ul>\n<p><span class=\"n-term\">Collective wisdom<\/span><\/p>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Scholar<\/th>\n<th>Claim<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td><span class=\"n-sch\">B. S. Baviskar<\/span><\/td>\n<td>participatory democracy \u2014 voice for Dalits, women, Adivasis<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">M. P. Mathai<\/span><\/td>\n<td>links Gram Sabha with Gandhian self-governance &amp; bottom-up development<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Paromita Sanyal<\/span> &amp; <span class=\"n-term\">Vijayendra Rao<\/span><\/td>\n<td>one of the largest deliberative institutions in human history<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Ghazala Mansuri<\/span> &amp; <span class=\"n-term\">Vijayendra Rao<\/span><\/td>\n<td>villages that convene Gram Sabhas \u201cdo a better job of targeting the most disadvantaged\u201d<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<p><span class=\"n-term\">Working &amp; limitations \u2014 empirical record is uneven<\/span><\/p>\n<ul>\n<li><span class=\"n-lab\">PRIA<\/span>: meetings held, but quorum difficult<\/li>\n<li><span class=\"n-term\">M. Pal<\/span> &amp; <span class=\"n-sch\">Sudha Pai<\/span> (Haryana): more attendance, limited Sarpanch awareness<\/li>\n<li>agenda reduced to beneficiary lists \/ utilisation certificates<\/li>\n<li><span class=\"n-sch\">Ramesh Kumar Singh<\/span> (Bihar): low attendance, lukewarm participation<\/li>\n<li><span class=\"n-term\">Ghatak<\/span> (W. Bengal): landless attend; wealthy stay away (prestige)<\/li>\n<li>little discussion of common resources<\/li>\n<\/ul>\n<p><span class=\"n-sch\">Rajni Kothari<\/span> \u2014 without awareness, mobilisation and social transformation, the Gram Sabha may remain symbolic. <span class=\"n-sch\">Niraja Gopal Jayal<\/span> \u2014 limited devolution weakens both Gram Sabha and Gram Panchayat.<\/p>\n<p><span class=\"n-term\">Measures<\/span><\/p>\n<ul>\n<li>define Gram Sabha powers clearly<\/li>\n<li>binding social audit<\/li>\n<li>women-only preparatory meetings<\/li>\n<li>original jurisdiction (PESA-style)<\/li>\n<li>quorum with women\/marginalised<\/li>\n<li>video-record meetings; e-governance without exclusion<\/li>\n<\/ul>\n<div class=\"n-pyq\"><span class=\"n-pyq-chip\">UPSC 2024 \u00b7 15m<\/span><span class=\"n-pyq-q\">Gram Sabha \u2014 a forum that expresses the collective wisdom, aspirations and will of the people. Comment.<\/span><a class=\"n-pyq-a\" href=\"\/psir\/psir-pyq\/gram-sabha-in-the-panchayati-raj-system-is-a-forum-which-gives-upsc-psir-2024-2011\/\">Answer<\/a><\/div>\n<h3 id=\"pesa-1996-a-constitution-within-the-constitution\">PESA, 1996 \u2014 A \u201cConstitution within the Constitution\u201d<\/h3>\n<p>The 73rd CAA did not auto-apply to <span class=\"n-law\">Fifth Schedule<\/span> <span class=\"n-term\">Scheduled Areas<\/span>. PESA extends PR while respecting tribal customs and community control \u2014 based on the <span class=\"n-term\">Dilip Singh Bhuria Committee<\/span>.<\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cevery habitation-community must have a Gram Sabha that exercises command over natural resources, settles disputes, and manages its own institutions.\u201d<\/p>\n<p><cite>Dilip Singh Bhuria Committee<\/cite><\/p><\/blockquote>\n<blockquote class=\"n-quote\">\n<p>\u201cPESA is a unique legislation, often described as a Constitution within the Constitution, which attempts to bring together in a single frame two totally different worlds \u2014 the simple system of tribal communities governed by their respective customs and traditions, and the formal system of the State governed exclusively by laws.\u201d<\/p>\n<p><cite>on PESA<\/cite><\/p><\/blockquote>\n<p><span class=\"n-term\">Major provisions \u2014 the village &amp; Gram Sabha are central<\/span><\/p>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Section<\/th>\n<th>Provision<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td>4(a)<\/td>\n<td>State laws in consonance with customary law, social\/religious practice, traditional resource management<\/td>\n<\/tr>\n<tr>\n<td>4(b)<\/td>\n<td>Village = habitation \/ hamlet \/ group of hamlets (natural community, not just population)<\/td>\n<\/tr>\n<tr>\n<td>4(c)<\/td>\n<td>Every village shall have a Gram Sabha (persons on electoral rolls)<\/td>\n<\/tr>\n<tr>\n<td>4(d)<\/td>\n<td>Gram Sabha safeguards traditions, customs, cultural identity, community resources, customary dispute resolution<\/td>\n<\/tr>\n<tr>\n<td>4(e)<\/td>\n<td>Gram Sabha approves development plans; selects beneficiaries<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<p><span class=\"n-term\">Other powers:<\/span> ownership of minor forest produce; control over minor water bodies &amp; village markets; consultation in land acquisition\/resettlement; prevent &amp; restore land alienation; regulate money-lending &amp; intoxicants; approval in mining licences. PESA shifts authority from elected Gram Panchayat to the Gram Sabha in Scheduled Areas.<\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cGram Sabhas shall be competent to safeguard and preserve community resources\u201d<\/p>\n<p><cite>Samatha v Andhra Pradesh<\/cite><\/p><\/blockquote>\n<p><span class=\"n-term\">Implementation gaps<\/span><\/p>\n<blockquote class=\"n-quote\">\n<p>\u201ca decade and a half of PESA in the nine States has been dismal \u2014 hobbled by legal infirmity, bureaucratic apathy and political unwillingness.\u201d<\/p>\n<p><cite>UNDP review<\/cite><\/p><\/blockquote>\n<ul>\n<li>states did not frame proper PESA rules<\/li>\n<li>line\/forest departments override Sabha<\/li>\n<li>vague terms: minor water bodies \/ minor minerals<\/li>\n<li>power given to Gram Panchayat, not Gram Sabha<\/li>\n<li>governors not proactive<\/li>\n<li>low awareness; applies only to Scheduled Areas<\/li>\n<\/ul>\n<p><span class=\"n-term\">Field concerns:<\/span> Madhya Pradesh \u2014 agendas focus only on scheme beneficiaries; Odisha \u2014 forged Gram Sabha consent for land acquisition; Chhattisgarh \u2014 Premnagar (Surajpur) opposed an IFFCO-linked power plant, then GP converted to Nagar Panchayat (\u224827 conversions reported). <span class=\"n-term\">Virginius Xaxa Committee<\/span>:<\/p>\n<blockquote class=\"n-quote\">\n<p>\u201cthe proliferation of Nagar Palikas in Scheduled Areas is being done without the consent of Gram Sabhas\u201d<\/p>\n<p><cite>Virginius Xaxa Committee<\/cite><\/p><\/blockquote>\n<p><span class=\"n-lab\">Ajay Dandekar<\/span> \u2014 PESA does not clearly make Gram Sabha authority superior to line departments. <span class=\"n-term\">C. R. Bijoy<\/span> \u2014 an unfinished agenda. <span class=\"n-term\">Reforms:<\/span> 2nd ARC (awareness, accountability, land records, harmonisation with Land Acquisition \/ Mines &amp; Minerals \/ Forest Acts) and Xaxa (state-rule conformity, penalise forged consent, Parliament-made law before new Nagar Palikas in <span class=\"n-law\">Fifth Schedule<\/span> areas).<\/p>\n<div class=\"n-pyq\"><span class=\"n-pyq-chip\">UPSC 2018 \u00b7 20m<\/span><span class=\"n-pyq-q\">Examine the provisions of the Panchayat Extension to Scheduled Areas Act (PESA), 1996.<\/span><a class=\"n-pyq-a\" href=\"\/psir\/psir-pyq\/examine-the-provisions-of-panchayat-extension-services-act-pesa-upsc-psir-2013-2004\/\">Answer<\/a><\/div>\n<h3 id=\"scholarly-assessments-quick-recall\">Scholarly Assessments \u2014 Quick Recall<\/h3>\n<div class=\"n-tw\">\n<table>\n<thead>\n<tr>\n<th>Scholar \/ source<\/th>\n<th>One-line<\/th>\n<\/tr>\n<\/thead>\n<tbody>\n<tr>\n<td><span class=\"n-sch\">Rajni Kothari<\/span><\/td>\n<td>grassroots democracy vital for democratic federalism; caste\/class can capture it<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Christophe Jaffrelot<\/span><\/td>\n<td>reservation opened space, but \u201cdecentralisation of domination\u201d &amp; proxy representation<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Niraja Gopal Jayal<\/span><\/td>\n<td>decentralisation alone \u2260 democracy; design, capacity, coordination are essential<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Manoranjan Mohanty<\/span><\/td>\n<td>PRIs are sites of struggle \u2014 gender, caste, class<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Rajiv Bhargava<\/span><\/td>\n<td>PRIs can deepen democracy if properly empowered<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">George Mathew<\/span><\/td>\n<td>devolution of functions &amp; funds is essential for PRI effectiveness<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Sudipta Kaviraj<\/span><\/td>\n<td>state reluctance &amp; centralising tendencies weaken PRI autonomy<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">Pranab Bardhan<\/span><\/td>\n<td>local corruption reflects broader institutional weakness; reforms must accompany<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-sch\">M. A. Oommen<\/span><\/td>\n<td>fiscal poverty &amp; weak SFCs undermine Panchayats<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Mani Shankar Aiyar Committee<\/span><\/td>\n<td>\u201ca bad Panchayati Raj is worse than no Panchayati Raj\u201d<\/td>\n<\/tr>\n<tr>\n<td>Economic Survey 2017<\/td>\n<td>local self-government suffers from a \u201clow equilibrium trap\u201d<\/td>\n<\/tr>\n<tr>\n<td><span class=\"n-term\">Hanson<\/span> &amp; <span class=\"n-term\">Douglas<\/span>, <span class=\"n-sch\">Palmer<\/span>, <span class=\"n-term\">Thapar<\/span><\/td>\n<td>India\u2019s local self-government is a major democratic experiment<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<h3 id=\"reforms-way-forward\">Reforms &amp; Way Forward<\/h3>\n<p><span class=\"n-term\">For PRIs<\/span><\/p>\n<ul>\n<li>complete activity mapping; devolve 29 subjects<\/li>\n<li>ensure 3Fs; implement SFC reports<\/li>\n<li>dedicated local cadre; Panchayat Ombudsman<\/li>\n<li>reduce parallel schemes; bureaucracy accountable to local bodies<\/li>\n<\/ul>\n<p><span class=\"n-term\">For ULBs<\/span><\/p>\n<ul>\n<li>devolve 12th-Schedule functions; empower mayors<\/li>\n<li>reduce parastatal dominance; strengthen Ward Committees<\/li>\n<li>property-tax reform, bonds, user charges<\/li>\n<li>municipal ombudsman; stronger DPCs\/MPCs<\/li>\n<\/ul>\n<p><span class=\"n-term\">For Gram Sabha &amp; PESA<\/span><\/p>\n<ul>\n<li>clear powers; binding social audit<\/li>\n<li>quorum with women\/marginalised; video record<\/li>\n<li>penalties for forged consent; align PESA rules<\/li>\n<li>no village \u2192 municipality conversion without Parliament<\/li>\n<\/ul>\n<p><span class=\"n-term\">For women representatives<\/span><\/p>\n<ul>\n<li>training, digital literacy, election finance<\/li>\n<li>protection against violence; action on proxy rule<\/li>\n<li>SHG convergence; leadership mentoring<\/li>\n<li>longer reservation cycles; stronger Gram Sabha role<\/li>\n<\/ul>\n<p><span class=\"n-term\">Punchhi Commission<\/span> &amp; 2nd ARC support activity mapping based on subsidiarity. <span class=\"n-term\">Paradigm shift:<\/span> local self-government is not the lowest tier but the key to good governance, inclusive growth, social justice, and a response to regional alienation and Left-wing extremism (Sarkaria &amp; Punchhi). \u201cAtmanirbhar Bharat\u201d needs \u201cAtmanirbhar Panchayats\u201d.<\/p>\n<div class=\"n-next\"><span><\/span><a class=\"r\" href=\"\/psir\/notes\/municipal-government\/\"><em>Next<\/em><b>Municipal Government<\/b><\/a><\/div>\n<p><\/main><\/p>\n<aside class=\"n-rail\">\n<h4>On this page<\/h4>\n<p><a href=\"#what-it-means-conceptual-foundations\">What It Means \u00b7 Conceptual Foundations<\/a><a href=\"#historical-evolution-ancient-colonial-constitutional\">Historical Evolution \u00b7 Ancient \u2192 Colonial \u2192 Constitutional<\/a><a href=\"#gandhi-ambedkar-nehru-on-the-village\">Gandhi \u00b7 Ambedkar \u00b7 Nehru on the Village<\/a><a href=\"#gram-swaraj-local-economic-development\">Gram Swaraj &amp; Local Economic Development<\/a><a href=\"#the-73rd-amendment-1992-part-ix\">The 73rd Amendment, 1992 \u2014 Part IX<\/a><a href=\"#gram-sabha-direct-democracy-at-the-base\">Gram Sabha \u2014 Direct Democracy at the Base<\/a><a href=\"#pesa-1996-a-constitution-within-the-constitution\">PESA, 1996 \u2014 A \u201cConstitution within the Constitution\u201d<\/a><a href=\"#scholarly-assessments-quick-recall\">Scholarly Assessments \u2014 Quick Recall<\/a><a href=\"#reforms-way-forward\">Reforms &amp; Way Forward<\/a><\/aside>\n<\/div>\n<\/div>\n<\/div>\n","protected":false},"excerpt":{"rendered":"<p>Panchayati Raj for the UPSC PSIR optional \u2014 PSIR Notes \u203a I-B Indian Government and Politics \u203a Panchayati Raj Paper I \u00b7 Indian Government and Politics Panchayati Raj Syllabus \u00b7 Pape<\/p>\n","protected":false},"template":"","meta":{"jetpack_post_was_ever_published":false,"fx_note_key":"I-B.5.1","fx_note_sec":"I-B","fx_note_point":"5","fx_note_desc":"Panchayati Raj for the UPSC PSIR optional \u2014 PSIR Notes \u203a I-B Indian Government and Politics \u203a Panchayati Raj Paper I \u00b7 Indian Government and Politics Panchayati Raj Syllabus \u00b7 Pape","footnotes":""},"class_list":["post-3505","psir_note","type-psir_note","status-publish","hentry"],"jetpack_sharing_enabled":true,"_links":{"self":[{"href":"https:\/\/forumias.com\/psir\/wp-json\/wp\/v2\/psir_note\/3505","targetHints":{"allow":["GET"]}}],"collection":[{"href":"https:\/\/forumias.com\/psir\/wp-json\/wp\/v2\/psir_note"}],"about":[{"href":"https:\/\/forumias.com\/psir\/wp-json\/wp\/v2\/types\/psir_note"}],"version-history":[{"count":2,"href":"https:\/\/forumias.com\/psir\/wp-json\/wp\/v2\/psir_note\/3505\/revisions"}],"predecessor-version":[{"id":3840,"href":"https:\/\/forumias.com\/psir\/wp-json\/wp\/v2\/psir_note\/3505\/revisions\/3840"}],"wp:attachment":[{"href":"https:\/\/forumias.com\/psir\/wp-json\/wp\/v2\/media?parent=3505"}],"curies":[{"name":"wp","href":"https:\/\/api.w.org\/{rel}","templated":true}]}}