Going Round in Circles: The Vicious Cycle of Ineffective Panchayats

In August 2018, in response to a Parliamentary question¹ on deficiencies in the functioning of Panchayati Raj Institutions (PRIs) in India, the Minister of State for Panchayati Raj, Sh. Parshottam Rupala, responded that PRIs are grappling with inadequate devolution of powers, manpower constraints, inadequate/poor capacities of elected representatives and functionaries, lack of basic infrastructure and amenities in panchayat offices, social inequalities and lack of transparency.  He went on to add that in order to address these hurdles, the Ministry of Panchayati Raj has taken various measures, which include issuing guidelines/advisories to States from time to time on effective devolution, providing basic infrastructure/amenities, strengthening of Gram Sabhas, enhancing the presence and participation of women in Gram Sabha and Panchayat meetings, allocation of 10 per cent of Panchayat funds for women-centric activities and to curb cases of proxy attendance by relatives of elected women representatives (EWRs). Besides, assistance has also been provided to the States for capacity building of panchayats under relevant schemes.

The issues that were raised by the Minister are not new. In fact, PRIA’s experience in the field suggests that in the 26 years since the 73rd Constitutional Amendment was passed, these constraints have undermined the functioning of local self governance. The recommendations of the Fourteenth Finance Commission changed the funding pattern available to panchayats. Under the Commission’s recommendations, over Rs 2 lakh crores have been allocated to gram panchayats, amounting to an assistance of Rs. 488 per capita per annum at an aggregate level (2015-20). There was hope that with more direct resources, panchayats would be able to focus on developmental issues such as maternal and child health, poverty alleviation, welfare of weaker sections, etc. It is interesting to look at the funding pattern to panchayats since 2015 and fund allocation made under the Gram Panchayat Development Plans (GPDPs) and Fourteenth Finance Commission grants.

GPDP- Gram Panchayat Development Plan; FCC- Fourteenth Finance Commission

Source: PlanPlus Dash board, Various years, MoPR (http://www.planningonline.gov.in/ReportData.do?ReportMethod=getGpdpReport) Accessed on 23.09.18

It is evident from the data that even if panchayats have been entrusted with increased, direct resources and more power in terms of preparing GPDPs, allocation is still highly skewed towards infrastructure development activities such as building roads and toilets.  There is a declining trend in allocation of budgets to “soft” development issues. The steepest decline is seen in allocations to women and child development and poverty alleviation. No ready data is available on activities identified and fund allocation in women led gram panchayats. This is required to understand the effectiveness of women as leaders and agents of change.

Efforts by MoPR and civil society organisations have led to increased self-confidence and decision making ability among EWRs, resulting in better interaction between line departments and increased participation of women in Gram Sabhas in women-headed gram panchayats. ² Many states paved the way to strengthen participation of women as members of panchayats by reserving 50 per cent seats for women. ³ But the continued lower allocations to women and child development both in GPDPs and Fourteenth Finance Commission funds has a direct impact on addressing the specific developmental challenges of women and children in rural India.

India’s commitment to attain SDG targets demands we move away from this vicious cycle of increased allocations for infrastructure development, at the expense of human development. For this, we must enhance the effective functioning of EWRs in panchayats and the quality of women’s participation in gram sabhas and mahila sabhas. Otherwise, as citizens we will continue to hear the same answers on the deficient functioning of PRIs by our elected representatives in Parliament.

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