Q&A: G PALANITHURAI

Panchayati raj institutions need to be further empowered

A major power shift, similar to the one on August 15, 1947, took place on April 20, 1993 with the Constitution’s 73rd Amendment Act installing a panchayati raj system in the country. Like any well-meaning programme and proposal, this too got diluted in the implementation stage. The 73rd amendment is mutilated in many state Panchayat Raj Acts passed subsequently, as in Tamil Nadu. Except Kerala, West Bengal and Madhya Pradesh, most states have a Panchayat Act but the panchayati raj institutions are devoid of the spirit of the constitutional amendment.
Prime Minister Atal Bihari Vajpayee’s target of a hunger-free India by the 60th anniversary of Independence will be a mere fantasy unless rapid steps are taken to strengthen panchayat institutions, says G Palanithurai, Professor in the Rajiv Gandhi Chair for Panchayati Raj Studies in Gandhigram Rural Institute-Deemed University, Dindugal, Tamil Nadu. In an interview with Joseph Vackayil, Dr Palanithurai speaks about the system in its socio-economic and global context. Excerpts:

What were the historical and political imperatives for the 73rd amendment?
Nationhood is a western concept. Until the arrival of the British, the Indian sub-continent was community-centred and community-ruled. To use the words of Metcalf: “Indian villages were once little republics having nearly everything that they want within themselves and almost independent.” With the formation of states, many of the functions of the community were usurped by the State. The British initiated this. The native rulers continued on their footsteps.

However, even after four decades, the bureaucracy-led state machinery has not been able to deliver economic and social justice. The expansion of government departments has become a burden on society. Reduction in the expensive government structure is only possible through giving more responsibilities to people through institutions that are created legitimately.

Attempts were made in the 50s and the 70s to empower India’s panchayat system. But these failed as the local bodies never had real powers. The 73rd Amendment, spearheaded by Rajiv Gandhi, was made to empower people.

How do you place this in the global context?
The world over, even in the socialist bloc, three forces—State, market and society—were at loggerheads because of increased market-oriented economic activities and the resultant control over the power of the State and society. However, people resisted the tendency of the State to abdicate its responsibilities and began to participate vigorously in development and the decision-making process through local administration. This happened in the United States, Europe and even the Southeast Asia. Where the states failed to control the market’s influence, people’s institutions emerged as parallel set-ups. Panchayat institutions are an extension of this global movement in the tilt of power. The objectives vary from country to country depending on needs and conditions.

What are the features of the 73rd amendment?
Power to the people and rule by the people is the sum and substance of the new constitutional provision. This is brought about by some key provisions of the new law. These are: constitutional sanction for the creation of a three-tier government—the Centre, state and panchayat—establishment of a three-tier structure at the village, block, and district level, reservation of 33 per cent seats at all levels for women as also for members of the scheduled caste and tribes, provision of the 11th Schedule with 29 subjects for panchayati raj institutions to implement programmes, take decisions and setting up of state election commission to hold elections regularly with an interval of five years. The features also include setting up of state finance commissions to suggest ways and means to augment the resources of the panchayat institutions, organising a planning committee at the district level for micro-level planning, and reviving the gram sabha.

What is the substance of the new dispensation?
The whole exercise of development should be seen in the background of the aspirations of the people. This demands the participation of people. The local body has to take the lead in land reforms. They also have to get involved in the streamlining of local institutions and management of common resources.

What is the state governments’ role?
Power will reach the people only through the state governments. The states share responsibilities and finances with the three tiers of panchayat institutions. They should not be made mere implementing agencies but must be groomed as decision-making bodies with power and funds to implement the decisions. Public institutions like schools and health centres should be under the control of local bodies. It is the responsibility of the state governments to conduct panchayat elections regularly. The state has to set up state finance commissions and empower district planning councils and prepare its annual plans based on micro-level plans submitted by local bodies.

What do you mean by decentralised planning?
Centralised planning so far had been supply-driven. The shift is now to demand-driven planning. This begins at the village level. The village panchayat in the gram sabha finalises its plans and demands, the block- level panchayat prepares a wider plan incorporating these. This goes to the district panchayat. Similarly, the town panchayats, municipalities and corporations prepare their own plans. All these go the district planning council headed by the district panchayat chairman. The council finalises a plan for the entire district which is submitted to the state planning commission which submits the final to the Planning Commission for funds allocation. The funds being allocated to MPs and MLAs also have to be incorporated into total Plan.

Is any state living up to the spirit of this provision?
It can be said with certainty that Madhya Pradesh, West Bengal and Kerala have imbibed the spirit of the new system.