Decentralised Governancethrough

Panchayati Rajin Odisha

AMITA PATRA FACULTY,SIRD

Independence must begin at the bottom. Thus, every village will be a republic or

Panchayat having full powers. It follows,

therefore, that every village has to be self-

sustained and capable of managing its affairs….

….. We are unleashing or attempting to

unleash the greatest latent powers of the people by giving an

authority to Panchayati Raj.

Promote People’s Participation in Rural Development Promote People’s Participation in Rural Development programmes;programmes;

Provide Responsive Administration based on the concept of Provide Responsive Administration based on the concept of ‘Democratic Decentralization’;‘Democratic Decentralization’;

Act as a medium of Social and Political change;Act as a medium of Social and Political change; Facilitating direct, representative and participative Facilitating direct, representative and participative

democracy and Social Mobilization at local levels;democracy and Social Mobilization at local levels; Prepare Plans for Development and assist in their Prepare Plans for Development and assist in their

implementation.implementation. Representations for weaker sectionsRepresentations for weaker sections Gram Sabha / Palli Sabha – Direct DemocracyGram Sabha / Palli Sabha – Direct Democracy

Why Panchayati Raj….Why Panchayati Raj….

1950:Panchayatiraj Institutions were placed in the 1950:Panchayatiraj Institutions were placed in the Directive Principle of State policy, as Art-40.Directive Principle of State policy, as Art-40.

1953: The Balvantarai Meheta Committee was 1953: The Balvantarai Meheta Committee was constituted.constituted.

1957:recommended elected body of three tiers and 1957:recommended elected body of three tiers and devolution of power.devolution of power.

1959: Inauguration of first panchayat in the country at 1959: Inauguration of first panchayat in the country at NAGAWAR in Rajastan.NAGAWAR in Rajastan.

1963:K.Santhanam Committee was appointed to look 1963:K.Santhanam Committee was appointed to look solely at the issue of PRI finance.solely at the issue of PRI finance.

1977: Ashok Meheta Committee was constituted to 1977: Ashok Meheta Committee was constituted to suggest measures to strengthen PRIs.It recommended suggest measures to strengthen PRIs.It recommended two tier system and inclusion of SC/ST.two tier system and inclusion of SC/ST.

Evolution of panchayatiraj systemEvolution of panchayatiraj system

1985:G.V.K.Rao Committee was appointed .It 1985:G.V.K.Rao Committee was appointed .It recommended to assign the work of planning, recommended to assign the work of planning, implementation and monitoring of RD programme to PRIimplementation and monitoring of RD programme to PRI

1987:L.M.Singhvi Committee was formed It 1987:L.M.Singhvi Committee was formed It recommended for the strengthening of GRAM recommended for the strengthening of GRAM SABHA,GRAM PANCHAYAT and restructuring of village.SABHA,GRAM PANCHAYAT and restructuring of village.

1988:Parliament Sub Committee under the chairmanship 1988:Parliament Sub Committee under the chairmanship of P.K Thungun recommended for regular and timely of P.K Thungun recommended for regular and timely panchayat election.panchayat election.

1989:Proposal introduced to institutionalize the PRIs in 1989:Proposal introduced to institutionalize the PRIs in 64th constitutional Amendment bill.64th constitutional Amendment bill.

1992:The Panchayats have conferred with constitutional 1992:The Panchayats have conferred with constitutional status through 73status through 73rdrd constitution Amendment Act. constitution Amendment Act.

1993:The Act came in to force on April 241993:The Act came in to force on April 24 thth1993 .1993 . 1996:Panchayat Act (Extension to Schedule Area) was 1996:Panchayat Act (Extension to Schedule Area) was

came in to force.came in to force.

CONSTITUTION OF PANCHAYATCONSTITUTION OF PANCHAYAT: : Three tier structureThree tier structure

COMPOSITION OF PANCHAYAT: COMPOSITION OF PANCHAYAT: Direct election of all seats Direct election of all seats except the chair persons at district and block levelexcept the chair persons at district and block level

RESERVATION OF SEATS: RESERVATION OF SEATS: SC ,ST (in proportion to SC ,ST (in proportion to population) and women(33%)population) and women(33%)

CONSTITUTIONAL STATUS TO GRAM SABHA: CONSTITUTIONAL STATUS TO GRAM SABHA: Economic Economic development & Social justicedevelopment & Social justice

DURATION OF PANCHAYAT:DURATION OF PANCHAYAT:Term of 5 years, if dissolve Term of 5 years, if dissolve fresh election within 6 monthsfresh election within 6 months

DEVOLUTION OF POWER:DEVOLUTION OF POWER:29 subjects of eleventh schedule 29 subjects of eleventh schedule of Constitutionof Constitution

CONSTITUTION OF STATE FINANCE COMMISSION :CONSTITUTION OF STATE FINANCE COMMISSION :Every Every 5 years5 years

CONSTITUTION OF STATE ELECTION COMMISSION :CONSTITUTION OF STATE ELECTION COMMISSION :

Main features of the 73Main features of the 73rdrd Constitutional Constitutional Amendment ActAmendment Act

CONSTITUTION OF DISTRICT PLANNING COMMITTEE:CONSTITUTION OF DISTRICT PLANNING COMMITTEE:

There would be a District Panning Committee There would be a District Panning Committee at district level to consolidate the plans at district level to consolidate the plans prepare by the panchayats and municipalities prepare by the panchayats and municipalities to prepare development plan for the district to prepare development plan for the district as a wholeas a whole

7474THTH Constitutional Amendment Constitutional Amendment Act:1992Act:1992

Constitutional mandate – Constitutional mandate – PRIs to work for Economic PRIs to work for Economic Development & Social JusticeDevelopment & Social Justice

51972 Villages, 6234 GPs, 314 PSs, 30 ZPs with 51972 Villages, 6234 GPs, 314 PSs, 30 ZPs with 100862 Elected Representatives.100862 Elected Representatives.

22ndnd executive leader post in all 3-tier PRIs for women executive leader post in all 3-tier PRIs for women Election as per PESA in 2007 with PRIs at all levels Election as per PESA in 2007 with PRIs at all levels

headed by STs in 1941 GPs, 120 PSs & 13ZPsheaded by STs in 1941 GPs, 120 PSs & 13ZPs 21 subjects of 11 departments transferred to PRIs as per 21 subjects of 11 departments transferred to PRIs as per

7373rdrd Amendment Amendment

Orissa : PRIs at a GlanceOrissa : PRIs at a Glance

YearYear GPGP PSPS ZPZP

1961-621961-62 23502350 214214 1313

1966-671966-67 38263826 307307 1313

1983-841983-84 43914391 314314 --

1991-921991-92 52635263 314314 --

1997-981997-98 52635263 314314 3030

2002-032002-03 62346234 314314 3030

Growth of 3-tier PRIs : OrissaGrowth of 3-tier PRIs : Orissa

OGP Act OGP Act -- 19481948 CD ProgrammeCD Programme -- 19521952 NESNES -- 19531953 BRM Comm.BRM Comm. -- 19571957 3-tier PRIs3-tier PRIs -- 19591959

(OGP Act, 1959, OPS Act, 1959, OZP Act,1961)(OGP Act, 1959, OPS Act, 1959, OZP Act,1961)

Intro. of 3-tier PRIsIntro. of 3-tier PRIs -- 1961 – 671961 – 67 Dissolution of ZPDissolution of ZP -- 19671967 Cont.. of 2-tier PRIsCont.. of 2-tier PRIs -- till 1990till 1990 Intro. of 3-tier PRIsIntro. of 3-tier PRIs -- 19901990

(Resv. of Women)(Resv. of Women) Election to 3-tier PRIsElection to 3-tier PRIs -- 19971997

(73(73rdrd Const. Amendment & PESA) Const. Amendment & PESA)

Conduct of election as per PESAConduct of election as per PESA 20022002 Empowerment of PRIs …….,,,,,,,2002 and 2007 electionEmpowerment of PRIs …….,,,,,,,2002 and 2007 election

Journey of Panchayati Raj Journey of Panchayati Raj

Orissa GP Act – 1964Orissa GP Act – 1964 Orissa PS Act – 1959Orissa PS Act – 1959 Orissa ZP Act – 1991Orissa ZP Act – 1991

Amended – Spirit & Mandate of Amended – Spirit & Mandate of 7373rdrd Const. Amendment & Const. Amendment & PESA Act, 1996PESA Act, 1996

LEGAL FRAMEWORKLEGAL FRAMEWORK

ZPZP -- 854 854

PSPS -- 6227 6227

GPGP -- 9378693786

TotalTotal :: 1,00,8671,00,867

N.B. Women (33%) – 36,084N.B. Women (33%) – 36,084

Profile of PRI Elected Reps.Profile of PRI Elected Reps.

Creating a culture of Participatory development and Solution at Creating a culture of Participatory development and Solution at Community level through its programmes & structure… Community level through its programmes & structure…

Changing Rural lives……Poverty Alleviation programsChanging Rural lives……Poverty Alleviation programs MGNREGA-SGSY-IAY-BRGF-TRIPTIMGNREGA-SGSY-IAY-BRGF-TRIPTI Facilitating Basic servicesFacilitating Basic services FCA-KL Grants-GGY-MO-KUDIAFCA-KL Grants-GGY-MO-KUDIA Mainstreaming SHGs into Mission Shakti & assist in marketing Mainstreaming SHGs into Mission Shakti & assist in marketing

thro ORMASthro ORMAS Capacity Building of PRIs / PROs - SIRD Capacity Building of PRIs / PROs - SIRD Ensuring transparency through E-Governance and Social Audit Ensuring transparency through E-Governance and Social Audit

Bringing in Fiscal Discipline through PRIASOFT, PAMIS, Bringing in Fiscal Discipline through PRIASOFT, PAMIS, BETAN.BETAN.

Panchayati Raj..A Pro-Poor, Pro-PRI Panchayati Raj..A Pro-Poor, Pro-PRI Endeavour…… Endeavour……

Institutional Framework of DecentralizationInstitutional Framework of Decentralization

Palli SabhaPalli Sabha Gram SabhaGram Sabha Gram PanchayatGram Panchayat Panchayat SamitiPanchayat Samiti Standing CommitteesStanding Committees DRDADRDA District Planning CommitteeDistrict Planning Committee Zilla ParishadZilla Parishad Standing CommitteeStanding Committee State Finance CommissionState Finance Commission State Election CommissionState Election Commission

Decentralised Decision making & Planning Decentralised Decision making & Planning Structure for Pro-poor Development in OdishaStructure for Pro-poor Development in Odisha

Zilla Parishad

Panchayat Samiti

Gram Panchayat

Gram Sabha

Palli Sabha

Convergence Mode(Self Employment & Wage Employment Prog.)

Zilla Parishad

Panchayat Samiti

Gram Panchayat

Gram Sabha

Palli Sabha

Convergence Mode(Self Employment & Wage Employment Prog.)

Representative Democracy

Representative Democracy

Participative Democracy

Participative Democracy

General DevolutionGeneral Devolution

Officials “accountable”Officials “accountable”

Place plan & Scheme for approvalPlace plan & Scheme for approval

Can ‘visit’ officesCan ‘visit’ offices

Call for report and ensure their Call for report and ensure their presence in the meetingspresence in the meetings

Write about to HoD/Govt.Write about to HoD/Govt.

Casual Leave to head of officeCasual Leave to head of office

Executive officersExecutive officers Collector : ZPCollector : ZP BDO : PSBDO : PS EO : GPEO : GP (VLW/VAW) (VLW/VAW)

FunctionFunction• Gram Panchayats, Panchayat Samities and Zilla

Parishads given statutory powers under the respective Acts and Rules.

• Gram Sabha and Palli Sabha given statutory recognition.

• Gram Sabha given statutory powers for selections of beneficiaries under Poverty Alleviation schemes.

• To approve plans, programmes and projects before implementation by the Gram Panchayats.

• Gram Sabha empowered in Scheduled areas to enforce prohibition, control over money lending, have ownership of minor forest produce and prevent alienation of land belonging to Scheduled Tribes.

• Government transferred ownership of 67 items of Minor Forest Produce to the Control of Gram Panchayats.

• Social audit made statutory. Gram sabha to approve expenditure and submission of U.C.

Function Function ...... Cont....... Cont.

• Gram Panchayat empowered to maintain assets, remove nuisance, regulate public utility, impose taxes and provide public distribution & other services.

• Panchayat Samiti empowered to deal in P.D.S, look after social security measures, provide assistance to weaker sections, implement programmes relating to poverty alleviation, primary education, primary health, co-operation and calamity relief.

Function Function ...... Cont....... Cont.

• Zilla Parishad - Out of 29 subjects required to be

transferred to PRIs as per the 11th schedule of

the constitution, 19 subjects transferred to the

control of Zilla Parishad. However concerned Deptt.

have the option to place fund with Zilla Parishad to

implement their programme or to get the

programme implemented through their district level

officers with the approval of Zilla Parishad.

Function Function ...... Cont....... Cont.

FunctionariesFunctionaries

• Gram Panchayat – Executive Officer

One Secretary

One peon.

Programme Manpower support

• Panchayat Samiti – Block Development Officer

Junior Engineers

Extension Officers

VLWs

Clerical Staff and Programme based manpower

•Zilla Parishad

• Chief Executive-cum-Collector

• Project Director-cum-Executive Officer

• Addl. P.D-cum-Executive Engineer and programme-based manpower

• DRDA Office to act as Secretariat of Zilla Parishad

Functionaries Functionaries ....Cont.....Cont.

FundsFunds

1. MGNREGS

2. BRGF, RGSY

3. IAY / Mo-Kudia

4. SGSY

5. GGY

6. FCA

7. Grant-in-aid

8. Own income

Fund is provided to PRIs mainly out of following sources, namely :

Chief Executive OfficerChief Executive Officer

- DM & Collector continue to be the Chief Executive Officer of the Zilla Parishad.

- Project Director, DRDA and other district level officers shall continue to function as Executive Officer and Additional Executive Officer

- Block Development Officer for Panchayat Samiti.

- Village Level Workers (VLW) and Village Agriculture

- Workers (VAW) have been appointed as Executive Officer of the Grama Panchayat. • Executive Officer shall perform the functions and duties

as per job chart prescribed by govt. from time to time.

• Sarapanch shall sanction Casual Leave of Executive Officer of Gram Panchayat.

AccountabilityAccountability The district level, Block level and Grama Panchayat level functionaries of The district level, Block level and Grama Panchayat level functionaries of

different departments of Government the subjects of which have been different departments of Government the subjects of which have been transferred to PRIs transferred to PRIs will attend the meetingswill attend the meetings of PRIS of PRIS

Remain Remain accountableaccountable to respective level of PRI though they shall continue to respective level of PRI though they shall continue as employees of their respective department.as employees of their respective department.

They shall They shall place plans and schemesplace plans and schemes for discussion and approval in the for discussion and approval in the meeting of respective level of PRI.meeting of respective level of PRI.

The President, Zilla Parishad, Chairman, Panchayat Samiti and The President, Zilla Parishad, Chairman, Panchayat Samiti and Sarapanch, Grama Panchayat are vested with Sarapanch, Grama Panchayat are vested with authority to supervise the authority to supervise the work and function of Govt. functionaries at respective level, calling work and function of Govt. functionaries at respective level, calling for information and report from time to timefor information and report from time to time. They can submit proposal . They can submit proposal to the appropriate level about indiscipline, irregularity and other to the appropriate level about indiscipline, irregularity and other shortcomings of the District Level Officers.shortcomings of the District Level Officers.

Submit suggestions/ recommendations on improvement of Submit suggestions/ recommendations on improvement of function of these functionaries through appropriate level of PRIs function of these functionaries through appropriate level of PRIs as well as District Level officers.as well as District Level officers.

The Project Director, DRDA as the Executive Officer of Zilla The Project Director, DRDA as the Executive Officer of Zilla Parishad, will Parishad, will call for the reportcall for the report and and will placewill place such report such report before the President, Zilla Parishad before the President, Zilla Parishad

President of Zilla Parishad can President of Zilla Parishad can submit report to the Head of submit report to the Head of DepartmentDepartment as well as to Government. as well as to Government.

Such proposals emanating from Zilla Parishad shall be given Such proposals emanating from Zilla Parishad shall be given due due considerationconsideration and decision taken thereon shall be and decision taken thereon shall be communicated to other PRIs.communicated to other PRIs.

Accountability ....cont.Accountability ....cont.

People’s EmpowermentPeople’s Empowermentthrough PRIs in Sch. Areas : through PRIs in Sch. Areas :

Approval of Plans, Programmes, Approval of Plans, Programmes, Project selection, Selection of Project selection, Selection of beneficiaries & issue of UCsbeneficiaries & issue of UCs

Marketing & Ownership of MFP Marketing & Ownership of MFP Enforcement of Prohibition & Enforcement of Prohibition &

Sale of Intoxicant Sale of Intoxicant Regulation of Money Lending Regulation of Money Lending Transfer of Tribal LandTransfer of Tribal Land Control of Village Markets Control of Village Markets Management of Water bodies Management of Water bodies Minor MineralsMinor Minerals

Women Empowerment - PRIsWomen Empowerment - PRIs

Pre-73Pre-73rdrd CAA Scenario – Mandatory Provision CAA Scenario – Mandatory Provision

of Reservation of Women leader at GP, PS & of Reservation of Women leader at GP, PS &

ZP at the level of Naib Sarapanch, Vice-ZP at the level of Naib Sarapanch, Vice-

Chairman & Vice President respectively.Chairman & Vice President respectively.

Women Participation Women Participation

1/101/10thth : Palli Sabha - Desirable : Palli Sabha - Desirable

1/31/3rdrd : Gram Sabha – Mandatory : Gram Sabha – Mandatory

Decentralised PlanningDecentralised Planning

District Planning Committee – formed in all District Planning Committee – formed in all

districts districts

PRIs leaders participation – ensuredPRIs leaders participation – ensured

Consolidation & Integration of Plans of Consolidation & Integration of Plans of

different line departments, ULBs & PRIs different line departments, ULBs & PRIs

Provision of Supervisory role - PRIsProvision of Supervisory role - PRIs

3030

StrengthStrength

Constitutional Status

Constitutional Status for stability and continuity

Timely Election

Demand from below

Representations for weaker sections

Gram Sabha – Direct Democracy

CSOs/ Environment demanding decentralization

Framework for 4 “Fs”

Functions, Functionaries, Funds, Freedom (Autonomy)

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WeaknessesWeaknesses

Lack of political will of political parties for decentralisationLack of political will of political parties for decentralisation

Lack of public awareness and vigilanceLack of public awareness and vigilance

Lack of orientation of officials for working with LGsLack of orientation of officials for working with LGs

Elite capture in highly unequal societiesElite capture in highly unequal societies

Bias against womenBias against women

Bureaucracy has not learnt to work with the local governmentBureaucracy has not learnt to work with the local government

Downward accountability mechanism not yet developedDownward accountability mechanism not yet developed

Decision-making not yet broad-basedDecision-making not yet broad-based

Rules & procedures not adequately framedRules & procedures not adequately framed

3232

OpportunitiesOpportunities

People’s participation providing good People’s participation providing good governance at grassroots levelgovernance at grassroots level Involvement of people in development planningInvolvement of people in development planning Gender budgetingGender budgeting Resource mobilization (cash, kind or labour) for Resource mobilization (cash, kind or labour) for

local developmentlocal development Increasing participation in decision-makingIncreasing participation in decision-making The State and Administration nearer to peopleThe State and Administration nearer to people Democracy extended to grassrootsDemocracy extended to grassroots

Poverty eradicationPoverty eradication

3333

ThreatsThreats

Disparities of caste, class, gender etc.Disparities of caste, class, gender etc. Resistance of political class at the state and Resistance of political class at the state and

national level to share powernational level to share power Resistance from the rural elites and Resistance from the rural elites and

dominating class to share power with dominating class to share power with disadvantaged groupsdisadvantaged groups

Clientalism and PatronageClientalism and Patronage

3434

Four ChallengesFour Challenges

Power sharing among Politicians

Inconsistency in implementing

directions by officialdom

Landlords and Feudal Elements

Contractors

THANKS FOR YOUR Kind AttentionTHANKS FOR YOUR Kind Attention

“There is a silent revolution that is taking place in our countryside – silent only because the media and urban political opinion are not giving adequate attention to it. It is the harbinger of new hope for the eradication of rural poverty and the promotion of rural prosperity.”

Dr. Manmohan Singh, Prime Minister of IndiaNovember 22, 2006