Day 16 – Q. 5. Panchayati Raj Institutions (PRIs) were constitutionally mandated to usher in grassroots democracy. However, their functioning often resembles “grass without roots”. Critically examine the challenges faced by PRIs and suggest measures to strengthen their autonomy and capacity. (250 words, 15 marks)

Q. 5. Panchayati Raj Institutions (PRIs) were constitutionally mandated to usher in grassroots democracy. However, their functioning often resembles “grass without roots”. Critically examine the challenges faced by PRIs and suggest measures to strengthen their autonomy and capacity. (250 words, 15 marks)

Introduction 

The 73rd and 74th Amendments, following the L.M. Singhvi Committee, accorded constitutional  status to PRIs. Yet, without adequate transfer of powers, funds, and functionaries, PRIs remain  “grass without roots”, undermining grassroots democracy.  

Body

PRI: Constituted to Usher Grassroots Democracy 

1. Constitutionalisation of Local Bodies: Establishment of three-tier Panchayati Raj system  empowered by the Eleventh Schedule. Example: Mandatory Gram Panchayat, Panchayat Samiti and Zilla Parishad elections.
2. Democratic Deepening: Universal adult franchise and direct elections deepen participatory  democracy. Example: Regular gram sabhas foster public engagement and local accountability.
3. Inclusive Representation: Reservation for women, SCs/STs ensures social justice. Example: One-third reservation for women has facilitated their emergence as leaders.
4. Decentralised Planning and Development: PRIs plan and implement local development  priorities. Example: Gram sabha-based village development plans outline local needs.

Key Challenges Faced by Panchayati Raj Institutions 

1. Incomplete Functional Devolution: States have selectively withheld transfer of key  subjects. Example: The Ministry of Panchayati Raj’s Devolution Index shows major inter-state  disparities in actual devolution. 
2. Fiscal Dependence: Absence of independent revenue sources makes PRIs grant-dependent. Example: Sumit Bose Committee recommended greater fiscal autonomy by rationalising  CSSs to increase states’ and PRIs’ flexibility in spending. 
3. Human Resource Constraints: Lack of administrative and technical staff limits PRI capacity. Example: Punchhi Commission flagged the lack of support staff as a major barrier to PRI  efficiency.
4. Elite Capture and Politicisation: Local elites often dominate decision-making, marginalising  weaker sections. Prevalence of ‘Panchayat Pati’ Syndrome. Example: The 2nd ARC noted that political interference and local elite dominance erode  democratic decentralisation. 
5. Weak Gram Sabha Functioning: Gram Sabhas are often perfunctory, reducing grassroots  oversight. Example: The 2nd ARC highlighted the lack of awareness and poor mobilisation in Gram  Sabha meetings.

Measures to Strengthen PRIs 

4. Enforce 3Fs Devolution: Legislate clear transfer of Functions, Funds, Functionaries. Example: NCRWC and Punchhi commissions recommend strict activity mapping.
5. Fiscal Empowerment: Empower PRIs to raise local revenues; streamline finance  commission grants. Example: 15th FC’s untied grant framework enhances fiscal autonomy. 
6. Capacity Building and Training: Establish robust training via SIRDs and digital literacy  initiatives. Example: Use of e-GramSwaraj to train elected representatives in budgeting and planning. 
7. Strengthen Gram Sabhas: Empower Gram Sabhas as primary units of participatory  planning. Example: Tamil Nadu’s Gram Sabha Makkal Plan institutionalises bottom-up budget  formulation.
8. Administrative Accountability: Specify administrative hierarchies to reinforce elected PRIs. Example: Karnataka’s state law defines clear roles for BDOs and elected functionaries. 6. 

Conclusion

Article 40 and the Gandhian vision of Gram Swaraj demand empowered self-governance at the  grassroots. By strengthening PRIs through genuine devolution and local empowerment, we can  root the “grass without roots” into a thriving democratic ecosystem.