Model Answer
0 min readIntroduction
The Panchayati Raj Institutions (PRIs), envisioned by Mahatma Gandhi as units of self-governance at the grassroots level, were initially conceived as agencies for promoting rural development. However, the 73rd Constitutional Amendment Act, 1992, marked a paradigm shift, constitutionally recognizing PRIs and mandating regular elections. This, coupled with subsequent second-generation reforms focusing on devolution of powers and functions, has fundamentally altered the nature of PRIs. While retaining a developmental role, PRIs have increasingly transformed into political institutions, engaging in electoral politics, power dynamics, and representation, moving beyond mere implementation of centrally sponsored schemes.
The Initial Phase: PRIs as Developmental Agencies
Prior to the 73rd Amendment, PRIs existed in various forms across states, largely as instruments of state governments for implementing development programs. Their functions were primarily limited to executing schemes related to agriculture, rural infrastructure, and social welfare. They lacked constitutional recognition, financial autonomy, and regular elections, making them susceptible to political interference and lacking genuine democratic participation. The Community Development Programme (CDP) launched in 1952 and the Integrated Rural Development Programme (IRDP) in 1978 heavily relied on PRIs for implementation, but without empowering them significantly.
The 73rd Amendment and the First Generation Reforms
The 73rd Constitutional Amendment Act, 1992, provided constitutional status to PRIs, ensuring regular elections every five years, reservation of seats for Scheduled Castes, Scheduled Tribes, and women (at least one-third), and establishing State Finance Commissions to recommend principles governing the distribution of funds to PRIs. This was the ‘first generation’ of reforms, focusing on structural changes and ensuring representation. However, it stopped short of devolving substantial powers and functions to PRIs.
Second Generation Reforms: The Shift Towards Political Institutions
The ‘second generation’ reforms, initiated in the early 2000s, aimed at strengthening PRIs by devolving functions, funds, and functionaries. Key aspects included:
- Devolution of Functions: Transferring responsibility for 29 subjects listed in the Eleventh Schedule (e.g., agriculture, health, education, sanitation) to PRIs.
- Financial Devolution: Increasing the share of state taxes and grants to PRIs through State Finance Commissions.
- Functionaries: Transferring staff from state departments to PRIs to enhance their administrative capacity.
- Political Participation: Increased political awareness and participation due to regular elections and reservation policies.
These reforms led to PRIs becoming more involved in decision-making processes, budget allocation, and policy implementation. This increased engagement inevitably led to the emergence of political dynamics within PRIs, including factionalism, competition for resources, and the influence of local political leaders. The focus shifted from purely developmental activities to managing political interests and securing electoral victories.
Evidence of PRIs as Political Institutions
Several indicators demonstrate this transformation:
- Increased Electoral Competition: PRI elections have become highly competitive, with political parties increasingly involved in campaigning and supporting candidates.
- Rise of Local Political Leaders: PRIs have become a breeding ground for local political leaders, who use their positions to build a political base.
- Influence of Caste and Kinship Networks: Traditional social structures, such as caste and kinship networks, continue to play a significant role in PRI politics.
- Focus on Symbolic Politics: PRIs often prioritize symbolic gestures and populist measures to gain political support, sometimes at the expense of long-term developmental goals.
For example, in many states, the allocation of funds for infrastructure projects is often influenced by political considerations rather than objective needs assessment. Similarly, the selection of beneficiaries for social welfare schemes can be subject to political patronage.
Challenges and Nuances
While PRIs have become more political, it’s important to note that they still face significant challenges, including limited financial resources, inadequate administrative capacity, and lack of accountability. The extent of political influence varies across states and regions, depending on the strength of local political institutions and the level of state government support. The developmental role of PRIs has not been entirely eclipsed; they continue to play a crucial role in delivering essential services and promoting rural development.
Conclusion
In conclusion, the second-generation reforms have undeniably transformed Panchayati Raj Institutions from primarily developmental agencies into increasingly political institutions. While this shift has enhanced democratic participation and accountability, it has also introduced new challenges related to political interference, corruption, and the prioritization of short-term political gains over long-term developmental objectives. Strengthening PRIs requires a continued focus on capacity building, financial devolution, and ensuring transparency and accountability in their functioning, alongside fostering a political environment conducive to good governance at the grassroots level.
Answer Length
This is a comprehensive model answer for learning purposes and may exceed the word limit. In the exam, always adhere to the prescribed word count.