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Strengthening Panchayati Raj
Institutions
Broad Framework
State Institute of Rural Development(SIRD)
G.S. Road, Khanapara
Guwahati 781022
March 2011
2
This Hand Book is prepared for use in training
programmes under various subjects on Panchayat Raj
3
By
A. M. M. Zakir
Head- Training and Research
SIRD, Assam
Under the Guidance of
Sri K. Kalita
Director & Executive Head, SIRD, Assam
April 2011
4
Contents
Chapter Chapter Chapter Chapter
No.No.No.No.
Chapter Name PPPPPPPPaaaaaaaaggggggggeeeeeeee
NNNNNNNNuuuuuuuummmmmmmmbbbbbbbbeeeeeeeerrrrrrrrssssssss
1
Salient Features of Constitution 73rd
Amendment regarding Panchayati Raj System
01-04
2
Strengthening Panchayati Raj Institutions –
Broad Framework
05-12
3
People’s Participation in Development
13-19
4
Gram Sabha
20-32
5 Panchayati Raj in Assam 33-42
6 Panchayati Raj System in Assam- The New
Phase
43-50
7 PPaanncchhaayyaattii RRaajj FFiinnaanncceess 51-64
5
FOREWORDFOREWORDFOREWORDFOREWORD
Assam has entered into a new phase of establishing strong and effective
Panchayati raj system in the state. Activity mapping was prepared and notified
vide Notification No. PDA 336/2001/Pt – III/32 dated 25th June 2007 for
devolution of functions, functionaries and funds to Zilla Parisads, Anchalik
Panchayat and Gaon Panchayat. Activity mapping has been prepared
meticulously for 23 subjects demarcating responsibilities of each tier of
Panchayats. Panchayati Raj Institutions are now in the position to know about
their specific responsibilities. Development of a sector have a sequence with
responsibilities distributed among different tires at different levels. Every
sector has got different functions. Each function has got various activities
which can be conveniently and realistically discharged at the appropriate level.
In the above context it has became necessary to organize a series of
training programmes on Panchayati Raj for officials, elected representatives of
Panchayat and other stakeholders. This book has been prepared for the
participants of training programmes on Panchayati Raj
6
CHAPTER CHAPTER CHAPTER CHAPTER –––– 1111
Salient Features of the Constitution 73Salient Features of the Constitution 73Salient Features of the Constitution 73Salient Features of the Constitution 73rdrdrdrd Amendment regarding Amendment regarding Amendment regarding Amendment regarding
Panchayat Raj System Panchayat Raj System Panchayat Raj System Panchayat Raj System
Three tier Structure Three tier Structure Three tier Structure Three tier Structure –––– Gram Panchayat, Intermediate Panchayat and Zilla Gram Panchayat, Intermediate Panchayat and Zilla Gram Panchayat, Intermediate Panchayat and Zilla Gram Panchayat, Intermediate Panchayat and Zilla
ParishadParishadParishadParishad ::::
o A three-tier structure provides uniformity in structure.
o Panchayats at the village level, intermediate level and district level.
o Two tier of panchayats in population not exceeding 20 lakhs,
Gram Sabha :Gram Sabha :Gram Sabha :Gram Sabha :
o A Gram Sabha constituted in each village.
o Exercising powers and functions as per state Act.
o It consists registered voters.
Composition of Panchayats :Composition of Panchayats :Composition of Panchayats :Composition of Panchayats :
o Direct election of a panchayat at three tiers.
o Chairpersons of the Gram Panchayats are the Ex-officio members at the
intermediate level .
o Chairpersons of the Gram Panchayats at the intermediate level are the
Ex-officio members in the Panchayats at the district level.
o Association of MPs and MLAs :
o All the members have the right to vote in the meetings.
7
o The Chairpersons at the intermediate and district levels elected
indirectly by elected members.
o Direct election of the Chairpersons at the village level.
Reservation of Seats:Reservation of Seats:Reservation of Seats:Reservation of Seats:
o Reservation for the SCs and STs at the three levels.
o The seats to be filled by direct election.
o One-third of the seats are reserved for SC or ST women.
o Not less than one-third membership has been reserved for women.
o Direct election in every panchayat and by rotation.
o Not less than one-third of offices of Chairpersons reserved for women by
rotation.
o The offices of Chairpersons shall also be reserved for SCs and ST.
Tenure of PTenure of PTenure of PTenure of Panchayats :anchayats :anchayats :anchayats :
o A term of five years has been provided for every panchayats.
o It is dissolved earlier on specific grounds and in accordance with the
state Act.
o Panchayat shall be completed before the expiry of its duration or before
the expiration of a period of six months from the date of dissolution in
the normal course.
Powers to impose taxes to the Panchayats :Powers to impose taxes to the Panchayats :Powers to impose taxes to the Panchayats :Powers to impose taxes to the Panchayats :
o Empowered to authorize the panchayats to levy, collect and appropriate
suitable local taxes.
8
o Making grants-in-aid to the panchayats from the consolidated fund of
the state.
o Panchayat discharge its functions smoothly with adequate finance at
their disposal.
Audit of Accounts :Audit of Accounts :Audit of Accounts :Audit of Accounts :
o The state Legislatures have been authorised to make provisions in
respect of the maintenance of accounts by the Panchayati Raj bodies and
the auditing of their accounts.
State Finance Commission :State Finance Commission :State Finance Commission :State Finance Commission :
o State Finance Commission constituted at the State level.
o Review the financial position once in every five years.
o To recommend to the state the pattern of distribution of funds between
the state and the Panchayati Raj bodies.
State Election Commission :State Election Commission :State Election Commission :State Election Commission :
o Elections to the panchayats conducted regularly under the overall
supervision of the State Election Commission.
o The Election Commission headed by a State Election Commissioner,
who shall be appointed by the Governor.
Exemption of certain areas:Exemption of certain areas:Exemption of certain areas:Exemption of certain areas:
o Constitution Amendment Act have uniform application in the country.
9
o The following areas have been exempted from the operation of the Act
because of the socio-cultural and administrative considerations:
� Scheduled areas listed under the V Schedule in the states of
Andhra Pradesh, Bihar, Gujarat, Himachal Pradesh, Madhya
Pradesh, Maharashtra, Orissa and Rajasthan.
� The states of Nagaland, Meghalaya and Mizoram.
� The hill areas of district of Darjeeling in the state of West Bengal
for which Darjeeling Gorkha Hill Council exists.
o In conformity with provisions in the Constitution Amendment Act, an
Act called the Provisions of Panchayats (Extension to the Scheduled
Areas) Act, 1996 passed by the Government of India.
o Organization and functioning of Panchayats in the Scheduled Areas is
different to that of Panchayats in the non- scheduled areas.
Functions :Functions :Functions :Functions :
o The Eleventh Scheduled of the Constitution places as many as 29
functions within the purview of the Panchayati Raj bodies.
10
CHAPTER –2
Strengthening Panchayati Raj Institutions----Broad FrameworkBroad FrameworkBroad FrameworkBroad Framework
o Peoples are no more subject of sovereign powers, but the right bearing
citizens.
o Government / authority have to be remain accountable to the citizens.
o Administration will have to take into account this fundamental change.
o Panchayats are government at their own level and must be allowed to
function as government.
o Article 243 G expresses the intension that while framing laws for
panchayat, the state legislatures should endow this institution with such
power and authority as may be necessary to enable function as local self
governance.
o Panchayat should have an autonomous jurisdiction of their own.
o As there are governments at multiple levels, government at each level
will enjoy only partial autonomy.
o How much autonomous jurisdiction can be curbed out to the panchayats
is a matter of judgment, autonomy cannot be too small to make
panchayats (Local self governing institute) meaningless.
o There are spheres of action where state government and the panchayats
can act as equal partner.
o There are some agency works.
11
o Agency works should not overshadow or diminish the distinctive
character of panchayats as government at their level.
o Granting autonomous jurisdiction to panchayat implies devolution type
of decentralization as oppose to mere administrative de-concentration.
o The state governments will share the power and authority with
institutions of local government.
o Each state would become a federation of federations.
o Role of local government remain confined to delivery of civic services.
o Article 243 G mandates that panchayat at all levels developed plans for
economic development social justice.
o Macro level plans remain incomplete or non responsive to the urgent
need of the people unless they are bit upon the plans prepared at micro
level through participatory approaches.
o Panchayats have become partners of higher level governance for
achieving national goals and socio economic sector.
o XIth schedule of Constitution covers a broad spectrum of developmental
activities – both social and economic sector.
o Panchayats are primarily governments at their own level and
secondarily agencies of state government.
o Panchayati Raj Institutions being governments at their own level, are an
integral part of country’s governance system.
o Objectives of these pancyayats are to democratize the local
administration to make it
- Participatory.
- Responsive.
12
- Accountable.
- Need based.
- Efficient.
- Prompt service delivery
o Installation of empowered, participatory, responsible and accountable
local government to meet the demand and democratic aspiration of the
people.
o •Exclusive functional area is yet to be curbed out for panchayats.
o A separate functional domain for panchayats should be created with
adequate fund and personals to discharge them.
o In order to make devolution functions are broken into activities for
meaningful devolution to different levels of governance.
o There should be an exclusively functional jurisdiction of action for each
level of panchayats.
o Any activity within this functional jurisdiction is presently perform by
any line department should cease to perform the activity after
devolution or part of it.
o There may be functional jurisdiction where state government and
panchayats would work as equal partners.
o There may be functional jurisdiction where panchayat institutions
would act as agencies for the government.
o Among these three jurisdictions, first two should predominant and
agency function should not be allowed to overshadow the other two
jurisdictions.
13
o Decentralization means sharing of activities between government at
different levels.
o Devolution within the framework of cooperative federalism means
transfer of individual activities of a subject between state and local
government and within the local government between GP, AP and ZP.
o The purpose of activity mapping is creation of the sphere of independent
action for the panchayat.
o Criteria to determine the activities to be devolved to each tier of
panchayat are as follows:
- Economies of state.
- Managerial and technical capacity.
- Size of the individual unit of an activity
-Informing needs of designing, implementation and monitoring.
-Role of community participation.
o Pattern of devolution vary from state to state, but should be some core
activity for the panchayat system in all states. They are as follows:They are as follows:They are as follows:They are as follows:
- Elementary education, adult and non formal education.
- Primary health care, drinking water and sanitation.
- Women and child development.
- Roads, culverts, bridges.
- Rural infrastructure that may rural electrification for improving
economic activities in productive sectors.
- Natural resource management.
- Livelihood for the poor ; (a) implementation of the poverty alleviation
schemes and (b) targeted public distribution system.
14
- Civic amenities.
o Activities so devolved will be exclusive responsibility of panchayats.
o Line departments of the state government will provide guidance and
support.
o In this sphere of core activities panchayats will perform independently
or as a partner of government but with sufficient autonomy in taking
decisions.
o Delivery of services in many sectors are presently being managed by line
department.
o Management of these service delivery centres should be handed over to
panchayats.
o Planning is a mandatory task of all the panchayats.
o Panchayat plan is in nature a holistic plan covering and integrating
multiple sectors.
o Any sectoral plan should be a sub plan of the panchayat plan.
o A methodology of participatory planning should be evolved and
institutionalized.
o A vision document for the district by the District Planning Committee
in consultation The vision documents will analyse the progress of the
district in different sectors identified backwardness and indicate
interventions for addressing them.
o If panchayats are considered as integral part of government system it is
quite legitimate to devolve some regulatory functions also.
o Committees formed by line departments for different sectoral
programmes should be replaced by Standing Committees of Panchayats.
15
o Grants to panchayats should be untied so that panchayats can decide
their own priorities.
o Planning Commission while giving approval to the state plan must
verify whether panchayat plans have been incorporated.
o Funds allocated to panchayats should go directly to them.
o State government and sectoral departments may periodically evaluate
and monitor the implementation to ensure the objectives are fully
achieved.
o Service provider responsible for physical delivery of benefits are not
fully accountable to PRIs.
o Parallel structure functioning independently for various line
departments should be brought under respective tier of PRIs
o In order to make GP economically viable and administrative effective as
an unit of government a minimum size should be fixed.
o The factors that will have to be taken in to consideration for
determining the minimum size of the GP may be as follows:
- Potentiality of local resource generation.
- Sustainability of maintaining essential staff.
- Suitability as unit of planning.
16
- Geographical cohesiveness.
- Terrain conditions and communication facilities.
- Minimum period of rotation for the reserve seats should not be
less than 10 years.
o Following traditions matters of supervision and control of PRIs should
be reviewed and recast as they do not conform to the concept of
democratic decentralization.
-Powers of sanction of budget.
-Powers of suspension and cancellation of resolution or
orders.
-Powers of suspension of removal of Chairperson, Vice
Chairperson and Members.
-Powers of suspension and suppression of PRIs.
-Services of special tribunals and ombudsmen’s should be
availed.
o In designing the components of accountability of the PRIs, it is
necessary to focus on the following.
–Integrity in the use of resources and preventing rent-seeking
tendencies of public officials / representatives.
–Adherence to the rule of law in conducting public affairs.
–Exercise of administrative powers of officials and political
executives in fair manner.
–Responsiveness of the PRIs to the urgent needs of people.
17
–Performance of the PRIs in terms of efficiency and effectiveness.
o System of upward accountability in panchayats is institutionalized, that
of downward is yet to take roots.
o Tools to accountability of PRIs.
o Statutory audit of accounts.
o Use of sanction from deviation of norms.
o A set of transparency guarantee in Panchayat Act.
o Introduction of citizen charter.
o Empowerment of Gram Sabhas and introduction of social audit.
o Performance review by independent and trained authorities.
o Publishing performance indicators of efficiency and effectiveness.
18
CHAPTERCHAPTERCHAPTERCHAPTER---- 3333
PeopPeopPeopPeople’s Participation in Developmentle’s Participation in Developmentle’s Participation in Developmentle’s Participation in Development
Meaningful participation of the people is the vital requirement in
strengthening the Panchayati Raj Institutions. Gram Sabha is the corner stone
of strengthening Panchayati Raj Institutions. People’s active participation in
Gram Sabhas make development process sustainable. Rural people and other
stakeholders of Panchayati Raj System should be sensitized on the following
aspects of participation.
Meaning of Participation:Meaning of Participation:Meaning of Participation:Meaning of Participation:
♦ Full involvement in all levels.
♦ Framing/ Developing Programme
♦ Implementation of Programme
♦ Evaluation of Programme
♦ Empowerment of Powerless marginalized
♦ Control over process
♦ Active Involvement
♦ Organizing themselves
♦ Collective decision
♦ Collective Action
♦ Negotiate own benefits
19
♦ Harnessing physical / economic/ social resources of individuals
♦ Involvement in sharing of benefits/ demand share.
♦ Control over resources and decision-making process.
♦ Taking a part in /or part of.
♦ Empowered relationships
♦ Taking responsibility for one’s own actions
♦ Voluntary contributions to programme
♦ Critical consciousness and action to transform life and condition
♦ Question status –quo without fear.
♦ Protest against development designers
♦ Control over institutions.
Obstacles to Participation:Obstacles to Participation:Obstacles to Participation:Obstacles to Participation:
The Obstacles to participation may be structural and need special attention
while some others can be eliminated with committed effort.
♦ Absence of Confidence and ability of people alienation
♦ Culture, customs, traditions
♦ Unequal domination of power relations.
♦ Unequal distribution of Wealth.
♦ Assumptions of project concept/ design.
♦ Inefficient beneficiary selection
♦ Inaccessible services.
♦ Resource Diversion and delay.
♦ Rigid bureaucratic set-up.
20
♦ Administrative control over development Management , resource
allocation and information.
♦ Legal hurdles
♦ Social structural inequalities.
♦ Inadequate understanding of local abilities: Professional attitude
underestimates people’s knowledge and ability.
♦ Local politics
♦ Absence of belongingness
♦ Dependence mentality.
♦ Inadequate understanding of participation among the project staff.
Process for effective participation in field based projects:Process for effective participation in field based projects:Process for effective participation in field based projects:Process for effective participation in field based projects:
� Participation in Development Projects (PIDP) is enhanced
through effective local organization.
� Concretely planned mechanisms in project can improve local
organization participation.
� Positive history of participation in the community improves
PIDP.
� Shared understanding of operational meaning of participation
improves PIDP
� Deliberate and planned preparation of project staff improves
PIDP.
� Effective PIDP improves goal accomplishment of projects.
� Effective PIDP enhances capacity of local organization.
21
� Effective PIDP enhances capacity of project staff /organization.
� Project characteristics affect PIDP.
� Effective PIDP results in sustainability.
What is People’s Participation:What is People’s Participation:What is People’s Participation:What is People’s Participation:
� Involving people in the development activities from idea rising to
planning , implementation, monitoring and evaluation.
� Involving disadvantaged people in the total programme cycle.
Why People’s Participation is needed ?Why People’s Participation is needed ?Why People’s Participation is needed ?Why People’s Participation is needed ?
� People must realize, feel and own the programme.
� To solve challenges of common interest to all in the community.
� To achieve sustainable development of the people , by the people and for
the people.
� To identify felt needs.
� To involve people in the process of development.
� To Solve problems concerning the majority.
� To mobilize local resource and
� To build confidence among people.
How to mobilize People’s Participation ?How to mobilize People’s Participation ?How to mobilize People’s Participation ?How to mobilize People’s Participation ?
o Information dissemination, awareness, rapport building
o People making their own decisions.
o Working in a homogenous group
o Addressing the common needs.
22
o Fulfillment of present situation and felt need of the people.
o Becoming good listener
o Organizing small groups
o Identifying informal local leaders and arrangement for training.
o Building capacity through skill training
o Planning and implementation with the people.
o Project based on local resources
o Realistic programming and
o Active women involvement.
Difficulties in Participation:Difficulties in Participation:Difficulties in Participation:Difficulties in Participation:
� Dependency only on leaders, NGO workers and donors.
� Involving in local politics.
� Ignorance about the people and their culture
� Incorrect organizing on felt needs.
� Heterogenous group formation.
� Lack of encouragement and opportunities.
� Absence of right person for right job.
� Poverty, social and cultural barriers.
� Working without confidence building.
� Domination by the rich and bureaucrats.
Overcoming Difficulties:Overcoming Difficulties:Overcoming Difficulties:Overcoming Difficulties:
� Proper analysis of the people and the community.
� Rapport building with each and every community and their leadership.
23
� Goodwill to all community members.
� Unbiased facilitators.
� Involvement of formal and non-formal leaders.
� Proper understanding of group dynamics .
� Form homogenous groups.
� Find and analyse root causes of the community problems.
� Let people should analyse and take decision
� The organization should be only a facilitator.
� Motivate , cultivate and train local leaders and
� Equal opportunity to the women.
Techniques for ensuring active participation of people:Techniques for ensuring active participation of people:Techniques for ensuring active participation of people:Techniques for ensuring active participation of people:
� A close relationship from each family and community by day to day
contact.
� Informal sharing of development concerns and problems.
� Proving useful to the community with sound knowledge of
development.
� Understanding skill and knowledge.
� Building rapport with the community
� Demonstration of concerns for the peopl’s cause without bias of any
kind to any member in the community.
� Dialogue with village formal leaders , local officials, teachers, respected
leaders in different communities and caste group.
� Initiating development process with such activities qhich can show
quick results and established credibility.
24
� Group formation according to the different occupations and common
interest and working with them.
� Repeating the cycle of programme planning , implementation and
monitoring.
� Listening to everybody and then making decision.
Formation of people –based and community based organization and working
with them.
25
CCCCCCCCHHHHHHHHAAAAAAAAPPPPPPPPTTTTTTTTEEEEEEEERRRRRRRR –––––––– 44444444
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RRRRRRRRoooooooolllllllleeeeeeee ooooooooffffffff GGGGGGGGrrrrrrrraaaaaaaammmmmmmm SSSSSSSSaaaaaaaabbbbbbbbhhhhhhhhaaaaaaaa ::::::::
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ssttaattuuttoorryy iimmppeerraattiivvee ffoorr tthhee eessttaabblliisshhmmeenntt ooff lleeggaallllyy eemmppoowweerreedd ggrraamm
SSaabbhhaass..
oo AAss ppeerr AArrttiiccllee 224433 ((bb)) ooff tthhee CCoonnssttiittuuttiioonn ((7733rrdd AAmmeennddmmeenntt)) AAcctt,, tthhee
GGrraamm SSaabbhhaa mmeeaannss aa bbooddyy ccoommpprriissiinngg aallll ppeerrssoonnss rreeggiisstteerreedd iinn tthhee
eelleeccttoorraall rroollllss ooff aa vviillllaaggee ffaalllliinngg wwiitthhiinn tthhee jjuurriissddiiccttiioonn ooff aa vviillllaaggee
PPaanncchhaayyaattss..
FFFFFFFFaaaaaaaaiiiiiiiitttttttthhhhhhhh –––––––– CCoonnddiittiioonnss ooff tthhee ppoooorr ccaann iimmpprroovvee oonnllyy iiff tthhee ppoooorr aarree ddiirreeccttllyy
iinnvvoollvveedd iinn tthhee pprroocceessss ooff ffoorrmmuullaattiioonn aanndd iimmpplleemmeennttaattiioonn ooff ddeecciissiioonnss
aaffffeeccttiinngg tthheeiirr lliivveess..
AAAAAAAAssssssssssssssssuuuuuuuummmmmmmmppppppppttttttttiiiiiiiioooooooonnnnnnnnssssssss --------
aa.. AAnn oorrggaanniicc ccoommmmuunniittyy ssttiillll eexxiissttss –– iitt ccaann aacctt rreessppoonnssiibbllllyy aass aa ccoommmmuunniittyy..
bb.. RReelliiaabbllee vveehhiiccllee ooff GGGGGGGGoooooooooooooooodddddddd GGGGGGGGoooooooovvvvvvvveeeeeeeerrrrrrrrnnnnnnnnaaaaaaaannnnnnnncccccccceeeeeeee........
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ooff ddiissaaddvvaannttaaggeedd ggrroouuppss aarree rreessppoonnddeedd ttoo iinn ddeecciissiioonn--mmaakkiinngg..
26
�� PPrroobbiittyy iimmppllyyiinngg ggrreeaatteerr iinntteeggrriittyy..
�� AAccccoouunnttaabbiilliittyy mmeeaanniinngg tthhaatt ppeeooppllee wwoouulldd bbee eemmppoowweerreedd ttoo
qquueessttiioonn tthhee lleeggaalliittyy,, jjuussttiiccee aanndd aapppprroopprriiaatteenneessss ooff ddeecciissiioonn--
mmaakkiinngg;; aanndd
�� RReessppoonnssiibbiilliittyy iimmppllyyiinngg aabbiilliittyy ttoo ttaakkee ddeecciissiioonnss wwhhiicchh mmaayy bbee
lleessss ppooppuulliisstt bbuutt aarree iinn tthhee lloonngg tteerrmm iinntteerreesstt ooff tthhee ccoommmmuunniittyy
((ssuucchh aass wwiitthh rreeggaarrdd ttoo tthhee ssuussttaaiinnaabbllee uussee ooff nnaattuurraall rreessoouurrcceess))..
cc.. GGrraamm SSaabbhhaa ccoouulldd eennssuurree ddeemmooccrraaccyy wwiitthh ccoommmmuunniittyy ppaarrttiicciippaattiioonn,,
ccoonnttrrooll aass wweellll aass ttrraannssppaarreennccyy..
CCCCCCCCeeeeeeeennnnnnnnttttttttrrrrrrrraaaaaaaallllllll RRRRRRRRoooooooolllllllleeeeeeee --------
Not only to deliberate but also to participate in planning and implementing
various programmes.
FunctionsFunctionsFunctionsFunctions :
oo WWaattcchh –– ddoogg vviiggiillaannccee ccoommmmiitttteeeess..
oo EExxaammiinnee aannnnuuaall ssttaatteemmeennttss ooff aaccccoouunnttss aanndd aauuddiitt..
oo EEnnffoorrcciinngg ttrraannssppaarreennccyy aanndd aaccccoouunnttaabbiilliittyy..
oo SSccrruuttiinnyy ooff wwoorrkkss..
oo CCoonnffiirrmmiinngg tthhee eelliiggiibbiilliittyy ooff bbeenneeffiicciiaarriieess..
oo KKnnoowwiinngg llooggiicc ooff eeaacchh aanndd eevveerryy ddeecciissiioonn..
oo GGeenneerraall ppoowweerrss –– ttoo aapppprroovvee ppllaannss,, sseelleecctt sscchheemmeess,, bbeenneeffiicciiaarriieess aanndd
llooccaattiioonnss..
oo PPoowweerr ttoo iiddeennttiiffyy aanndd rreeccoommmmeenndd aarreeaass ffoorr aaddddiittiioonnaall ttaaxxaattiioonn aanndd
rreevveennuuee ggeenneerraattiioonn..
27
oo MMaannaaggeemmeenntt ooff nnaattuurraall rreessoouurrcceess..
oo MMaannyy SSttaattee LLeeggiissllaattuurreess hhaavvee lleeggaallllyy eemmppoowweerreedd tthhee GGrraamm SSaabbhhaa ffoorr
ssoocciiaall aauuddiitt..
oo TToo ddiissccuussss tthhee AAnnnnuuaall RReeppoorrtt ooff aaddmmiinniissttrraattiioonn..
oo TToo ddiissccuussss tthhee pprrooggrraammmmeess pprrooppoosseedd ttoo bbee uunnddeerrttaakkeenn nneexxtt yyeeaarr..
oo EExxaammiinnee tthhee bbuuddggeett ooff tthhee GGrraamm PPaanncchhaayyaatt..
oo TToo ddiissccuussss tthhee rreeppoorrtt oonn ddeevveellooppmmeenntt pprrooggrraammmmeess iimmpplleemmeenntteedd iinn tthhee
pprreecceeddiinngg yyeeaarr..
oo MMaaiinnttaaiinn rreeccoorrddss ooff aallll ddeevveellooppmmeenntt wwoorrkkss..
oo RReennddeerr aassssiissttaannccee iinn tthhee iimmpplleemmeennttaattiioonn ooff vviillllaaggee ddeevveellooppmmeenntt
sscchheemmeess..
oo MMoobbiilliissee vvoolluunnttaarryy llaabboouurr aanndd ccoonnttrriibbuuttiioonn..
oo CCllaarriiffiiccaattiioonn oonn aaccttiivviittiieess..
oo EExxaammiinnee aanndd aacctt uuppoonn tthhee rreeppoorrttss ooff vviiggiillaannccee ccoommmmiitttteeeess..
oo PPrroommoottiioonn ooff uunniittyy aanndd hhaarrmmoonnyy..
o PPrrooggrraammmmeess ooff aadduulltt eedduuccaattiioonn aanndd ffaammiillyy wweellffaarree..
TranTranTranTransparency and Accountabilitysparency and Accountabilitysparency and Accountabilitysparency and Accountability ::::
oo AAtttteennddaannccee ooff mmeemmbbeerrss..
oo SShhoouulldd mmeeeett ffrreeqquueennttllyy..
o AAllll aaccttiivviittiieess sshhoouulldd bbee aapppprroovveedd bbyy GGrraamm SSaabbhhaass..
Provision under Panchayati Raj Act 1994 :Provision under Panchayati Raj Act 1994 :Provision under Panchayati Raj Act 1994 :Provision under Panchayati Raj Act 1994 :
oo GGrraamm SSaabbhhaa sshhaallll ccoonnssiiddeerr tthhee ffoolllloowwiinngg mmaatttteerrss aanndd mmaakkee
rreeccoommmmeennddaattiioonnss aanndd ssuuggggeessttiioonnss ttoo tthhee GGaaoonn PPaanncchhaayyaattss..
28
o The report in respect of the development programmes of the Gaon
Panchayat relating to the preceding year and development
programme propose to be undertaken during the current year.
oo Promotion of unity and harmony among all sections of the society in the
village. SSuucchh ootthheerr mmaatttteerr aass mmaayy bbee pprreessccrriibbeedd.. ((SSeeccttiioonn 44))..
oo PPrreessiiddeenntt ooff GGaaoonn PPaanncchhaayyaatt..
o IInn aabbsseennccee ooff tthhee PPrreessiiddeenntt tthhee VViiccee PPrreessiiddeenntt oorr aannyy ppeerrssoonn sseelleecctteedd
bbyy tthhee mmaajjoorriittyy ooff tthhee GGaaoonn PPaanncchhaayyaatt MMeemmbbeerrss..
oo CCoonnvveenniinngg ooff tthhee GGrraamm SSaabbhhaa ––
�� BByy tthhee SSeeccrreettaarryy ooff tthhee GGaaoonn PPaanncchhaayyaatt wwiitthh aapppprroovvaall ooff tthhee
PPrreessiiddeenntt aanndd iinn ccoonnssuullttaattiioonn wwiitthh tthhee BBDDOO..
�� TThhee GGaaoonn SSaabbhhaa sshhaallll mmeeeett ffrroomm ttiimmee ttoo ttiimmee bbuutt aa ppeerriioodd ooff
tthhrreeee mmoonntthhss sshhaallll nnoott iinntteerrvveennee bbeettwweeeenn aannyy ttwwoo mmeeeettiinnggss..
o PublicPublicPublicPublicity : ity : ity : ity : Wide publicity should be given 15 days ahead of holding of
the Gram Sabha.
oo QQQQQQQQuuuuuuuuoooooooorrrrrrrruuuuuuuummmmmmmm –––––––– One tenth of the total members or 100 numbers of voters of the
village / villages which ever is less.
oo FFFFFFFFuuuuuuuunnnnnnnnccccccccttttttttiiiiiiiioooooooonnnnnnnnssssssss ––––––––
MMoobbiilliissiinngg vvoolluunnttaarryy llaabboouurr aanndd ccoonnttrriibbuuttiioonn iinn kkiinndd aanndd ccaasshh ffoorr
ccoommmmuunniittyy wweellffaarree pprrooggrraammmmeess..
IIddeennttiiffiiccaattiioonn ooff bbeenneeffiicciiaarriieess..
RReennddeerriinngg aassssiissttaannccee iinn tthhee iimmpplleemmeennttaattiioonn ooff ddeevveellooppmmeenntt sscchheemmeess
ppeerrttaaiinniinngg ttoo tthhee vviillllaaggeess aanndd rreennddeerriinngg sseerrvviicceess iinn tthhee vviillllaaggeess..
AA GGrraamm SSaabbhhaa mmaayy eexxeerrcciissee ssuucchh ppoowweerrss aanndd ppeerrffoorrmm ssuucchh ffuunnccttiioonnss aatt tthhee
vviillllaaggee lleevveell aass tthhee lleeggiissllaattuurree ooff tthhee SSttaattee mmaayy,, bbyy--llaaww,, pprroovviiddee.. ((SSeeccttiioonn 224433aa))
29
o BenefitsBenefitsBenefitsBenefits ––––
AAwwaarreenneessss ddeevveellooppmmeenntt
AAsssseessssmmeenntt ooff ffeelltt nneeeedd
PPaarrttiicciippaattoorryy ddeevveellooppmmeenntt –– PPllaannnniinngg,, IImmpplleemmeennttaattiioonn,, MMoonniittoorriinngg..
MMoobbiilliissaattiioonn ooff llooccaall rreessoouurrcceess
DDeecceennttrraalliissaattiioonn
EEnnssuurree vviibbrraanntt ddeemmooccrraaccyy
SSoocciiaall aauuddiitt,, ttrraannssppaarreennccyy aanndd aaccccoouunnttaabbiilliittyy
CCaappaacciittyy bbuuiillddiinngg
SSoocciiaall mmoobbiilliissaattiioonn//OOrrggaanniissaattiioonn bbuuiillddiinngg
o Planning Planning Planning Planning ----
�� IIddeennttiiffiiccaattiioonn ooff nneeeeddss,, ggaappss,, pprroobblleemmss,, pprroossppeeccttss,, ppootteennttiiaall aanndd
ooppppoorrttuunniittiieess..
�� DDiissppaarriittyy aannaallyyssiiss oonn tthhee bbaassiiss ooff ccoolllleecctteedd ddaattaa // iinnffoorrmmaattiioonn..
�� IIddeennttiiffiiccaattiioonn ooff tthhee oobbjjeeccttiivveess..
�� PPllaannnniinngg ffoorr tthhee pprrooggrraammmmeess..
o SSSSSSSSoooooooommmmmmmmeeeeeeee IIIIIIIIssssssssssssssssuuuuuuuueeeeeeeessssssss rrrrrrrreeeeeeeellllllllaaaaaaaattttttttiiiiiiiinnnnnnnngggggggg ttttttttoooooooo GGGGGGGGrrrrrrrraaaaaaaammmmmmmm SSSSSSSSaaaaaaaabbbbbbbbhhhhhhhhaaaaaaaassssssss ::::----
�� SSiizzee aanndd aarreeaa ooff tthhee GGrraamm SSaabbhhaa ::
–– BBiigg GGrraamm SSaabbhhaa iiss hheetteerrooggeenneeoouuss aanndd ddiissoorrggaanniisseedd..
-- OOppppoorrttuunniittyy ccoosstt iiss ttoooo hhiigghh ffoorr tthhee ppoooorr ppeeooppllee iinn ccaassee ooff bbiigg GGrraamm
SSaabbhhaa..
�� FFrreeqquueennccyy ooff hhoollddiinngg GGrraamm SSaabbhhaa
�� PPaarrttiicciippaattiioonn ooff ddiissaaddvvaannttaaggeedd ggrroouuppss
�� RReeccooggnniittiioonn ooff GGrraamm SSaabbhhaass bbyy ddiiffffeerreenntt ddeeppaarrttmmeennttss
�� SSttrreennggtthh ooff ddeecciissiioonnss ttaakkeenn bbyy tthhee GGrraamm SSaabbhhaa
30
�� DDiivveerrssiiffiiccaattiioonnss ooff ppoowweerrss
�� IInnvvoollvveemmeenntt ooff vvaarriioouuss iinnssttiittuuttiioonnss aanndd oorrggaanniissaattiioonnss
�� SSeennssiittiissiinngg ppeeooppllee
What is People’s Participation?What is People’s Participation?What is People’s Participation?What is People’s Participation?
oo IInnvvoollvviinngg ppeeooppllee iinn tthhee ddeevveellooppmmeenntt aaccttiivviittiieess ((ppllaannnniinngg,,
iimmpplleemmeennttaattiioonn,, mmoonniittoorriinngg aanndd eevvaalluuaattiioonn))..
oo IInnvvoollvviinngg ddiissaaddvvaannttaaggeedd ppeeooppllee iinn tthhee ttoottaall pprrooggrraammmmee ccyyccllee..
oo PPeeooppllee mmuusstt rreeaalliissee,, ffeeeell aanndd oowwnn tthhee pprrooggrraammmmee;;
oo SSoollvvee cchhaalllleennggeess ooff ccoommmmoonn iinntteerreesstt ttoo aallll iinn tthhee ccoommmmuunniittyy;;
oo AAcchhiieevvee ssuussttaaiinnaabbllee ddeevveellooppmmeenntt ooff tthhee ppeeooppllee,, bbyy tthhee ppeeooppllee aanndd ffoorr
tthhee ppeeooppllee;;
oo IIddeennttiiffyy ffeelltt nneeeeddss;;
oo IInnvvoollvvee ppeeooppllee iinn tthhee pprroocceessss ooff ddeevveellooppmmeenntt;;
oo SSoollvvee pprroobblleemmss ccoonncceerrnniinngg tthhee mmaajjoorriittyy;;
oo MMoobbiilliissee llooccaall rreessoouurrccee aanndd;;
o BBuuiilldd ccoonnffiiddeennccee aammoonngg ppeeooppllee..
How to Mobilise People’s Participation?How to Mobilise People’s Participation?How to Mobilise People’s Participation?How to Mobilise People’s Participation? ::::
oo IInnffoorrmmaattiioonn ddiisssseemmiinnaattiioonn,, aawwaarreenneessss,, rraappppoorrtt bbuuiillddiinngg;;
oo PPeeooppllee mmaakkiinngg tthheeiirr oowwnn ddeecciissiioonnss;;
oo WWoorrkkiinngg iinn aa hhoommooggeennoouuss ggrroouupp;;
oo AAddddrreessssiinngg tthhee ccoommmmoonn nneeeedd;;
oo FFuullffiillmmeenntt ooff pprreesseenntt ssiittuuaattiioonn aanndd ffeelltt nneeeedd ooff tthhee ppeeooppllee;;
oo BBeeccoommiinngg ggoooodd lliisstteenneerr;;
31
oo OOrrggaanniissiinngg ssmmaallll ggrroouuppss;;
oo IIddeennttiiffyyiinngg iinnffoorrmmaall llooccaall lleeaaddeerrss aanndd aarrrraannggeemmeenntt ffoorr ttrraaiinniinngg;;
oo BBuuiillddiinngg ccaappaacciittyy tthhrroouugghh sskkiillll ttrraaiinniinngg;;
oo PPllaannnniinngg aanndd iimmpplleemmeennttaattiioonn wwiitthh tthhee ppeeooppllee;;
oo PPrroojjeecctt bbaasseedd oonn llooccaall rreessoouurrcceess;;
oo RReeaalliissttiicc pprrooggrraammmmiinngg aanndd
oo AAccttiivvee wwoommeenn iinnvvoollvveemmeenntt..
Powers given to Powers given to Powers given to Powers given to Gram Sabhas by different States :Gram Sabhas by different States :Gram Sabhas by different States :Gram Sabhas by different States :
oo TToo ccoonnssiiddeerr tthhee rreeppoorrtt rreellaattiinngg ttoo tthhee ddeevveellooppmmeenntt pprrooggrraammmmeess rreellaattiinngg
ttoo tthhee wwaarrdd dduurriinngg tthhee pprreevviioouuss yyeeaarr..
oo TToo ccoonnssiiddeerr tthhee ddeevveellooppmmeenntt aaccttiivviittiieess pprrooppoosseedd ffoorr tthhee ccuurrrreenntt yyeeaarr..
oo TToo ccoonnssiiddeerr tthhee aannnnuuaall ssttaatteemmeenntt ooff aaccccoouunnttss ooff tthhee GGrraamm PPaanncchhaayyaatt
aanndd tthhee aannnnuuaall aaddmmiinniissttrraattiioonn rreeppoorrtt ooff GGrraamm PPaanncchhaayyaatt..
o TToo ffoorrmmuullaattee pprrooppoossaallss aanndd ffiixx pprriioorriittyy ooff sscchheemmeess ooff pprrooggrraammmmeess ooff tthhee
ppaanncchhaayyaatt.. \\
oo TToo pprreeppaarree lliisstt aanndd ffiixx pprriioorriittyy ooff bbeenneeffiicciiaarriieess ooff bbeenneeffiicciiaarryy oorriieenntteedd
pprroojjeeccttss..
oo TToo ssuuggggeesstt llooccaattiioonn ooff ttaappss ooff wwaatteerr ssuuppppllyy sscchheemmee,, ssttrreeeett lliigghhttss eettcc..
oo TToo kknnooww tthhee bbuuddggeettaarryy pprroovviissiioonn ooff tthhee ppaanncchhaayyaatt..
oo TToo kknnooww tthhee ffoollllooww uupp aaccttiioonn oonn tthhee ddeecciissiioonn ooff GGrraamm SSaabbhhaa..
oo TToo vveerriiffyy eelliiggiibbiilliittyy ooff ppeerrssoonnss ggeettttiinngg vvaarriioouuss kkiinnddss ooff wweellffaarree aassssiissttaannccee
ffrroomm GGoovveerrnnmmeenntt aanndd PPaanncchhaayyaatt..
oo TToo kknnooww tthhee ddeettaaiillss ooff ppllaann oouuttllaayy..
32
oo TToo kknnooww tthhee iitteemmss wwiissee aallllooccaattiioonn ooff ffuunnddss..
oo TToo kknnooww ddeettaaiillss ooff eessttiimmaatteess aanndd ccoosstt ooff mmaatteerriiaallss ooff wwoorrkkss eexxeeccuutteedd oorr
pprrooppoosseedd ttoo bbee eexxeeccuutteedd wwiitthhiinn tthhee aarreeaa ooff GGrraamm SSaabbhhaa..
oo TToo ccoonnssiiddeerr aauuddiitt rreeppoorrtt,, ppeerrffoorrmmaannccee aauuddiitt rreeppoorrtt,, tthhee rreepplliieess ffuurrnniisshheedd
bbyy tthhee ppaanncchhaayyaatt tthheerreeoonn..
o TToo pprroovviiddee aassssiissttaannccee iinn ccoolllleeccttiioonn aanndd ccoommppiillaattiioonn ooff ddeettaaiillss rreeqquuiirreedd ttoo
ffoorrmmuullaattee ddeevveellooppmmeenntt ppllaannss..
oo TToo rreennddeerr aassssiissttaannccee ttoo iimmpplleemmeenntt eeffffeeccttiivveellyy tthhee ddeevveellooppmmeenntt sscchheemmee
bbyy pprroovviiddiinngg ffaacciilliittiieess llooccaallllyy rreeqquuiirreedd..
oo TToo pprroovviiddee aanndd mmoobbiilliissee vvoolluunnttaarryy sseerrvviiccee aanndd ccoonnttrriibbuuttiioonn iinn ccaasshh oorr iinn
kkiinndd ffoorr ddeevveellooppmmeenntt aaccttiivviittiieess..
oo TToo ffoorrmmuullaattee sscchheemmeess ttoo iimmppaarrtt aawwaarreenneessss iinn mmaatttteerrss ooff ppuubblliicc iinntteerreesstt
lliikkee cclleennlliinneessss,, eennvviirroonnmmeennttaall pprrootteeccttiioonn // ppoolllluuttiioonn ccoonnttrrooll..
oo TToo ggiivvee iinnffoorrmmaattiioonn aaggaaiinnsstt ssoocciiaall eevviillss lliikkee ccoorrrruuppttiioonn,, iilllliicciitt aanndd
ccllaannddeessttiinnee ttrraannssaaccttiioonnss..
oo TToo pprroommoottee hhaarrmmoonnyy && uunniittyy ooff tthheeiirr cciittiizzeennss..
oo TToo oorrggaanniissee aarrttss && ssppoorrttss ffeessttiivvaall ttoo ddeevveelloopp ggooooddwwiillll aammoonngg ppeeooppllee..
oo TToo mmoonniittoorr aanndd rreennddeerr aassssiissttaannccee ttoo bbeenneeffiicciiaarryy ccoommmmiitttteeee eennggaaggeedd iinn
ddeevveellooppmmeennttaall aaccttiivviittiieess..
oo TToo mmaakkee aavvaaiillaabbllee ddeettaaiillss rreeggaarrddiinngg tthhee sseerrvviicceess ttoo bbee rreennddeerreedd aanndd tthhee
aaccttiivviittiieess ttoo bbee pprrooppoosseedd ttoo bbee ddoonnee bbyy tthhee ooffffiicciiaallss iinn tthhee ssuucccceeeeddiinngg
mmoonntthhss..
oo TToo kknnooww tthhee rraattiioonnaall bbeehhiinndd ddeecciissiioonnss ttaakkeenn bbyy tthhee ppaanncchhaayyaatt rreeggaarrddiinngg
tthhee aarree ooff GGrraamm SSaabbhhaa..
33
oo TToo kknnooww tthhee ddeettaaiilleedd rreeaassoonn ffoorr nnoott iimmpplleemmeennttiinngg aannyy ooff tthhee ddeecciissiioonnss ooff
tthhee GGrraamm SSaabbhhaa..
oo TToo ccoo--ooppeerraattee wwiitthh tthhee eemmppllooyyeeeess tthhee ssaanniittaattiioonn pprroocceessss aanndd rreennddeerr
vvoolluunnttaarryy sseerrvviiccee ffoorr rreemmoovviinngg ggaarrbbaaggee..
oo TToo ssuuggggeesstt rreemmeeddiiaall mmeeaassuurreess ffoorr bbeenneeffiicciiaarriieess iinn tthhee aarrrraannggeemmeennttss ffoorr
wwaatteerr ssuuppppllyy,, ssttrreeeett lliigghhttss,, eettcc..
oo TToo aassssiisstt tthhee ppaarreenntt tteeaacchheerrss aassssoocciiaattiioonnss..
oo TToo aassssiisstt ppuubblliicc hheeaalltthh aaccttiivviittiieess ffoorr pprreevveennttiioonn ooff ddiisseeaasseess,, ffaammiillyy wweellffaarree
aaccttiivviittiieess eettcc..
oo TToo aappppooiinntt,, eelleecctt,, oorr ccoonnssttiittuuttee ggeenneerraall oorr ssppeecciiaall ssuubb ccoommmmiitttteeeess ffoorr
iimmpplleemmeennttaattiioonn ooff sscchheemmeess,, iittss ddeecciissiioonnss,, pprrooggrraammmmeess aanndd iinn rreeffeerreennccee
ttoo iittss rriigghhttss aanndd rreessppoonnssiibbiilliittiieess..
oo TToo ddiisssseemmiinnaattee iinnffoorrmmaattiioonn rreeggaarrddiinngg ddeevveellooppmmeennttaall aanndd wweellffaarree
aaccttiivviittiieess..
oo TToo ppaarrttiicciippaattee iinn aanndd ccaannvvaass pprrooggrraammmmeess ooff hheeaalltthh aanndd lliitteerraaccyy aanndd
ootthheerr ddeevveellooppmmeenntt pprrooggrraammmmeess..
oo TToo ccoolllleecctt eesssseennttiiaall ssoocciioo eeccoonnoommiicc ddaattee ooff tteenn jjuurriissddiiccttiioonn..
oo TToo pprroovviiddee ffeeeedd bbaacckk oonn tthhee ddeevveellooppmmeenntt pprrooggrraammmmeess..
oo TToo pprroovviiddee ssuuppppoorrtt ttoo GGrraamm PPaanncchhaayyaatt ffoorr ccoolllleeccttiioonn ooff TTaaxxeess,,
rreeppaayymmeenntt ooff llooaannss,, pprroommoottee eennvviirroonnmmeennttaall cclleeaannlliinneessss aanndd mmaaiinnttaaiinn
ssoocciiaall hhaarrmmoonnyy..
oo TToo mmoobbiilliissee llooccaall rreessoouurrccee ttoo ssttrreennggtthheenn rreessoouurrccee bbaassee ooff tthhee ppaanncchhaayyaatt..
oo TToo ssuuppeerrvviissee ddeevveellooppmmeenntt aaccttiivviittiieess aass vvoolluunntteeeerr tteeaammss..
oo TToo mmaakkee aarrrraannggeemmeennttss ffoorr iimmppaacctt rreeppoorrtt oonn iinncciiddeennccee ooff eeppiiddeemmiiccss,,
nnaattuurraall ccaallaammiittiieess eettcc..
34
Meeting of Gram Sabha :Meeting of Gram Sabha :Meeting of Gram Sabha :Meeting of Gram Sabha :
oo DDeetteerrmmiinnaattiioonn ooff ddaatteess iinn aaddvvaannccee bbyy tthhee llooccaall ggoovveerrnnmmeennttss..
oo PPrriinnttiinngg ooff iinnvviittaattiioonn nnoottiicceess aanndd ddiissttrriibbuuttiinngg tthheemm wwiitthh eeaacchh nnoottiiccee
ssuummmmaarriissiinngg tthhee rreessppoonnssiibbiilliittiieess ooff GGrraamm SSaabbhhaa iinn ppllaann ffoorrmmuullaattiioonn..
oo DDiissppllaayy ooff ffiixxeedd nnoottiicceess iinn ppuubblliicc ppllaacceess..
oo CCoonnttaacctt ooff iinntteerreesstt ggrroouuppss tthhrroouugghh ooffffiicceerrss aanndd eelleecctteedd mmeemmbbeerrss..
oo IInnffoorrmmaattiioonn tthhrroouugghh rreepprreesseennttaattiivvee oorrggaanniissaattiioonn..
oo SSppeecciiaall ppuubblliicciittyy tthhrroouugghh sscchhoooollss,, aannggaannwwaaddiiss aanndd ccooooppeerraattiivveess..
oo SSppeecciiaall eeffffoorrttss tthhrroouugghh NNGGOOss,, lliibbrraarriieess aanndd ccooooppeerraattiivveess..
oo MMoobbiilliizziinngg tthhrroouugghh SSHHGGss // NNHHGGss // SSCC // SSTT pprroommootteerrss..CCaammppaaiiggnn
tthhrroouugghh NNaattiioonnaall SSeerrvviiccee SScchheemmee vvoolluunntteeeerrss,, NNCCCC ccaaddeettss aanndd ccoolllleeggee
ssttuuddeennttss oonn ssoocciiaall wwoorrkk ppllaacceemmeenntt..
GGGGGGGGrrrrrrrraaaaaaaammmmmmmm SSSSSSSSaaaaaaaabbbbbbbbhhhhhhhhaaaaaaaa –––––––– SSSSSSSSoooooooommmmmmmmeeeeeeee SSSSSSSSuuuuuuuuggggggggggggggggeeeeeeeessssssssttttttttiiiiiiiioooooooonnnnnnnnssssssss ffffffffoooooooorrrrrrrr SSSSSSSSttttttttrrrrrrrreeeeeeeennnnnnnnggggggggtttttttthhhhhhhheeeeeeeennnnnnnniiiiiiiinnnnnnnngggggggg DDDDDDDDeeeeeeeecccccccceeeeeeeennnnnnnnttttttttrrrrrrrraaaaaaaalllllllliiiiiiiizzzzzzzzaaaaaaaattttttttiiiiiiiioooooooonnnnnnnn aaaaaaaannnnnnnndddddddd
PPPPPPPPeeeeeeeeoooooooopppppppplllllllleeeeeeee’’’’’’’’ssssssss PPPPPPPPaaaaaaaarrrrrrrrttttttttiiiiiiiicccccccciiiiiiiippppppppaaaaaaaattttttttiiiiiiiioooooooonnnnnnnn ::::::::
oo IInnsstteeaadd ooff aann aaddvviissoorryy bbooddyy,, tthhee GGrraamm SSaabbhhaa sshhoouulldd bbee mmaaddee aann
aapppprroovviinngg // ssaannccttiioonniinngg aauutthhoorriittyy ffoorr ttaakkiinngg uupp aannyy ddeevveellooppmmeenntt
pprrooggrraammmmee aatt tthhee vviillllaaggee lleevveell..
oo TThhee ggrraamm SSaabbhhaa sshhoouulldd bbee aalllloowweedd ttoo ffuunnccttiioonn tthhee wwaayy tthhee PPaarrlliiaammeenntt
ffuunnccttiioonnss aatt tthhee nnaattiioonnaall lleevveell aanndd ssttaattee lleeggiissllaattuurree aatt tthhee ssttaattee lleevveell.. IItt
sshhoouulldd eevvoollvvee iittss oowwnn pprroocceedduurree ffoorr ccoonndduuccttiinngg iittss bbuussiinneessss..
oo AA GGrraamm SSaabbhhaa ffoorr sseevveerraall vviillllaaggeess iiss nnoott aa pprraaccttiiccaall pprrooppoossiittiioonn.. EEvveerryy
vviillllaaggee hhaass iittss oowwnn eexxiisstteennccee.. DDiissttaannccee bbeeccoommeess aa bbaarrrriieerr ffoorr aann aaggeedd
ppeerrssoonn oorr wwoommeenn ttoo ppaarrttiicciippaattee iinn GGrraamm SSaabbhhaa mmeeeettiinnggss.. TThheerree iiss tthhuuss aa
nneeeedd ttoo rreeddeeffiinnee GGrraamm SSaabbhhaa..
35
oo IInn oorrddeerr ttoo ttaakkee ggrraassss rroooott ddeemmooccrraaccyy ttoo tthhee ddoooorrsstteepp ooff tthhee ppeeooppllee,,
eevveerryy vviillllaaggee iirrrreessppeeccttiivvee ooff iittss ssiizzee aanndd ppooppuullaattiioonn sshhoouulldd hhaavvee aa GGrraamm
SSaabbhhaa..
oo IItt sshhoouulldd bbee mmaannddaattoorryy ffoorr eevveerryy GGrraamm SSaabbhhaa ttoo mmeeeett nnoott lleessss tthhaann ffoouurr
ttiimmeess aa yyeeaarr..
oo IItt wwiillll nnoott bbee aaddvviissaabbllee ttoo iimmppoossee uunniiffoorrmm ddaatteess ffoorr hhoollddiinngg GGrraamm SSaabbhhaa
mmeeeettiinnggss,, bbeeccaauussee wwee lliivvee iinn aa ccoouunnttrryy,, wwhhiicchh iiss ggeeooggrraapphhiiccaallllyy ddiivveerrssee
iinn nnaattuurree.. AA ppaarrttiiccuullaarr ddaattee mmaayy ssuuiitt oonnee rreeggiioonn bbuutt nnoott aannootthheerr..
oo IInn oorrddeerr ttoo eennssuurree ppaarrttiicciippaattiioonn ooff ddiissaaddvvaannttaaggeedd ggrroouuppss,, tthhee qquuoorruumm ffoorr
hhoollddiinngg aa GGrraamm SSaabbhhaa mmeeeettiinngg nneecceessssaarriillyy sshhoouulldd iinncclluuddee 3333%%
ppaarrttiicciippaattiinngg // pprreesseennccee ooff wwoommeenn,, SSCC//SSTT..
oo TThhee rroollee aanndd rreessppoonnssiibbiilliittyy ooff tthhee GGrraamm SSaabbhhaa aanndd iittss ffuunnccttiioonnaall
rreellaattiioonnsshhiipp wwiitthh GGrraamm SSaabbhhaa PPaanncchhaayyaatt nneeeedd ttoo bbee cclleeaarrllyy ssppeelltt oouutt..
oo GGrraamm SSaabbhhaa mmaayy bbee ttrreeaatteedd aass aann iinnssttiittuuttiioonn ffoorr rreeiinnffoorrcceemmeenntt ooff
ssoovveerreeiiggnnttyy ooff tthhee ppeeooppllee..
oo GGrraamm SSaabbhhaa hhaass ttoo bbee tthhee CCeennttrree ooff DDeemmooccrraattiicc PPoowweerr iinn tthhee vviillllaaggee aanndd
iiss tthhee ffuullccrruumm ooff aaccttiivviittyy.. TThhee bbaassiicc pphhiilloossoopphhyy iinn tthhee ccoonncceepptt ooff GGrraamm
SSaabbhhaa iiss vviillllaaggee aass aa ccoolllleeccttiivvee bbooddyy ttoo ddiissccuussss,, ddeecciiddee hhoolliissttiiccaallllyy aabboouutt
tthhee llooccaall iissssuueess aanndd pprroobblleemmss.. GGrraamm SSaabbhhaa bbaasseedd ccoommpprreehheennssiivvee
ppllaannnniinngg mmuusstt bbee tthhee bbaassiiss ooff sseellff--ggoovveerrnnaannccee..
oo GGrraamm SSaabbhhaa nneeeeddss ttoo bbee rreeccooggnniisseedd bbyy ddiiffffeerreenntt ddeeppaarrttmmeennttss aanndd ootthheerr
OOrrggaanniissaattiioonnss ffoorr ppuurrppoosseess ooff ccaarrrryyiinngg oouutt ppllaannnniinngg aanndd ddeevveellooppmmeenntt
aaccttiivviittiieess iinn tthhee GGrraamm SSaabbhhaa aarreeaa..nnTThhee ssiizzee aanndd aarreeaa ooff GGrraamm SSaabbhhaa nneeeedd
nnoott nneecceessssaarriillyy bbee ccoo--tteerrmmiinnuuss wwiitthh tthhee GGrraamm PPaanncchhaayyaatt.. TThhee ssoollee
ccoonnssiiddeerraattiioonn ffoorr ddeecciiddiinngg tthhee ssiizzee aanndd aarreeaa ooff GGrraamm SSaabbhhaa sshhoouulldd bbee
36
aacccceessssiibbiilliittyy aanndd mmaannaaggeeaabbiilliittyy.. IIff nneecceessssaarryy,, tthheerree ccaann bbee mmoorree tthhaann oonnee
GGrraamm SSaabbhhaa uunnddeerr oonnee PPaanncchhaayyaatt..
oo TThhee GGrraamm SSaabbhhaa sshhoouulldd sseelleecctt oonn aa ccoonnsseennssuuss bbaassiiss oonnee ppeerrssoonn ttoo
ccoonnvveennee aanndd pprreessiiddee oovveerr iittss mmeeeettiinngg.. HHee mmaayy bbee aassssiisstteedd bbyy aa
ccoommmmiitttteeee ttoo ffoollllooww uupp tthhee ppllaannnniinngg aanndd ccoonndduuccttiinngg tthhee GGrraamm SSaabbhhaa
mmeeeettiinnggss..
oo TThhee ddeecciissiioonnss ttaakkeenn bbyy tthhee GGrraamm SSaabbhhaa sshhoouulldd nnoott bbee ssuubbjjeecctt ttoo aannyy
kkiinndd ooff rreevviieeww oorr rreeccoonnssiiddeerraattiioonn bbyy vviillllaaggee PPaanncchhaayyaatt oorr aannyy ootthheerr ttiieerr
ooff PPaanncchhaayyaattii RRaajj ssyysstteemm.. IInn ccaassee iitt bbeeccoommeess nneecceessssaarryy ttoo rreevviieeww aa
ppaarrttiiccuullaarr ddeecciissiioonn iitt sshhoouulldd bbee rreeffeerrrreedd bbaacckk ttoo tthhee GGrraamm SSaabbhhaa ffoorr
rreeccoonnssiiddeerraattiioonn..
oo PPoowweerrss ooff tthhee GGrraamm SSaabbhhaa sshhoouulldd bbee eennllaarrggeedd ssoo aass ttoo iinncclluuddee tthhee
ppoolliiccyy,, jjuuddiicciiaarryy,, rreevveennuuee ccoolllleeccttiioonn eettcc..,, iinn tteerrmmss ooff rreeiinnffoorrcceemmeenntt..
oo IInnvvoollvvee vvaarriioouuss iinnssttiittuuttiioonnss lliikkee mmeeddiiaa,, aaccaaddeemmiiccss,, yyoouutthh aanndd ootthheerr
aassssoocciiaattiioonnss aanndd ffoorrmmaattiioonnss ttoowwaarrddss ssttrreennggtthheenniinngg GGrraamm SSaabbhhaa..
oo GGrraamm SSaabbhhaa sshhoouulldd hhaavvee ccoonnttrrooll aanndd aacccceessss oonn tthhee nnaattuurraall rreessoouurrcceess
aavvaaiillaabbllee iinn iittss aarreeaa aanndd vviicciinniittyy.. AAnnyy aaccttiivviittyy ccoonncceerrnniinngg eexxppllooiittaattiioonn ooff
nnaattuurraall rreessoouurrcceess sshhoouulldd llooccaallllyy bbee ccaarrrriieedd oouutt wwiitthh iittss ccoonnccuurrrreennccee..
oo AAllll llaanndd rreellaatteedd iissssuueess sshhoouulldd bbee ddiissccuusssseedd iinn tthhee GGrraamm SSaabbhhaa..
oo TThhee mmeeeettiinnggss ooff tthhee GGrraamm SSaabbhhaa sshhoouulldd iinnvvaarriiaabbllyy tthhee aatttteennddeedd bbyy
GGoovveerrnnmmeenntt ooffffiicciiaallss ssoo aass ttoo eennaabbllee tthhee ppeeooppllee ttoo sseeeekk iinnffoorrmmaattiioonn //
ccllaarriiffiiccaattiioonnss ffrroomm tthheemm..
oo SSppeecciiffiicc llaawwss // rruulleess aaffffeeccttiinngg tthhee ffuunnccttiioonniinngg ooff GGrraamm SSaabbhhaa nneeeeddss ttoo bbee
rreevviieewweedd aanndd mmooddiiffiieedd,, iiff nneecceessssaarryy..
37
oo EEffffoorrttss ttoo bbrriinngg oouutt aattttiittuuddiinnaall cchhaannggeess iinn tthhee ooffffiicciiaallss aanndd eelleecctteedd
rreepprreesseennttaattiivveess ddeeaalliinngg wwiitthh tthhee rruurraall ppeeooppllee sshhoouulldd bbee pprroommootteedd..
38
CHAPCHAPCHAPCHAPTERTERTERTER---- 5555
Panchayati Raj in Assam Panchayati Raj in Assam Panchayati Raj in Assam Panchayati Raj in Assam
Evolution Of Panchayati Raj In AssamEvolution Of Panchayati Raj In AssamEvolution Of Panchayati Raj In AssamEvolution Of Panchayati Raj In Assam
While historically Assam had a mosaic of tribal and non-tribal
institutions, it was principally the system prevailing under the Ahoms provided
the background to the evolution of panchayati raj institutions in the state.
Ahom RuleAhom RuleAhom RuleAhom Rule
The Ahoms, who had ruled Assam for nearly six hundred years (1228-
1826 AD), had built up a social structure and a system of local administration
wherein a rudimentary form of panchayat for handling local matters could be
found. Constituted by elderly experienced representative of the people in the
rural areas concerned, the panchayats were generally utilized for settling local
disputes. .
The mel and the khel systems were prevalent in medieval Assam, but
some traces of these in one from or the other can still be found in Assam’s rural
society. The usual meaning of mel is a meeting of assembly, or a tribunal;
The mels gave rise o the traditional Raij-mels. These popular assemblies
were ad hoc bodies which proved to be the mother organizations of later
movements and associations in the political history of Assam. The mels of
Ahom times were different in scope and purpose from present-day collective
organization.
Khel meant a clan or fraternity. It was a kind of a classification of people
made by the Ahom kings on the basis of specific professions. It also meant a
39
homogeneous group of people living in a definite territory. People belonging to
different castes were required to work in one khel. This led to the growth of a
sense of fraternity among them.
Assamese society of those days was a combination of several territorial
and vocational khels. People belonging to different khels were settled in each
village and within their limits they gave some evidence of a functioning
democracy.
At the non-governmental level, there were other institutions which
promoted community feelings and common decision making. There were the
namghars (prayer houses of the Assamese Vaisnava sect) and the sattars ( the
Vaisnavite monasteries). The namghars and the sattras, which were integral
parts of the social reform measures of the renowed saint, Sankradeva (1449-
1568) gave a new orientation to medieval society.
The namghar, a prayer house, also served as a village assembly hall, to
discuss all social problems and issues affecting village society openly, and to
take related decisions. It also served as a centre for rehearsals for mass cultural
activities.
The promulgation of the Assam Local Self-Government Act,1915,
brought about a change of approach. The act provided for the establishment of
the village panchayat, for the first time on a formal and legal basis. It also
provided for an elective non- official majority in the panchayat and for the
election of non-officials as chairpersons and vice-chairpersons. Subsequently,
in 1926, another act was passed, this time as a panchayat act because of the
failure of the panchayat scheme under the act 1915 act. The functions of the
40
village authority under the act of 1926 were listed as water supply, medical
relief and sanitation.
The outcome of the act of 1926 was that some village authorities were
found to exist only on paper, and out of those that functioned, a sizeable number
turned out to be ineffective for want of suitable machinery and necessary
resources. Thus, despite formal establishment, panchayat institutions under the
British proved to be a dismal failure. If panchayats received popular support in
rural Assam despite all this, the credit goes to Mahatma Gandhi.
POST INDEPENDENT PERIOD
THE ATHE ATHE ATHE ASSAM RURAL PACHAYAT ACT, 1948SSAM RURAL PACHAYAT ACT, 1948SSAM RURAL PACHAYAT ACT, 1948SSAM RURAL PACHAYAT ACT, 1948 : : : :
Assam was one of the pioneer states in India to enact Panchayat Act and
establish Panchayati Raj in the state. Accordingly in 1948, the Assam Rural
Panchayat Act was passed to aim at achieving an all round development of the
village Governments. The Act provided for the division of rural Assam into
several Rural Panchayat areas. Each Rural Panchayat consisted of a number of
villages. Each village, again, had a Primary Panchayat. All adult persons in the
Primary Panchayat area had the right to vote. The Act empowered the Primary
Panchayat to set up an executive authority. Accordingly each Primary
Panchayat had an Executive body comprising minimum of 9 and maximum of
15 members including the President and the Vice President of the Primary
Panchayat. A Rural Development Officer under the Deputy Commissioner of
the District looked after the functioning of these Panchayats both at village
level and also at Mouza level. But the Panchayat Act of 1948 could not
function properly for several reasons. Firstly, all the rural Panchayats and the
41
Primary Panchayats were not established in the village areas. Under the Act,
422 Mouza Panchayats and 2656 Primary Rural Panchayats were constituted.
The paucity of fund was also a vital point in this respect. Moreover the local
boards existed at that time were also allowed to function in the rural areas,
which was not in conformity with the Assam Rural Panchayat Act.
THE ASSAM PACHAYAT ACT, 1959 THE ASSAM PACHAYAT ACT, 1959 THE ASSAM PACHAYAT ACT, 1959 THE ASSAM PACHAYAT ACT, 1959 : : : :
In 1959, as per recommendations of the Dr. Balwantrai Mehta
Committee, the Government of Assam enacted the Assam Panchayat Act, 1959.
This Act provided for a scheme of three tire Panchayati Raj system in Assam,
i.e. Mahkuma Parishad at the Sub-Divisional level, Anchalic Panchayat at the
intermediate level and the Gaon Panchayat at the village level. But all the units
were organically linked up. There were 2,574 Gaon Panchayats, 121 Anchalic
Panchayats and 20 Mahkuma Parishads in the plain districts of Assam.
The Gaon Panchayat was the executive body of the Gaon Sabha. It
consisted of not more than eleven and not less than nine members. The
members of the Gaon sabha on the basis of adult franchise directly elected
them. The Gaon Panchayat, if considered necessary, could co-opt two women
members and two representatives from SC and ST communities. The Gaon
Panchayat was concerned with water supply, public health, sanitation and
primary education etc.
Under the Act, the Mahkuma Parishad created at the Sub Divisional
level replaced the erstwhile Local Board. The Mahkuma Parishad was formed
with the Presidents of the Anchalik Panchayats, the members of Parliament
42
and of the State Legislative Assembly, the Deputy Commissioner and the Sub
Divisional Officer.
THE ASSAM PANCHAYATI RAJ ACT, 1972 THE ASSAM PANCHAYATI RAJ ACT, 1972 THE ASSAM PANCHAYATI RAJ ACT, 1972 THE ASSAM PANCHAYATI RAJ ACT, 1972 ::::
The Assam Panchayat Act, 1959 was further amended and it was
replaced by the Assam Panchayati Raj Act, 1972. Under the Act of 1972, the
Government of Assam wanted to abolish the intermediate level Anchalik
Panchayat and centralized more and more power at the Sub Divisional level
Panchayat called Mahkuma Parishad. Accordingly a two tier Panchayat system
having Mahkuma Parishad at the Sub Divisional level and the Gaon Panchayat
at the lower level was introduced. A salient feature of the Act was the
extension of Panchayati Raj System of administration to Tea Garden Areas. The
Gaon Panchayat had 15 elected members with the President directly elected.
But the GP Vice President was elected from amongst the members of the Gaon
Panchayat. There were also provisions for co-opting members from women, ST
and SC communities and Co-operative Societies. The electorates of Gaon
Panchayat area elected one Councilor to the Mahkuma Parishad. The directly
elected Councilors constituted the Mahkuma Parishad. The Chief Executive
Councilor, who was the head of the Mahkuma Parishad was elected from
amongst the Councilors. The Deputy Chief Executive Councilor of the
Mahkuma Parishad also was elected from amongst the Councilors. The Chief
Executive Councilor was assisted by an Executive Committee. The Act also
provided for constitution of different standing committees. Provision for
representation of SC and ST people including women at the both the levels was
43
also there. The Anchalic Panchayats which existed earlier were abolished and
instead of those, Block Advisory Committee with the GP Presidents and the
Councilors of the Block Area as the members were formed.
Under the Act, 714 Gaon Panchayats with fifteen to twenty thousand
population and 32 Mahkuma Parishads at the Civil Sub Division level were
constituted.
THE ASAM PANCHAYATI RAJ ACT, 1986 THE ASAM PANCHAYATI RAJ ACT, 1986 THE ASAM PANCHAYATI RAJ ACT, 1986 THE ASAM PANCHAYATI RAJ ACT, 1986 : : : :
The Assam Panchayati Raj Act, 1986 replaced the Assam Panchayati Raj
Act, 1972. Under the provision of the Act, election to the Panchayati Raj
bodies were conducted in February, 1992. The salient features of the Assam
Panchayati Raj Act, 1986 are as follows:
1. Reintroducing of three tire PR system, viz Gaon Panchayat with a
population from 6000 to 8000 at the village level, Anchalik Panchayat at
the Block level and Mahkuma Parishad at the sub divisional level.
2. Inclusion of tea garden areas to provide them an opportunity to
participate in the local self Government.
3. The numbers of Gaon Panchayat members were reduced to 10. Besides
the members, the President was elected directly, while the Vice
President of the GP was elected from amongst the members of the Gaon
Panchayat.
4. 33% of the total seats of each tier of Panchayats were reserved for
women candidates.
44
5. One member in the GP represented SC/STs if there population was upto
33.33 percent.
6. In the case the SC/ST population was more than 33.33 percent, the GP
President and the AP member were to be elected from amongst SC/STc
and accordingly the President of AP also was to be from SC/ST.
7. The Gaon Panchayat Presidents and the Anchalik Panchayat members
constituted the Anchalik Panchayat. The GP Presidents and the AP
members elected one President and one Vice President from amongst
the AP Members.
8. The directly elected Anchalik Panchayat Members constituted the
Mahkuma Parishad. The President and the Vice President of the
Mahkuma Parishad were elected from amongst the MP Members. For
the first time, planning and development council was formed with the
Heads of the Departments (Sub Divisional level), local MLAs, MPs, the
Deputy Commissioner and the Sub Divisional Officer (Civil) of the
concerned Sub Division.
A total of 2486 Gaon Panchayats having population ranging from six to
eight thousand in each at the village level and 196 Anchalik Panchayats at the
Block level and 43 Mahkuma Parishads at the Sub Divisional level had been
constituted.
THE ASSAM PANCHAYAT ACT, 1994THE ASSAM PANCHAYAT ACT, 1994THE ASSAM PANCHAYAT ACT, 1994THE ASSAM PANCHAYAT ACT, 1994
With a view to incorporate the provisions of the 73rd Amendment Act’
1992 of the Constitution, the Assam Panchayati Raj Act, 1994 was introduced
and it replaced the Assam Panchayati Raj Act, 1986.
45
StructuStructuStructuStructurererere
Gaon PanchayatsGaon PanchayatsGaon PanchayatsGaon Panchayats:
a. President – directly elected by people.
b. One Vice President – to be elected from among the members of Gaon
Panchayat.
c. Ten members – directly elected by people.
Anchalik PanchayatsAnchalik PanchayatsAnchalik PanchayatsAnchalik Panchayats:
a. President – to be elected by the elected members of the Anchalik
Panchayats.
b. Vice President - to be elected by the elected members of the
Anchalik Panchayats.
c. Members – 1. One member from each Gaon Panchayat area to
be directly elected by people.
2. President of the Gaon Panchayats falling within
the jurisdiction of the Anchalik Panchayat.
3. Members of Parliament and Legislative Assembly.
Zilla ParishadZilla ParishadZilla ParishadZilla Parishad:
a. President – elected from among the directly elected members of Zilla
Parishad.
b. Vice President - elected from among the directly elected members of
Zilla Parishad.
46
c. Members –
1. Members directly elected from the Zilla Parishad
constituencies of the district.
2. Presidents of the Anchalik Panchayats.
3. Members of House of people & member of Legislative
Assembly.
Standing committeesStanding committeesStanding committeesStanding committees
Gaon PanchayatGaon PanchayatGaon PanchayatGaon Panchayat: Three standing committees, these are
a. Development committee.
b. Social justice committee.
c. Social welfare committee.
Anchalik PanchayatAnchalik PanchayatAnchalik PanchayatAnchalik Panchayat: Three committees, they are
a. General standing committee.
b. Finance, Audit and Planning committee.
c. Social justice committee.
Zilla ParZilla ParZilla ParZilla Parishadishadishadishad: Four committees, they are
a. General standing committee.
b. Finance and Audit committee.
c. Social justice committee.
d. Planning and development committee.
Number of Panchayats at each levelNumber of Panchayats at each levelNumber of Panchayats at each levelNumber of Panchayats at each level
47
1 Zilla Parishad 21
2 Anchalik Panchayat 185
3 Gaon Panchayat 2202
Total
2408
Districts under 6Districts under 6Districts under 6Districts under 6thththth ScheduleScheduleScheduleSchedule
1.
HILL AREASHILL AREASHILL AREASHILL AREAS
Karbi Anglong
2. N.C.Hills
TotalTotalTotalTotal
BTAD BTAD BTAD BTAD
1.Kokrajhar1.Kokrajhar1.Kokrajhar1.Kokrajhar
2.Cirrang2.Cirrang2.Cirrang2.Cirrang
3.Bagsha3.Bagsha3.Bagsha3.Bagsha
4.Udalguri4.Udalguri4.Udalguri4.Udalguri
48
CHAPTER CHAPTER CHAPTER CHAPTER –––– 6666
Panchayati Raj System in Assam Panchayati Raj System in Assam Panchayati Raj System in Assam Panchayati Raj System in Assam –––– The New PhaseThe New PhaseThe New PhaseThe New Phase
Assam has entered into a new phase of establishing strong and effective
Panchayati raj system in the state. Activity mapping was prepared and notified
vide Notification No. PDA 336/2001/Pt – III/32 dated 25th June 2007 for
devolution of functions, functionaries and funds to Zilla Parisads, Anchalik
Panchayat and Gaon Panchayat. Activity mapping has been prepared
meticulously for 23 subjects demarcating responsibilities of each tier of
Panchayats. Panchayati Raj Institutions are now in the position to know about
their specific responsibilities. Development of a sector have a sequence with
responsibilities distributed among different tires at different levels. Every
sector has got different functions. Each function has got various activities
which can be conveniently and realistically discharged at the appropriate level.
DDDDDDDDeeeeeeeevvvvvvvvoooooooolllllllluuuuuuuuttttttttiiiiiiiioooooooonnnnnnnn ooooooooffffffff FFFFFFFFuuuuuuuunnnnnnnnccccccccttttttttiiiiiiiioooooooonnnnnnnnssssssss
Efforts are on to create an enabling environment in the state to pave the
way for strengthening the grass root level democracy through
meaningful operationalisation of the activity map.
The Activity mapping has been prepared covering 23 subject and 17
departments. The subject are as follows:
1. Agriculture including Agriculture Extension.
2. Land Improvement & Soil Conservation.
49
3. Minor Irrigation, Water Management & Watershed
Development.
4. Animal Husbandry, Dairy & Poultry.
5. Fisheries.
6. Social Forestry & Farm Forestry.
7. Minor Forest Products.
8. Small Scale Industries including Food Processing.
9. Handloom, Sericulture, Khadi, Village & Cottage Industries.
10. Drinking Water & Sanitation.
11. Fuel & Fodder.
12. Roads, Culverts, Bridges, Ferries, Waterways & Others means of
Communication.
13. Rural Electrification including Distribution of Electricity.
14. Poverty Alleviation Programme.
15. Primary Education.
16. Secondary Education.
17. Adult & Non Formal Education.
18. Sports & Youth Affaires.
19. Health Sanitation including Hospitals, Health Centers &
Dispensaries.
20. Family Welfare.
21. Women & Child Development.
22. Social Welfare, including Welfa.re of the Handicapped and
Mentally Retarded.
23. Public Distribution System.
50
DDDDDDDDeeeeeeeevvvvvvvvoooooooolllllllluuuuuuuuttttttttiiiiiiiioooooooonnnnnnnn ooooooooffffffff FFFFFFFFuuuuuuuunnnnnnnndddddddd ::::::::
Panchayat window in the state budget has been opened and fund has
been released directly to the Panchayats.
Meanwhile the Third State Finance Commission has submitted its report
covering the period 2006-2011. The basic approach of the Commission
has been to put the PRIs and ULBs on a sound financial footing in
conformity with their empowerment under the Constitutional
amendments. Provision of adequate resource to local government
commensurate with their duties and responsibility envisaged in the 73rd
and 74th amendments and also to safeguard their financial autonomy
has been major concern of the Commission.
Devolution of FunctionariesDevolution of FunctionariesDevolution of FunctionariesDevolution of Functionaries
Devolution of functionaries will take place after the
modalities/guidelines are finalized with the line departments.
Orientation programmes have been organized for the officials of the line
departments on Activity Mapping.
DDDDDDDDiiiiiiiissssssssttttttttrrrrrrrriiiiiiiicccccccctttttttt PPPPPPPPllllllllaaaaaaaannnnnnnnnnnnnnnniiiiiiiinnnnnnnngggggggg CCCCCCCCoooooooommmmmmmmmmmmmmmmiiiiiiiitttttttttttttttteeeeeeeeeeeeeeee
District planning committees have been constituted and efforts are on
strengthen those committees so that holistic district plans can be
prepared for sustainable development of the districts. Necessary training
and guidelines are being provided to the district level officials so that
51
they can extend technical support to the Panchayati Raj Institutions in
the preparation of their respective plans for social justice and economic
development in a participatory manner. Members of DPCs have also
been oriented for the purpose. The DPCs have also been able to
converge the sectoral departments in the preparation of the District
plan.
GGGGGGGGrrrrrrrraaaaaaaammmmmmmm SSSSSSSSaaaaaaaabbbbbbbbhhhhhhhhaaaaaaaassssssss iiiiiiiinnnnnnnn AAAAAAAAssssssssssssssssaaaaaaaammmmmmmm ::::::::
Participatory development through Gram Sabha became more realistic
and meaningful in the state after 73rd Constitution Amendment.
Functions : Functions : Functions : Functions :
As per Assam Panchayati Raj Act 1994 the Gram Sabha shall perform
the following functions namely:
• Mobilizing voluntary labour and contribution in kind and cash
for the Community Welfare Programmes.
• Identification of beneficiaries for the implementation of
development schemes pertaining to the village.
• Rendering all kinds of assistance in the implementation of
development schemes pertaining to village and rendering service
in the village.
The Gram Sabha shall also consider the following matters and may make
recommendation and suggestions to the Gram Panchayats.
52
The report in respect of Development Programme of the Gram
Panchayat relating to the preceding year and development programme
proposed to be undertaken during the current year.
The promotion of unity and harmony among all sections of society in
the villages.
Such other matters as may be prescribed.
The Gram Panchayat shall give due consideration to the
recommendations and suggestions of the Gram Sabha.
Impact of reservation for Women in Assam:Impact of reservation for Women in Assam:Impact of reservation for Women in Assam:Impact of reservation for Women in Assam:
The 73rd Constitutional Amendment and the reservation policy for
women undoubtedly have set a positive trend. Women in Assam in large
number have been able to create and occupy space in the public sphere.
Despite many constraints and limitations, women have proved that,
given an opportunity, they are capable of becoming equal partners in the
development process.
MMMMMMMMoooooooobbbbbbbbiiiiiiiilllllllliiiiiiiizzzzzzzzaaaaaaaattttttttiiiiiiiioooooooonnnnnnnn ooooooooffffffff LLLLLLLLooooooooccccccccaaaaaaaallllllll RRRRRRRReeeeeeeessssssssoooooooouuuuuuuurrrrrrrrcccccccceeeeeeeessssssss iiiiiiiinnnnnnnn PPPPPPPPRRRRRRRRIIIIIIII’’’’’’’’ssssssss ::::::::
Panchayati Raj Institutions collect various taxes fees tolls cess etc, under
the assam Panchayati raj act. They also earn revenue through settlement
of Bazer, fisheries, Fary Ghat etc, besides share in land revenue. There
should be correspondence between the benefits obtained from public
services and the revenue raised in order to promote autonomy,
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accountability, ownership and a sense of participation.Performance of
Panchayats on mobilization of own resources leaves much to be desired.
This is mainly because of less elastic nature of taxes, absence of
supporting staff, etc. There is need to make the taxes and non tax
revenue of the PRIs more productive and elastic through rationalizing
the tax base, rates, tax administration. Efforts are on to change the
scenario.
Guidelines on preparation of district plan:Guidelines on preparation of district plan:Guidelines on preparation of district plan:Guidelines on preparation of district plan:
The Government of Assam has already notified comprehensive
guidelines on the preparation of district plan. As per the guidelines the
sequence in the preparation of the district plan can be summed up as
follows:
• Preparation of district vision, block vision and gram panchayat level
vision.
• Preparation of participatory plan involving Gram Sabha from Gram
Panchayats to Zilla Parishad.
• Preparation of plans by Urban Local Bodies.
• Consolidation of plans prepared by local bodies by District Planning
Committees.
Planning starts with the preparation of vision documents by local bodies.
Based on the vision document prepared and adopting a participatory
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approach, panchayat will prepare development plans in the following
sequence highlighting and prioritizing the needs of the rural people and prioritizing the needs of the rural people and prioritizing the needs of the rural people and prioritizing the needs of the rural people and
setting goal for a five year period in the following manner:setting goal for a five year period in the following manner:setting goal for a five year period in the following manner:setting goal for a five year period in the following manner:
a. The draft plan preparation should start at the Gram Sabha level. The
Gram Panchayat may finalise its plan based on prioritise exerging from
the Gram Sabha and given suggestions for the Intermediate Panchayat.
Projects and activities which can be implemented at the Gram
Panchayat level should be included as “Gram Panchayati Plan”. Those
projects and activities which can be implemented only in more than one
Gram Panchayat, will be forwarded to the Intermediate Panchayats to
be considered for inclusion into the “Intermediate Panchayat Plan”. The
Gram Panchayat plans should also provide an estimate of the
community contribution that can be mobilized for the purpose of
implementing the development plan.
b. Based on these suggestions received from Gram Panchayats and its own
priorities the Intermediate Panchayat should finalise its plan. Projects
and activities, which can be implemented at the Intermediate Panchayat
leve should be included as “Intermediate Panchayat Plan”. Those
projects and activities which need to be implemented in more than one
intermediate panchayat will be forwarded to the District Panchayat to
be considered for inclusion into the “District Panchayat Plan”.
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Based on the Gram Panchayat Plans, the intermediate Panchayat Plans and
District Panchayat Plans, the District Planning Committee shall finalise the
District Plan for the district.
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CHAPTER- 7
PANCHAYATI RAJ FINANCES
Types of Taxes Devolved on PanchayatsTypes of Taxes Devolved on PanchayatsTypes of Taxes Devolved on PanchayatsTypes of Taxes Devolved on Panchayats :
• There are three types of taxes which devolved on panchayats.
o Own taxes – the levy, collection and use of which vests in the
panchayats.
o Assigned taxes – the levy and collection of which vests in the
state but its use vests in panchayats.
o Shared taxes – the levy and collection of which vests in the state
government but shared with local bodies.
Important taxes Important taxes Important taxes Important taxes
o Tax on houses, buildings.
o Tax on agriculture land / crops.
o Profession tax.
o Entertainment tax.
o Additional stamp duty.
o Surcharge on stamp duty.
o Tolls.
o Users charges.
o Octroy.
o Advertisement tax.
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Grants in aidGrants in aidGrants in aidGrants in aid.
• Grants in aid comprise an important element of inter-governmental
transfers. One of the objectives of providing grants is to enable the local
bodies to manage functions entrusted to them which could not
otherwise be undertaken because of their limited taxable capacity.
Furthermore, grants are given to them to undertake functions which are
funded by the state government. Grants are also given to encourage local
bodies to increase their income. Specific purpose, conditional or tied
grants come attached with conditions to spend the funds for specified
purposes.
• Objectives of providing grant to panchayats are as follows:
o To manage function which could not otherwise be undertaken
because of limited taxable capacity.
o To undertake function which are funded by state government.
o To encourage local bodies to increase their income.
o Conditional or tied grants come with condition to spent the fund
for specific purposes.
o External fund with no commitment to raise internal fund make
local government irresponsible and corrupt.
Non tax sources of PRIs Non tax sources of PRIs Non tax sources of PRIs Non tax sources of PRIs
• Non tax sources include users charges on public facilities and on the use
of common resources like forest, waterbodies, queried materials and
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minor materials and also taxes on private property. Funds also flow from
central government on the basis of the recommendations of the central
finance commission.
Tax assignment and sharingTax assignment and sharingTax assignment and sharingTax assignment and sharing.
• After tax assignment tax sharing is the major source of PRI finance they
are of two kinds:
o State government, levies and collect revenue on its own and pass
on a portion to the local bodies e.g. land revenue on agricultural
land and stamp duty on transfer of property.
o Taxes or fees which normally belong to local bodies but whose
collection is taken over by the state.
• Panchayat finances are drawn largely from tax assignment, tax sharing
and grants in aid from the state and the centre while the share of own
tax and non tax revenue is very small.
• To provide adequate finance to local government with weak fiscal
capacity, there should be a formula that takes into account needs
capacity and local effort.
Poor performance Poor performance Poor performance Poor performance of the panchayats on revenue collectionof the panchayats on revenue collectionof the panchayats on revenue collectionof the panchayats on revenue collection.
• There should be correspondence between the benefits obtained from
public services and the revenue raised in order to promote autonomy,
accountability, ownership and a sense of participation. Poor
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performance of panchayats on revenue is mainly because of inadequate
tax assignment, less elastic nature of taxes, absence of supporting staff,
non-viable size of Gram Panchayats etc. Multiple channels of
transferring resources from the centre to the state and the local bodies
and the resulting parallel flow of funds have created problem.
• The tax mobilization effort by PRIs has weakened over the years and the
levy of taxes by PRIs has so far not been efficient, assessments are not
done periodically, rates of fee when imposed are low and not revised for
long. Minimum and maximum rates of tax are prescribed by the states
restricting the freedom to panchayats to levy taxes. Amongst the reasons
given for the general reluctance on the part of panchayats to levy taxes
are fear of incurring displeasure from the people, lack of necessary
administrative machinery to collect taxes and limited capacity to pay tax
in the villages, especially in flood affected and other disaster hit villages.
Streamlining the tax transfer systemStreamlining the tax transfer systemStreamlining the tax transfer systemStreamlining the tax transfer system.
• The 73rd Amendments left important matters such as implementation,
service delivery (including local capacity building) and transfer of
responsibilities and powers to rural local bodies at the discretion of the
state legislatures. Consequently, while expenditure responsibilities of
local bodies are extensively enhanced, there is no law to ensure a
corresponding assignment of funds to match the additional
responsibilities. The decisions as to which taxes, duties, tolls and fees
should be assigned to local governments and which should be shared by
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the state with them continue to be with the state legislatures. An
appropriately designed transfer system is needed to balance spending
needs with local resources.
Financial autonomyFinancial autonomyFinancial autonomyFinancial autonomy.
• PRIs need additional resources and financial autonomy to fulfill their
new functional obligations. Achieving a degree of financial autonomy is
vital to reap the full potential benefits of decentralization. An analysis of
fiscal and financial autonomy should be based on an examination of
devolution of funds, functions and functionaries. In order to become
financially more independent, rural bodies must be encouraged to raise
local resources for development before they receive grants from higher
governments. “The more dependent a PRI is on the citizens for financial
resources, the more likely it is to use scarce material resources to
promote human development and reduce poverty”.
• Financial autonomy means release of funds without any technical
Clarence or conditionality attached. Fiscal autonomy can be defined as
ratio of own income to total income.
• Simple form of tax autonomy is discretion to set tax rate. Own sources of
revenue in total expenditure is the key to autonomy, participation and
accountability.
• The taxes assigned to Gram Panchayat are not elastic or very productive.
The autonomy of PRIs in exercising them is very much restricted. There
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is need to make the taxes and non tax revenue of the PRIs more
productive and elastic through rationalizing the tax base, rates, tax
administration along with imparting greater autonomy to the PRIs. PRIs
should be made fiscally autonomous with atleast 40 to 50% of their
expenditure requirement on their own.
• Three measures for fiscal autonomy:
o The number of GPs that generate a surplus balance from the
current revenue and the magnitude thereof.
o Own sources of revenue of GPs and the financing of plan
expenditure.
o The number of GPs that cannot meet atleast selected basic
services from its resources.
• Kerala earmarked 35 – 40% of the state plan allocation and followed it
up by state wide decentralized plan campaign. More than 70% of rural
share of the plan allocation go to GPs with block and district panchayats
getting 15% each.
• The operation viability and financial strength of a local government is its
ability to generate surplus from the own source of revenue after meeting
the current revenue expenditure.
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Revenue raising power to PRIsRevenue raising power to PRIsRevenue raising power to PRIsRevenue raising power to PRIs.
• Although local revenue mobilization strengthens accountability, local
resources are often inadequate to carry out assigned functions. A
standard recommendation to enhance PRIs revenue is to provide them
with own revenue raising powers and to reduce their excessive
dependence on state and central governments. Apart from a better
design of grants from the state, financial autonomy of panchayats can be
further strengthened by assigning them powers to levy more of the
buoyant and income elastic sources to augment their own resources. The
general principles for local taxes include accountability and
transparency, linking of benefit to tax-price, stability, buoyancy and ease
of administration and compliance.
Problems in raising local taxProblems in raising local taxProblems in raising local taxProblems in raising local tax.
• There is a striking contrast between the assigned functional
responsibilities and tax powers of PRIs who moreover face several
problems in raising local tax revenue such as, narrow tax base, lack of
administrative machinery and staff trained in tax collection, lack of
guidelines to levy new taxes and unpopularity of certain taxes among
voters. As a result some local bodies do not impose and collect taxes that
they are authorized to. Where minimum and maximum rates have been
prescribed in the Panchayat Acts, there is a general tendency to impose
the minimum rate. The problem is compounded by low buoyancy of
own taxes.
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Correcting verticle andCorrecting verticle andCorrecting verticle andCorrecting verticle and horizontal imbalanceshorizontal imbalanceshorizontal imbalanceshorizontal imbalances.
• Fiscal decentralization refers to principles and practices concerning
expenditure responsibilities, revenue assignments and rectification of
vertical and horizontal imbalances with respect to different layers of
government.
• Inter governmental transfers should be based on the rational of
correcting vertical and horizontal imbalances, enhancing national
objectives at local level.
• While vertical imbalances refers to mis-matches betweens levels of
government in responsibility and resources, horizontal or inter
jurisdictional imbalances refers to the presence of territorial inequalities.
• Rectifying these imbalances is very important because of the disparities
in resource endowment, level of income of the residents, level of
development, fiscal disabilities and even social deprivation.
Decentralization depends on the fiscal empowerment of lower tier.
• Apart from its own revenue generation, additional funds can accrue to a
local body from grants, levy of new taxes and assignment / sharing of
specific existing or new state taxes. Intergovernmental transfers should
be based on the rationales of correcting vertical and horizontal
imbalances. One of the objectives of tax devolution is to equalize the
level of public services across regions. Equalization transfers for
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correcting horizontal impalances require measures of “need” and
“capacity”, explicit equalization mechanisms, sectoral strategies to guide
local expenditures, incentives for local budget management and a sound
local financial management system. A standard procedure or
equalization formula for tax devolution is to calculate the difference
between average taxable capacity and actual taxable capacity.
• Certain essential services such as provision of drinking water, rural
sanitation, lighting of public places, preventive health care and primary
education have come to be accepted as the core function of panchayats.
There should be application of equalization principles that a citizen
should be entitled to certain minimum standard civic services
irrespective of where he or she resides. Each local government must be
able to provide services at properly calculated charges and if there are
gaps due to factors beyond the control of the local bodies the higher
level of government should come to its aid.
IncentivesIncentivesIncentivesIncentives
• The low growth in revenue raised by panchayats underlines the need to
embody incentives for local resource generation. Incentives for
exploitation of the assigned fiscal base require that taxes should be
classified as obligatory in the relevant legislation. Incentives can be
provided only when actual collection has been done but there is no
routine reporting of tax collection by panchayats as in the case of central
and state levels.
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• Some of the taxes should be classified as obligatory in the relevant
legislation. This is by no means sufficient to ensure collection. However,
placing taxes in the obligatory class by itself is not sufficient, unless
revenues from obligatory levies are deemed to have been collected while
working out state local transfers.
Factors of limited revenue collecting capacity of local bodiesFactors of limited revenue collecting capacity of local bodiesFactors of limited revenue collecting capacity of local bodiesFactors of limited revenue collecting capacity of local bodies.
• Rates of the taxes are very low and they deserve to be substantially
revised upwards.
• Though the Gram Panchayats are given the responsibility of raising
revenue the taxes assigned to them have very limited revenue potential.
• Due to the poor financial position of the local bodies, state government
find it difficult to provide the necessary resources, financial and human,
to them.
• There is an urgent need to mobilize increasing volume of internal
resources by the local bodies to meet the growing demand of
development.
• The nature of some of the important state taxes does not permit states to
assign their physically productive taxes to the panchayats for their
exclusive use. Moreover, the capacity of the panchayat administering
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important state taxes is strictly limited which can be attributed to lack of
expertise in revenue administration at local level, inadequate or totally
lack of revenue staff, unviable spatial jurisdiction of panchayats, political
limitation to taxation in local democracy.
• Panchayats have not been able to exercise fully revenue power assigned
to them.
• Limited tax absorbing capacity of a significant number of local
households, the proximity between the tax payer and the tax authority
result in voluntary political patronage of the tax payer by the local
political elite.
• Some other factors of limited revenue collecting capacity of the local
bodies –
o Low level of awareness and knowledge among the elected
functionaries of panchayats regarding the need for local revenue
mobilization.
o Lack of clear modalities of revenue administration in local
governance.
o Inadequate access to secretarial support.
o Disproportionate cost in administering certain revenues.
• The existing statutory provisions have several tax and non tax resources
for being exploited by the panchayats. Many taxes of Gram Panchayats
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have very limited revenue potential. Certain highly productive state
taxes like sales tax, excise duties, motor vehicle tax, stamp and
registration fee is such that they cannot be assigned to panchayats as the
panchayats do not have efficiency to administer them. Increasing
revenue needs of the state do not permit any laxity in fully exploiting
the available public revenue.
Imperative needs for streamlining Panchayati Raj Finance :Imperative needs for streamlining Panchayati Raj Finance :Imperative needs for streamlining Panchayati Raj Finance :Imperative needs for streamlining Panchayati Raj Finance :
• It is very important to assess the taxable capacity of each PRI
jurisdiction, since there is a difference between revenues actually
collected and revenue potential.
• Local tax collection can be improved by improving administrative
capacity.
• Ways of improving collection without raising rates include –
o Correcting the method of value of tax rate.
o Charging differential rate for commercial and residential
property.
o Imposition of taxes on and ad-valoram basis.
• Additional funds can accrue to the local bodies from grants, levy of new
taxes and assignment, sharing of specific existing or new taxes.
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• Government has been making substantial investment on economic and
social sector in the rural areas. There is an imperative need to impose tax
on buildings, lands and users charges for the provision of civic services.
This should be made mandatory for the panchayats.
• Whatever tax and non tax items assigned to the panchayats, they must
be locally feasible, administrative simpler, physically productive and
economic to collect. It is very important to reassess the provisions of the
panchayat act so far as they relate to the fiscal domain of the panchayats.
• State government should evolve an appropriate mechanism to reward
the performing panchayats and panelize the indolent panchayats
through a system of incentives and dis-incentives. Incentive mechanism
should have criteria like
o Levy of optional taxes.
o Levy of taxes at the statutory permitted maximum rates.
• State may also develop appropriate mechanism for realistic reassessment
of the taxes of the panchayats periodically. In order to ensure financial
responsibility the panchayat which levy taxes and non taxes should also
be made responsible to collect them.
• There is an urgent imperative need to frame suitable rules for the
panchayats as regards the modest operandi of levying and collecting
revenues assigned to them by the state.
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• One important source which panchayats have so far failed to exploit is
the common property resource. Common property resources like lands
vested in the panchayats can be utilized by them for raising significant
local revenue.
• State may identify some of its own revenue particularly those having a
localized revenue base, and ensure transfer the proceed of such revenue
to the panchayats. Such taxes include land revenue, cesses there on,
entertainment tax, profession tax, mineral tax, stamp and registration fee
and entry tax.
• Panchayats should be assured, well ahead of the beginning of each year,
the minimum quantum of revenue that they are likely to receive during
the succeeding year. This facilitates realistic planning of their own
revenues.
As for grants in aid, there is an imperative need to make provisions relating
to grants in the panchayat act. Grants to panchayats must have statutory status.
Existing system does not satisfy the principles of predictability and certainty, as
financial fortunes of the panchayats are made contingent upon the position of
the state government.
