The institution of Panchayati Raj is not new to India. It
existed since earliest times. We get ample references about the Panchayats in
Manusmriti, Arthasastra and the Mahabharata. During the Muslim rule also the
system continued to operate unobstructed.
With the assumption of power by the British and the adoption of
policy of centralization, the Panchayats suffered a temporary setback. But soon
the British realised the value of this institution and the Decentralization
Commission recommended in its report in 1907.
“In ignoring the village as the primary unit of local self-
government, the government made the beginning with a false step. This scany
success hitherto made to introduce a system of rural self-government, is
largely due to the fact that we have not built from the bottom and hence it is
most desirable to constitute and develop village Panchayats for administration
of certain local affairs Dr. with the villages”.
However, the Government of India did not pay any heed to the
recommendations of the commission. The outbreak of the First World War gave a
further setback to the demand for revival of Panchayats.
With the introduction of the system of Dyarchy under the
Montague Chelmsford Reforms of 1919 the responsibility of local self-government
institutions was transferred to the ministers. These ministers enacted a set of
laws with a view to revive the Panchayati Raj institutions. But paucity of
funds stood in the way.
During the 1920′s Mahatma Gandhi made a strong plea for
introduction of self-government in the villages with a view to improve their
economy. He had pointed out that independence must begin at the bottom. Every
village should be a republic or a Panchayat having full Bran powers. The
greater the power of Panchayats, the better for the people. However, the
British Government did not pay any heed.
It was only in 1937 when the Congress Ministry was formed that
attention was paid to the establishment of the Gram Panchayats and their
reorganisation. However, before they could achieve anything substantial in this
direction, the British declared India as a Party to war without consulting the
popular ministries. This resulted in the resignation of the Congress
Ministries. These developments gave a severe blow to the movement for revival
of Panchayats.
Soon after World War II, the elections to the central and such;
provincial legislatures were held and the Congress was returned on the to
power. Once again, it paid attention to the issue of revival of Panchayats and
passed numerous Acts. When India became independent in 1947 perhaps one-third
of the villages of India had traditional Panchayats and their functioning was
not up to the mark.
The Congress Government made a determined effort to promote the
creation of Panchayats to make them effective units of local government.
Article 40 of the Constitution of 1950 declared: “The State shall take steps to
organise Village Panchayats and to CON endow them with such powers and
authority as may be necessary Anal’ to enable them to function as units of
Self-government”.
The aim was to foster democratic participation, to involve
villagers in the development effort and to ease the administrative burden on
the states. The subject of implementation of the Panchayati Raj was com placed
in the State List. In the initial years after gaining independence, no efforts
were made for the setting up of the Panchayati Raj.
The Community Development Programme was launched in October 1952
to seek people’s participation and involvement in the task of rural
reconstruction. The programme failed in its mission without an agency at the
village level. The Planning Commission, in the Second Five Year Plan,
recommended its review.
In January 1957, a team for the study of Community Projects and
National Extension Service, headed by Balwant Rai Mehta, was appointed. The
Committee observed “Admittedly, Emai one of the least successful aspects of the
C.D. (Community Development) and N.E.S. (National Extension Service) work is
its attempts to evoke popular initiative.
We have found that few of the local bodies at a level higher
than the Village Panchayat have shown any enthusiasm or interest in their work
and even the Panchayats have not come into the field to any appreciable extent.
An attempt has been made to harness local initiative through the
formation of adhoc bodies, mostly nominated personnel and invariably advisory
in character. These bodies have so far given indication of neither durable
strength nor the leadership necessary to provide the motive force for
continuing the improvement of economic and social condition in rural areas.
The Committee asserted, “So long as we do not discover create a
representative and democratic institution which will supply the local interest,
supervision and care necessary to ensure that expenditure of money upon local
object conforms with the needs and wishes of the locality, invest it with
adequate power and assign to it appropriate finances, we will never be able to
evoke local interest and excite local initiative in the field of development.”
The
major recommendations of Balwant Rai Mehta Committee on democratic
decentralization are as follows:
1. There should be a three-tier structure of local self-
government from the village to the district with the village at the bottom and
the district at the top with its intermediary link of institutions all
organically related to one another;
2. There should be genuine transfer of power and responsibility
to these institutions of local government;
3. Adequate resources should be transferred to these bodies to
enable them to discharge those responsibilities;
4. All programmes of social and economic development formulated
through the network of planning should be channelled through those
institutions;
5. The whole system of Panchayati Raj should facilitate further
devolution and dispersal of power, responsibilities and resources in the
future.
The Committee recommended that while the broad patterns and the
fundamentals of the PR institutions might be uniform, there should not be any
rigidity in the details of the pattern, in view of the vastness of the country
and the complexity of its problems. What really counts is the genuine transfer
of power to the people. If this is ensured, the form and pattern could vary
according to the conditions prevailing in different states.
The National Development Council affirmed the basic principles
underlying democratic decentralisation. In accordance with the recommendations
of the Committee, a number of states created three-tier system of rural local
self-government institutions, on the pattern of Andhra Pradesh and Rajasthan,
with some modifications.
Some of the states like Maharashtra introduced a system which
was drastically different from the system introduced in Andhra Pradesh and
Rajasthan. Some of the states created only one-tier viz. the Village Panchayats
(Jammu and Kashmir and Kerala), while others created a two-tier system
(Haryana).
Even in those states which created three-tier system there was
difference attached to each of them. Even the level at which the three- tier
system operates in different states differs. Despite these differences the
basic pattern of the system is largely based on the recommendations of the
Mehta Committee.
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