Executive Summary of Project Report

Democracy at Grassroots:

A Study of Gram Panchayats of Dist. Bilaspur (HP)

Submitted to:

University Grants Commission

New Delhi

Submitted By:

Dr. Nittam Chandel

nittam@gmail.com

09418055077

Associate Professor of Public Administration

Department of Public Administration

S.V. Government College Ghumarwin

Himachal Pradesh

2013

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Democracy at Grassroots:

A Study of Gram Panchayats of District Bilaspur (HP)

The tradition of Panchayats in India has a long history. In fact Panchayats

have been the backbone of the Indian villages since the recorded history.

Gandhiji, the father of the nation, in 1946 had aptly remarked that the Indian

Independence must begin at the bottom and every village ought to be a Republic

or Panchayat having powers. Gandhi ji’s dream has been translated into reality

with the introduction of the three tiers Panchayati Raj system to ensure people’s

participation in rural reconstruction. Panchayat literally means assembly of five

(panch) wise and respected elders chosen and accepted by the village

community. Panchayat or Panchayati Raj is a system of governance in which

Gram Panchayats are the basic units of administration. It has 3 levels: village,

block and district.

1. Gram Panchayat- At Village Level

2. Panchayat Samiti – At Block level

3. Zila Parishad – At Zila or Rural District Level

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The box below shows the evolution of institutions of local governance in India:-

1687 Royal Charter for the creation of Madras Municipal body

1842 Act X to provide first formal measure of municipal bodies

1857 The aftermath of Mutiny saw severe financial stress. Fiscal decentralization was considered one ofthe solutions.

1870 Lord Mayo’s scheme of fiscal and administration devolution. Enactment of Bengal Chowkidari Act.

1882 Lord Ripon’s Resolution on Local Self-Government.

1907 The Royal Commission on Decentralization was constituted.

1948 Debates between Gandhi and Ambedkar on Gram Swaraj, (self-rule)

1957 Balwantray Mehta Commission –Recommended Panchayat structure at district, block and villagelevels, elected bodies for 5 year, devolution of powers to Panchayats. Post of Block Development Officer(BDO) was created.

1963 K. Santhanam Committee – recommended limited revenue raising powers to Panchayats toraise revenue and setting up of State Panchayati Raj finance Corporations.

1978 Ashok Mehta Committee –Recommended that the District serve as the administrative unit inthe Panchayat structure and two tier Panchayats be created at district and block levels.

1985 G.V.K. Rao Committee –Recommended that the block development office (BDO) should bestrengthened to assume broad responsibility for planning, implementing and monitoring rural developmentprogrammes.

1986 L.M. Singhvi Committee – recommended that local self-government should be constitutionallyenshrined, and the Gram Sabha (the village assembly) should be the base of decentralized democracy.

1993 The 73rd Amendment to the Indian Constitution – Panchayats at district, block and village levelswas created through Constitution. Part IX for Panchayats was inserted in the Constitution with 11thschedule that enumerated 29 matters for Panchayats.

1996 PeSA– Powers of self-government were extended to tribal communities in ‘fifth Schedule’ areas.

2004 Union Ministry of Panchayati Raj was created.

2009 Thirteenth finance Commission recommended share of Panchayats in the Union Revenue DivisiblePool.

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Panchayati Raj in Himachal Pradesh

Panchayati Raj system in Himachal Pradesh was established in a statutory

form and 466 Gram Panchayats were established in the year under the provisions

of the Himachal Pradesh Panchayati Raj Act, 1952 in the year 1954. Only 280

Gram Panchayats existed prior to the enactment of the Himachal Pradesh

Panchayat Raj Act, 1952. However, after the enactment 1954 and the number of

Gram Panchayats was increased to 638 during the year 1962. On 1st November,

1966, the hilly areas of Punjab were merged in this State and consequently the

number of Gram Panchayats rose to 1695. In the merged area, a three tier

Panchayati Raj system was in existence under the provisions of Punjab

Panchayat Samiti and Zila Parishad Act, whereas two tier systems was prevalent

in this State. With a view to bring uniformity in the Panchayati Raj system of the

old and the newly merged areas, the Himachal Pradesh Panchayati Raj Act, 1968

was enacted on 15th November, 1970 in this State and the two tier

Panchayati Raj system was established throughout the State. Besides this the

Nayaya Panchayats were also in existence in this State for discharging judicial

functions, but during the year 1977 the Nayaya Panchayats were abolished and

the judicial functions were transferred to the Gram Panchayats. After the

enactment of the said Act in the year 1970 the existing Gram Sabhas were

reorganized from time to time and new Gram Sabhas/Gram Panchayats were

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established. At present there are 3243 Gram Sabhas, 75 Panchayat Samitis and

12 Zila Parishads constituted in the State.

Structure of Panchayati Raj in Himachal Pradesh:

1. Gram Sabha/ Up-Gram Sabha

Gram Sabha which forms the core of the democratic decentralization

needs to be given utmost attention. The state government has already taken

steps to strengthen the institution of Gram Sabha. The Himachal Pradesh

Panchayati Raj Act has also been amended and under the amended provisions

has been made to constitute an Up-Gram Sabha for each ward of the Gram

Sabha and all members of the Gram Sabha residing in the area of the ward shall

be the members of Up-Gram Sabha.

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2. Gram Panchayat

Gram Panchayats in our state are constituted for a village or group of

villages having population ranging from 1000 to 5000. In Scheduled and other far

flung areas Gram Panchayats are also constituted for the population of less than

1000. The numbers of members of Gram Panchayat are determined on the basis

of population which ranges from 5 to 13 excluding Pradhan and Up-Pradhan.

Pradhan, Up-Pradhan and members of Gram Panchayats are elected directly by

the voters of the Panchayat area. The member of the Panchayat Samiti

representing a part or whole of the Gram Sabha area are also the member of

the concerned Gram Panchayat(s) and they have the got right to vote.

3. Panchayat Samiti

Intermediate body of the three-tier Panchayati Raj system in the State is

called Panchayat Samiti. This institution is co-terminus with the development

blocks. Members of Panchayat Samiti are elected directly whereas the

Chairpersons and Vice-Chairperson are elected indirectly by the elected

members. The numbers of elected members of Panchayat Samiti are determined

by the Government at the rate of one member for every 3500 population or part

thereof subject to a minimum of 15 members. There is no separate office of

Panchayat Samiti but office of the Block Development Officer is functioning as

Samiti office. Block Development Officer has been designated as the Executive

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Officer-cum-Secretary of the Panchayat Samiti. The member of the Zila Parishad,

representing the ward which comprises wholly or partly the Panchayat Samiti

area are also be the member of Panchayat Samiti.

4. Zila Parishad

This is uppermost body of the Panchayati Raj System. In our state Zila

Parishad were constituted for the first time after the enactment of new law

relating to Panchayati Raj system consequent upon 73rd Constitutional

Amendment. Presently there are 12 Zila Parishad in our State. The members of

Zila Parishad are elected directly by the people however the Chairpersons and

Vice-Chairperson are elected by the elected members indirectly. Elected members

of Zila Parishad are determined by the State Government at the rate on one

member for every 25000 populations or part thereof subject to a minimum of 10

members. The members of Lok-Sabha, Members of State Legislative Assembly

representing a part or whole of the District and the members of Council of States

where they are registered as voters and the Chairpersons of the Panchayat

Samiti of the District are also the members of Zila Parishad.

Provisions of PESA in the Scheduled Areas: Status of Panchayats in the

Schedule (Tribal) Area in Himachal Pradesh: Whole of the districts of

Kinnaur and Lahaul-Spiti and Development Blocks, namely Pangi and Bharmour

of Chamba District comprise the Schedule-V area in this State.

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There are 2 Zila Parishads, namely Kinnaur and Lahaul-Spiti and a part of

Chamba District of Zila Parishad Chamba, 7 Panchayat Samitis namely Kalpa,

Nichar, Pooh, Lahaul, Spiti, Bharmour, Pangi and 151Gram Panchayats

constituted in this State in the Scheduled-V areas.

Role of Panchayats in Himachal Pradesh

Panchayats in Himachal has been performing a number of activities aimed

at socio-economic development through participation of the public. According to

‘The Himachal Pradesh Panchayati Raj Act, 1994’ Panchayats are performing the

following functions. These functions have been enumerated in schedule -I and

schedule –II of the act. These are:

Schedule -I

1. Sanitation, conservancy and prevention and abatement of

nuisance;

2. Construction, repair and maintenance of public wells, ponds, tanks and

conventional/traditional sources of water;

3. Construction and maintenance of village paths, mule roads and rural

roads, culverts, bridges and bunds which are not constructed or

maintained by the Public Works Departments;

4. Construction, maintenance and cleaning of public streets, latrines, drains,

tanks, wells and other public places;

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5. Regulating the construction of buildings, latrines, urinals, drains and

water closets;

6. Collection and disposal of refuse and earmarking places for dumping of

refuse;

7. Filling of disused wells, in sanitary ponds, pools, ditches and pits and

conversion of step wells into sanitary wells;

8. Lighting of village streets and other public places;

9. Removing of obstructions and projections in public streets or places and

in sites not being private property or which are open to use of public,

whether such sites are vested in the Panchayat or belong to the State

Government;

10.Management of public land and management and development of

village site, grazing lands and other lands vested in or under the control of

the Gram Panchayat;

11.Maintenance of ancient and historical monuments other than those

declared by or under law made by Parliament to be of national

importance;

12.Maintenance of Gram Panchayat property;

13.Plantation and preservation of Panchayat Forests;

14.Regulating places for disposal of dead bodies, carcasses and other

offensive matters;

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15.Disposal of unclaimed corpuses and carcasses;

16.Regulation of sale and preservation of meat;

17.Establishment and management of cattle ponds and maintenance of

records relating to cattle;

18.Establishment, management and regulation of markets and fairs; and

19.Maintenance of records of births, deaths and marriages.

Schedule-II

1. Agriculture, including agricultural extension.

2. Land improvement and soil conservation.

3. Minor irrigation, water management and watershed development.

4. Animal husbandry, dairying and poultry.

5. Fisheries.

6. Social forestry and farm forestry.

7. Minor forest produce.

8. Small scale industries, including food processing industries.

9. Khadi Village and Cottage Industries.

10.Rural housing.

11.Drinking water.

12.Fuel and fodder.

13.Roads, culverts, bridges, ferries, waterways and other means of

communication.

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14.Rural electrification, including distribution of electricity.

15.Non-conventional energy sources.

16.Poverty alleviation programme.

17.Education, including primary and secondary schools.

18.Technical training and vocational education.

19.Adult and non-formal education.

20.Libraries.

21.Cultural activities.

22.Markets and fairs.

23.Health and sanitation, including hospitals, primary health centers and

dispensaries.

24.Family welfare.

25.Women and child development.

26.Social welfare, including welfare of the handicapped and mentally

retarded.

27.Welfare of the weaker sections, and in particular of the Scheduled

Castes and Scheduled Tribes.

28.Public distribution system.

29.Maintenance of community assets.

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The Study

The present study was carried out to examine role of gram Panchayat in

the rural development in Bilaspur district of Himachal Pradesh. At present there

are three community blocks i.e. Sadar, Ghumarwin and Jhandutta. The district

has 151 Panchayat in total.

Table showing Panchayats in District Bilaspur

Name of the DevelopmentBlock.

Number of GramPanchayats.

1. Sadar. 63

2. Jhandutta. 48

3. Ghumarwin. 40

Total 151

Methodology

Primary Data

Primary data was collected with the help of questionnaires. Data from

members of Gram Sabha was collected with the help of questionnaire-1 and from

elected representatives and officials of gram Panchayat has been collected with

the help of questionnaire-2. The questionnaires were administered to the

selected sample.

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Secondary Data

Secondary data pertaining to democracy at grass root level -democratic

institutions and their role in development was collected from published materials

like books, journals, and reports of various committees, periodicals and

newspapers and different websites.

Sample

A sample of 5 percent members of gram Sabha i.e. 57 members of Gram

Sabha of Hirapur,145 from Patta and 84 members of Gram Sabha of Gram

Panchayat Kandrour area, were drawn to the present study using Convenience

Sampling Method. The data collected has been transformed in the tabular form.

Finally, percentile method was employed to evaluate and interpret the data. In

order to carry out the present research, sample was drawn as per the following

schemes:-

Table 1.5: Sample Scheme in the Present Study

Jhandutta (Block) Ghumarwin (Block) Sadar (Block)

Gram PanchayatHirapur

Gram PanchayatPatta

Gram PanchayatKandrour

Elected members andOfficialsN= 10

Elected members and OfficialsN= 10

Elected members andOfficialsN= 10

Member of Gram Sabha-(Five percent of totalstrength of gram sabha)N=57

Member of Gram Sabha(Five percent of total strengthof gram sabha)N=145

Member of Gram Sabha-(Five percent of total strengthof gram sabha)N=84

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Objective(s) of the Study

According to ‘The Himachal Pradesh Panchayati Raj Act, 1994’ Gram

Panchayats have been assigned various functions for the rural transformation in

the state. The socio-economic progress of the people as well as rural Himachal

Pradesh, largely, depends upon the effective people’s participation, good

governance, and effective public delivery system by these institutions of rural

local governance. Therefore, keeping in view all the aspects, some objectives

were laid down to carry out the research.

The objectives of the present study were as follows:

1. To examine peoples’ participation at grass root level.

2. To study the ethical behavior of ‘Elected Representatives and Officials’ of

the Gram Panchayats.

3. To study the role of Gram Panchayats in ‘Governance at Grass Root Level’

4. To suggest measures for the effective people’s participation at grass root

level.

5. To suggests reforms in the present structural arrangement of Panchayats

Data Collection Tools

The data from the selected sample was collected with the help of

questionnaire. Two questionnaires were constructed. The questionnaire-1 was

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administered to Members of the Gram Sabha where as questionnaire-2 was

administered to elected members and officials of Gram Panchayat. The list of

members of Gram Sabha was procured from the website of Himachal

Government.

Chapters

The whole research has been divided into the following chapters:-

1. Introduction

2. Democracy at Grass Root Level: Role of Gram Sabha

3. Ethical Behavior of Elected Representatives and Officials

4. Governance at Grass Root Level

5. Reforms in Panchayati Raj Institutions in Himachal Pradesh

(Conclusions and Recommendations)

Limitations of the Present Study

Some of the limitations of the present study were:

1. Some reports and documents were not available which would have been

useful for this study.

2. The financial administration of Panchayats had not been included in the

study.

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3. People were reluctant in sharing their opinion with the researcher.

Reforms in Panchayati Raj Institutions in Himachal Pradesh

(Conclusions and Recommendations)

1. Gram sabha

The 73rd Constitutional amendment (Art.243 A) envisages the Gram Sabha

as foundation of Panchayati raj System in the country. It is a body consisting of

person registered in the electoral rolls relating to village comprised within the

area of Panchayat at the village level. In fact, anyone who is 18 years old or

more living in the rural area has the right to become a member of the Gram

Sabha.

In the present study functioning of gram sabha has been studied. The

functioning of Gram Sabha throughout the State substantiates that there is a

wide gap between theory and practice. It has been observed during the

investigation that there was lack of participation in the general meeting

commonly known as general house of gram sabha. The crux is that there was

deficient of people’s participation at grass root level.

The main reason for lack of participation was that most of the programmes

which are being executed through these institutions are clientele - oriented and

all or most of the benefits are being enjoyed by some groups or by particular

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castes. Those who have nothing to get personal benefits from these institutions

skip away from the meetings. Further, representatives and members of gram

sabha apprised that there was spatial problem for sitting in the ‘Panchayat Ghar’

which also results in poor attendance. Keeping in view of all the facts in

consideration, following suggestion are made to enhance the participation at

local level vital for the success of these institutions as well participatory

democracy:

i) Selection of beneficiary should be done carefully and the whole process

should be recorded.

ii) Benefits of programmes like MNREGA, Indira Aawas Yojana and Rajiv

Aawas Yojana should be on economic consideration i.e. who are actually poor

and not on caste consideration.

iii) Special ‘Panchayat Darbaars’ be organized in which officials from

different department like Agriculture, horticulture sericulture etc. be invited so

that people can be educated about the programmes and schemes of the

government. Further, Programmes like ‘Mahine Mein Ek Baar, Panchayat,

Aapke Ghar Dwar’ should be organized i.e. meetings of gram Panchayats

should be organized ward wise to ensure greater people’s participation in

developmental activities.

iv) Community Centre cum Multipurpose hall should be constructed in

each Panchayat so that people can attend the meetings in bad weather also.

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v) Development-cum-Monitoring Committee at each ward level should

be constituted. The proposed committee should be headed by ward member and

some eminent people of the area with clean image should be included in this

committee.

vi) Gram Sabha Meeting: Many time government orders to convene

special gram sabha meeting to take some decision on the some issue referred to

these unscheduled meetings are some time organized at a time when most of the

people are busy in their work and the women are busy with their house-hold

chores. This hampers effective participation in the deliberations of the Gram

Sabha. It is suggested that participation to the meetings of Gram Sabha be made

compulsory to those people who are direct beneficiary of government

programmes. Further teachers’, retired persons and eminent citizens of the

concerned Panchayat should be invited as special guest. Their vast knowledge

and experience can be utilized for the formulation of future action plan of the

Panchayat.

2. Gram Panchayat- Organization

There were some structural deformities in the organization of Gram

Panchayats which hampers the effectiveness of these institutions. In order to

make organization more efficient, following suggestions are made:

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i) Organization of Panchayats: Functioning of Gram Panchayats

should be carried out through more and more participation of people. In this

context it is suggested that committees like Development Committee, Agricultural

Committee and other adhoc committees where governance of Panchayats is not

so effective be constituted.

ii) Appointment of Personnel: The present three tier system of

Panchayati raj has been established to bring socio-economic development of the

rural areas in Himachal Pradesh. These institutions have been assigned various

important functions like execution of MNREGA, Food Security programmes and

also other functions as enshrined in the schedule –I and II of Himachal Pradesh

Panchayati Raj Act. It is revealed from the present study that there due to lack of

personnel in the Panchayats cannot functions effectively and efficiently. It is,

therefore, suggested that following officials be appointed in these Panchayats

immediately:

a. Agriculture Extension Assistant

b. Horticulture Extension Assistant

c. Veterinary Extension Assistant

The above mentioned personnel should be appointed from within the

gram sabha and the minimum qualification(s) should be at least graduation/ or

technical diploma in their respective fields. These personnel should visits every

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ward and upward of Gram Panchayat. There role should be defined to educate

people about the schemes and programmes of their respective department.

iii) Planning Article 243G empowers Panchayats to function as

institutions of self- government for the purpose of preparing plans and their

execution for the various matters contained in schedule -I and schedule – II of

The Himachal Pradesh Panchayati Raj Act, 1994, at the Panchayat level. Every

Panchayats prepare Plan (work self) and submit the same to the government. It

has been observed and apprised by various elected representatives that their

work self is not approved by the government well in time which results in delay

in the execution of development activities. In this context it is suggested that

every Panchayat should make Comprehensive Perspective Plan (CPP) and Short

Term Plan (STP) for their area along with Programme Implementation Plan

(PIP) and government should approve the same with three to four months so

that elected representatives can deliver their best.

3. Behavior of Members

It has been revealed from the present study that there is “ethical

deficit” among representatives and officials. A “different type” of culture has

established at the Panchayat level which has depleted the very effectiveness and

efficiency of these institutions. The attitudes of representatives and officials in

relation to a variety of agent i.e. political leaders, colleagues, local populations

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and elected representatives are different. Today, ethics is a common concern and

also a moral problem in democratic country like India. Therefore, it is appropriate

time to bring innovative changes in the functioning of these institutions. It is

important that elected representatives and officials be educated through

orientation training programmes about the noble cause objectives and functions

of different department. It is with the help of effective training programmes that

we can inculcate values like serviceability, honesty, commitment for development

and upliftment of poor, neutrality and impartiality in the elected representatives

and officials of the Panchayats.

4. Good Governance

It was also revealed from the present study that Gram Panchayats lack in

effective governance. Government of Himachal Pradesh have entrusted ‘powers,

functions and responsibilities’ upon the Panchayati Raj Institutions in Himachal

Pradesh. Panchayats make socio-economic plans over the assigned functions and

responsibilities. However, these institutions are unable to bring desired socio-

economic transformation in the rural society. The devolution index prepared by

IIPA shows that PRIs in Himachal Pradesh are at fifteenth (15th) place. During

the investigation it has been observed that Panchayats lacks in good governance.

In order to improve the governance of Gram Panchayats following measures be

taken immediately:

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a) Digitization of Parivar Register and linking with Aadhaar: Parivar

Register is an important document in the Gram Panchayat .It contains the details

of the families in the Gram Panchayats. All births; deaths etc are entered in the

Parivar Register. It should be digitalized and be made online and should be

attached with Aadhaar. By making Parivar Register online a host of information

will be available to the public , which can be accessed by the citizen for their

use and also by the Government Departments for making its use for targeting

different developmental programs.

b) Right to Information: Gram Panchayats should display all vital

information as per Right to Information Act 2005, pertaining to development

projects, income and expenditure etc in the Panchayat Offices Second, all

relevant records should be open to inspection, and third, members of public

should also be able to obtain photocopies of documents pertaining to

development projects as also matters of general public interest by paying a

nominal charge. Particularly, all bills, muster rolls, vouchers, estimates and

measurement books, also the criterion and procedure for selection of

beneficiaries, and list of beneficiaries should not only be available for inspection,

but photocopies of these relevant documents should be given on demand from a

convenient place, such as Block or Tehsil Office. In case photocopying machines

are not already in position in the office, loans could be given from Banks to

educated unemployed under various schemes.

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c) Open Government Data: There is no clear cut mechanism to keep

Panchayat record. In fact records are many times found missing. This hampers

transparency of these institutions. In fact, in recent time governments all over

the world are taking various initiatives to make administration more transparent,

collaborative and people- oriented. One of such initiative is Open Government

Data. Open Government Data is Information and data collected, produced and

reproduced by government or government controlled agencies and is made

available free for anyone to use, re-use and re-distribute. In fact, it plays an

important role in bringing transparency and accountability in the government

system. International Organizations like United Nation, World Bank and IMF etc.

are stressing member nations to bring transparency in their administrative

system by adopting modern technology in their administrative system. The

openness strengthens our democracy and promotes a more efficient and

effective government. A government that is transparent is more accountable to

citizens. A government that is participatory enhances government effectiveness

and improves government decision-making. And a government that is

collaborative engages all citizens in governing.

Therefore, open data and e-government initiatives will transform delivery

of public services, renew local democracy and promote local economic vitality.

The success of these PRIs largely depends upon the collaboration and public

engagement. Therefore, it is expected from these institutions to bring more

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transparency and openness in their working particularly in the selection criterions

of beneficiaries for various government schemes like IRDP, MNREGA, NHM, and

Right to Education, Indira Aawaas, Rajiv Aawaas and National Food Security

Programmes. PRIs in Himachal Pradesh can become more transparent,

collaborative and effective if they bring complete openness and share data

relating to their functioning on their websites. The websites of each Panchayat

should be linked to a District Panchayat Portal. Each District Panchayat Portal

then should be linked to State Panchayat Portal. Every information and data

should be made available, in all formats, on these sites.

d) e- Governance The “e” in e-Governance stands for ‘electronic’. Thus, e-

Governance is basically associated with carrying out the functions and achieving

the results of governance through the utilization of what has today come to be

known as ICT (Information and Communications Technology). e- Mapping of

Agricultural land, government land and property, rural roads and culverts etc. in

every Panchayat should be done. The record so obtained can be used in effective

planning and utilization of resources. Further e- tagging of completed project like

roads and buildings and other infrastructure within the Panchayats should be

done. This mechanism will stop the duplication of funds and also check the

corruption.

e) Adopting Modern Technology for Panchayats Management: Better

technology, faster communications and open access to information are important

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tools that can greatly improve the quality of PRI management. ICT have been

recognized powerful instruments for realizing the goals of planned development

in efficient and less costly ways. Comprehensive strategies need to be framed to

give an impetus to the e-governance initiatives, which will encourage more

transparency in Panchayat Administration. It is suggested that Panchayat in the

state should be computerized and a Data Bank of every Panchayat be formed at

each district level. This will facilitate in establishing e- governance at the local

level. Technology can also be used in targeted public distribution system (TPDS)

i.e. application of technology, such as the unique identity card (Aadhaar Card)

and install Global Positioning Systems (GPS) to check the leakage in the targeted

public distribution system (TPDS). Further, Panchayats should formulate citizen

charters so and they can be involved at every step in the effective governance of

these institutions.

5. Capacity Building

It has been observed in the present study that people and elected

representatives are unaware of many government schemes and programmes.

Due to which people cannot take benefits of these programmes. Hence, it is

obligatory to train people as well elected representatives about the functioning of

Panchayat system and government schemes and programmes.

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The training of officials and non-officials involved in the rural development

activities is one of the objectives and tested tools for improvement of

performance and up-gradation of knowledge and skill. Further, planning,

implementation and monitoring of various poverty alleviation programmes are

very challenging task which calls for an effective government machinery as well

as non-government functionaries. The Panchayati Raj Institutions are being

rejuvenated as per 73rd Constitution Amendment Act, 1992 under which three-

tier Panchayati Raj bodies has been empowered to discharge the function

relating to development activities and financial managements at grass root level.

Thus, elected representatives and officials should be trained with required skills

and knowledge to perform their constitutional obligations. Further some training

modules should be framed to educate members of gram sabha because majority

of people are unaware of government schemes and programmes. In this

connection it is suggested that training centre should be establishes in

Government Colleges where people as well as elected representatives and

officials can be trained by eminent academicians, bureaucrats and other resource

persons.

6. Miscellaneous

a) Honorarium: Honorarium to elected members should be enhanced and

at least 50 percent enhancement to the existing scheme should be made.

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b) Local Area Development Scheme: The flow of funds for all public

development schemes in rural areas should be exclusively routed through Panchayats.

Local Area Development Authorities, Regional Development Boards and other

organization having similar functions should immediately be wound up and their

functions and assets transferred to the appropriate level of the Panchayat. The MPLAD

and MLALAD should be linked to Panchayats.

c) Elections on Party Symbols: In order to reduce the strength of

candidates in election, it is suggested that elections to PRIs body should be done

on party symbols and elections be carried out through Electronic Voting

Machines.

f) Social audit system: It needs to be institutionalized in order to

improving local service delivery and ensuring compliance with laws and

regulations. Gram Sabha can take important part in this concern, Non-

Governmental Organizations (NGOs), the Community Based Organizations (CBOs)

and the Civil Society Organizations (CSOs) should come forward to mobilize the

local community in undertaking social audit.

g) Accountability: The lack of transparency and dominance of

political biasness that has been associated with the Panchayati Raj

administration since independence, besides bureaucratic complexities and

procedures make it difficult for rural population as well as civil society to

navigate the system for timely and quality delivery of services. The

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Panchayati Raj system should be managed in a manner which is open,

accountable, equitable and responsive to people’s need.

h) Corruption: Corruption is singled out as the most important cause for the

ineffective functioning of these institutions. Control which is exercised by Block

Level officials over the village Panchayats has not only buttressed corruption, but

it has led to pessimism that villagers at their own level cannot change and

improve performance because of heavy dependence on officials. The present

system is, therefore, seen as to have actually reinforced dominance and unequal

access to power, besides rendering the villagers helpless and alienated.

The Gram Panchayat Pradhan has to spend extraordinary amount of time

visiting Block Offices. There are also instances of harassment by Block level

officials. Systems which require Gram Panchayat Pradhan to approach Block

office for funds and/or technical approval need to be drastically changed. Village

bodies should be able to spend funds on their own without having to take

technical approval from government officials.

To ensure that public servants behave as public servants, and this includes

all of them namely the political administrators, the civil servants, members of

judiciary and the elected representatives of the people, they will have to be

subjected to full accountability not only for misfeasance but also for nonfeasance.

And this will have to be ensured strictly, even ruthlessly. Some of the pillars of

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democracy lack accountability while they seek accountability of others. This will

have to be rationalized.

i) Election Reforms: Reforming of elections at all levels is an issue of

national importance. For PRIs in Himachal the important areas of attention

and action in this context are:-

i. Criminals should not be allowed to stand for PRI elections and those

convicted should be removed if already elected.

ii. Declaration of assets of the self and family should be made compulsory for

candidates.

iii. Those people who have at any time encroached upon the government

land should be barred from contesting election in PRIs. Every candidate

shall furnish above information contained in sub para i-iii of para 16 on the

oath from the notary. The controlling officer of Panchayats in the District

shall take action on the complaint received or he shall take suo-motto

action on knowing from published document that any of the above

mentioned information(s) has been willfully concealed by the members.

The controlling officer shall decide such matter within one month.

iv. The Right to Reject should be allowed and for this purpose suitable rules

be framed.

The role of Panchayati raj institutions in the country and in all States is

expanding. It will continue to do so in the future, too. Unless these institutions

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empowered and participatory decentralization is promoted with political and

administrative conviction and commitment and concretized at grass root level,

unless peoples’ institutions are restored, revitalized and strengthened structurally

and functionally, these bodies will remain disempowered and the task of

inculcation of full sense of belonging to citizens, of removing inequities and

poverty, and of reaching economic and social benefits to the common man will

largely remain unachieved.

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