An Overview of
Panchayati Raj in Orissa
Independence must begin at the bottom. Thus, every village will be a republic or
Panchayat having full powers. It follows,
therefore, that every village has to be self-
sustained and capable of managing its affairs….
….. We are unleashing or attempting to
unleash the greatest latent powers of the people by giving an
authority to Panchayati Raj.
Why Panchayati Raj…. Promote People’s Participation in Rural Development Promote People’s Participation in Rural Development
programmes;programmes; Provide Responsive Administration based on the concept of Provide Responsive Administration based on the concept of
‘Democratic Decentralization’;‘Democratic Decentralization’; Act as a medium of Social and Political change;Act as a medium of Social and Political change; Facilitating direct, representative and participative democracy Facilitating direct, representative and participative democracy
and Social Mobilization at local levels;and Social Mobilization at local levels; Prepare Plans for Development and assist in their Prepare Plans for Development and assist in their
implementation.implementation. Representations for weaker sectionsRepresentations for weaker sections Gram Sabha / Palli Sabha – Direct DemocracyGram Sabha / Palli Sabha – Direct Democracy
Orissa : PRIs at a GlanceOrissa : PRIs at a Glance
Constitutional mandate – Constitutional mandate – PRIs to work for Economic PRIs to work for Economic Development & Social JusticeDevelopment & Social Justice
51972 Villages, 6234 GPs, 314 PSs, 30 ZPs with 51972 Villages, 6234 GPs, 314 PSs, 30 ZPs with 100862 Elected Representatives.100862 Elected Representatives.
22ndnd executive leader post in all 3-tier PRIs for women executive leader post in all 3-tier PRIs for women Election as per PESA in 2007 with PRIs at all levels Election as per PESA in 2007 with PRIs at all levels
headed by STs in 1941 GPs, 120 PSs & 13ZPsheaded by STs in 1941 GPs, 120 PSs & 13ZPs 21 subjects of 11 departments transferred to PRIs as per 21 subjects of 11 departments transferred to PRIs as per
7373rdrd Amendment Amendment
Growth of 3-tier PRIs : Orissa
YearYear GPGP PSPS ZPZP
1961-621961-62 23502350 214214 1313
1966-671966-67 38263826 307307 1313
1983-841983-84 43914391 314314 --
1991-921991-92 52635263 314314 --
1997-981997-98 52635263 314314 3030
2002-032002-03 62346234 314314 3030
Journey of Panchayati Raj Journey of Panchayati Raj
OGP Act OGP Act -- 19481948 CD ProgrammeCD Programme -- 19521952 NESNES -- 19531953 BRM Comm.BRM Comm. -- 19571957 3-tier PRIs3-tier PRIs -- 19591959
(OGP Act, 1959, OPS Act, 1959, OZP Act,1961)(OGP Act, 1959, OPS Act, 1959, OZP Act,1961)
Intro. of 3-tier PRIsIntro. of 3-tier PRIs -- 1961 – 671961 – 67 Dissolution of ZPDissolution of ZP -- 19671967 Cont.. of 2-tier PRIsCont.. of 2-tier PRIs -- till 1990till 1990 Intro. of 3-tier PRIsIntro. of 3-tier PRIs -- 19901990
(Resv. of Women)(Resv. of Women) Election to 3-tier PRIsElection to 3-tier PRIs -- 19971997
(73(73rdrd Const. Amendment & PESA) Const. Amendment & PESA)
Conduct of election as per PESAConduct of election as per PESA 20022002 Empowerment of PRIs …….,,,,,,,2002 and 2007 Empowerment of PRIs …….,,,,,,,2002 and 2007
electionelection
Profile of PRI Elected Reps.Profile of PRI Elected Reps.
ZPZP -- 854 854
PSPS -- 6227 6227
GPGP -- 9378693786
TotalTotal :: 1,00,8671,00,867
N.B. Women (33%) – 36,084N.B. Women (33%) – 36,084
Panchayati Raj..A Pro-Poor, Pro-PRI Endeavour……
Creating a culture of Participatory development and Solution at Creating a culture of Participatory development and Solution at Community level through its programmes & structure… Community level through its programmes & structure…
Changing Rural lives……Poverty Alleviation programsChanging Rural lives……Poverty Alleviation programs MGNREGA-SGSY-IAY-BRGF-TRIPTIMGNREGA-SGSY-IAY-BRGF-TRIPTI
Facilitating Basic servicesFacilitating Basic services FCA-KL Grants-GGY-MO-KUDIAFCA-KL Grants-GGY-MO-KUDIA
Mainstreaming SHGs into Mission Shakti & assist in marketing Mainstreaming SHGs into Mission Shakti & assist in marketing thro ORMASthro ORMAS
Capacity Building of PRIs / PROs - SIRD Capacity Building of PRIs / PROs - SIRD Ensuring transparency through E-Governance and Social Audit Ensuring transparency through E-Governance and Social Audit Bringing in Fiscal Discipline through PRIASOFT, PAMIS, BETAN.Bringing in Fiscal Discipline through PRIASOFT, PAMIS, BETAN.
Institutional Framework of DecentralizationInstitutional Framework of Decentralization
Palli SabhaPalli Sabha Gram SabhaGram Sabha Gram PanchayatGram Panchayat Panchayat SamitiPanchayat SamitiStanding CommitteesStanding CommitteesDRDADRDADistrict Planning CommitteeDistrict Planning Committee Zilla ParishadZilla Parishad Standing CommitteeStanding Committee State Finance CommissionState Finance CommissionState Election CommissionState Election Commission
LEGAL FRAMEWORKLEGAL FRAMEWORK
Orissa GP Act – 1964Orissa GP Act – 1964 Orissa PS Act – 1959Orissa PS Act – 1959 Orissa ZP Act – 1991Orissa ZP Act – 1991
Amended – Spirit & Mandate Amended – Spirit & Mandate of 73of 73rdrd Const. Amendment & Const. Amendment & PESA Act, 1996PESA Act, 1996
Decentralised Decision making & Planning Decentralised Decision making & Planning Structure for Pro-poor Development in Structure for Pro-poor Development in
OdishaOdishaZilla Parishad
Panchayat Samiti
Gram Panchayat
Gram Sabha
Palli Sabha
Convergence Mode(Self Employment & Wage Employment Prog.)
Zilla Parishad
Panchayat Samiti
Gram Panchayat
Gram Sabha
Palli Sabha
Convergence Mode(Self Employment & Wage Employment Prog.)
Representative Democracy
Representative Democracy
Participative Democracy
Participative Democracy
General DevolutionGeneral Devolution
Officials “accountable”Officials “accountable”
Place plan & Scheme for approvalPlace plan & Scheme for approval
Can ‘visit’ officesCan ‘visit’ offices
Call for report and ensure their Call for report and ensure their presence in the meetingspresence in the meetings
Write about to HoD/Govt.Write about to HoD/Govt.
Casual Leave to head of officeCasual Leave to head of office
Executive officersExecutive officers Collector : ZPCollector : ZP BDO : PSBDO : PS EO : GPEO : GP (VLW/VAW) (VLW/VAW)
FunctionFunction
• Gram Panchayats, Panchayat Samities and Zilla Parishads given statutory powers under the respective Acts and Rules.
• Gram Sabha and Palli Sabha given statutory recognition.
• Gram Sabha given statutory powers for selections of beneficiaries under Poverty Alleviation schemes.
• To approve plans, programmes and projects before implementation by the Gram Panchayats.
• Gram Sabha empowered in Scheduled areas to enforce prohibition, control over money lending, have ownership of minor forest produce and prevent alienation of land belonging to Scheduled Tribes.
• Government transferred ownership of 67 items of Minor Forest Produce to the Control of Gram Panchayats.
• Social audit made statutory. Gram sabha to approve expenditure and submission of U.C.
Function Function ...... Cont....... Cont.
• Gram Panchayat empowered to maintain assets, remove nuisance, regulate public utility, impose taxes and provide public distribution & other services.
• Panchayat Samiti empowered to deal in P.D.S, look after social security measures, provide assistance to weaker sections, implement programmes relating to poverty alleviation, primary education, primary health, co-operation and calamity relief.
Function Function ...... Cont....... Cont.
• Zilla Parishad - Out of 29 subjects required to be
transferred to PRIs as per the 11th schedule of
the constitution, 19 subjects transferred to the
control of Zilla Parishad. However concerned Deptt.
have the option to place fund with Zilla Parishad to
implement their programme or to get the
programme implemented through their district level
officers with the approval of Zilla Parishad.
Function Function ...... Cont....... Cont.
FunctionariesFunctionaries
• Gram Panchayat – Executive Officer
One Secretary
One peon.
Programme Manpower support
• Panchayat Samiti – Block Development Officer
Junior Engineers
Extension Officers
VLWs
Clerical Staff and Programme based manpower
•Zilla Parishad
• Chief Executive-cum-Collector
• Project Director-cum-Executive Officer
• Addl. P.D-cum-Executive Engineer and programme-based manpower
• DRDA Office to act as Secretariat of Zilla Parishad
Functionaries Functionaries ....Cont.....Cont.
FundsFunds
1. MGNREGS
2. BRGF, RGSY
3. IAY / Mo-Kudia
4. SGSY/NRLM
5. GGY/CC ROAD
6. FCA(TFA)
7. Grant-in-aid
8. Own income
Fund is provided to PRIs mainly out of following sources, namely :
Chief Executive OfficerChief Executive Officer
- DM & Collector continue to be the Chief Executive Officer of the Zilla Parishad.
- Project Director, DRDA and other district level officers shall continue to function as Executive Officer and Additional Executive Officer
- Block Development Officer for Panchayat Samiti.
- Village Level Workers (VLW) and Village Agriculture
- Workers (VAW) have been appointed as Executive Officer of the Grama Panchayat. • Executive Officer shall perform the functions and duties
as per job chart prescribed by govt. from time to time.
• Sarapanch shall sanction Casual Leave of Executive Officer of Gram Panchayat.
AccountabilityAccountability The district level, Block level and Grama Panchayat level The district level, Block level and Grama Panchayat level
functionaries of different departments of Government the subjects of functionaries of different departments of Government the subjects of which have been transferred to PRIs which have been transferred to PRIs will attend the meetingswill attend the meetings of of PRISPRIS
Remain Remain accountableaccountable to respective level of PRI though they shall to respective level of PRI though they shall continue as employees of their respective department.continue as employees of their respective department.
They shall They shall place plans and schemesplace plans and schemes for discussion and approval in for discussion and approval in the meeting of respective level of PRI.the meeting of respective level of PRI.
The President, Zilla Parishad, Chairman, Panchayat Samiti and The President, Zilla Parishad, Chairman, Panchayat Samiti and Sarapanch, Grama Panchayat are vested with Sarapanch, Grama Panchayat are vested with authority to authority to supervise the work and function of Govt. functionaries at supervise the work and function of Govt. functionaries at respective level, calling for information and report from time to respective level, calling for information and report from time to timetime. They can submit proposal to the appropriate level about . They can submit proposal to the appropriate level about indiscipline, irregularity and other shortcomings of the District Level indiscipline, irregularity and other shortcomings of the District Level Officers.Officers.
Submit suggestions/ recommendations on improvement of Submit suggestions/ recommendations on improvement of function of these functionaries through appropriate level of PRIs function of these functionaries through appropriate level of PRIs as well as District Level officers.as well as District Level officers.
The Project Director, DRDA as the Executive Officer of Zilla The Project Director, DRDA as the Executive Officer of Zilla Parishad, will Parishad, will call for the reportcall for the report and and will placewill place such report such report before the President, Zilla Parishad before the President, Zilla Parishad
President of Zilla Parishad can President of Zilla Parishad can submit report to the Head of submit report to the Head of DepartmentDepartment as well as to Government. as well as to Government.
Such proposals emanating from Zilla Parishad shall be given Such proposals emanating from Zilla Parishad shall be given due due considerationconsideration and decision taken thereon shall be and decision taken thereon shall be communicated to other PRIs.communicated to other PRIs.
Accountability ....cont.Accountability ....cont.
People’s EmpowermentPeople’s Empowermentthrough PRIs in Sch. Areas : through PRIs in Sch. Areas :
Approval of Plans, Programmes, Approval of Plans, Programmes, Project selection, Selection of Project selection, Selection of beneficiaries & issue of UCsbeneficiaries & issue of UCs
Marketing & Ownership of MFP Marketing & Ownership of MFP Enforcement of Prohibition & Enforcement of Prohibition &
Sale of Intoxicant Sale of Intoxicant Regulation of Money Lending Regulation of Money Lending Transfer of Tribal LandTransfer of Tribal Land Control of Village Markets Control of Village Markets Management of Water bodies Management of Water bodies Minor MineralsMinor Minerals
Women Empowerment - PRIsWomen Empowerment - PRIs
Pre-73Pre-73rdrd CAA Scenario – Mandatory Provision CAA Scenario – Mandatory Provision
of Reservation of Women leader at GP, PS & of Reservation of Women leader at GP, PS &
ZP at the level of Naib Sarapanch, Vice-ZP at the level of Naib Sarapanch, Vice-
Chairman & Vice President respectively.Chairman & Vice President respectively.
Women Participation Women Participation
1/101/10thth : Palli Sabha - Desirable : Palli Sabha - Desirable
1/31/3rdrd : Gram Sabha – Mandatory : Gram Sabha – Mandatory
Decentralised PlanningDecentralised Planning
District Planning Committee – formed in all District Planning Committee – formed in all
districts districts
PRIs leaders participation – ensuredPRIs leaders participation – ensured
Consolidation & Integration of Plans of different Consolidation & Integration of Plans of different
line departments, ULBs & PRIs line departments, ULBs & PRIs
Provision of Supervisory role - PRIsProvision of Supervisory role - PRIs
2727
Weaknesses……………..Weaknesses…………….. Lack of political will of political parties for Lack of political will of political parties for
decentralisationdecentralisation Lack of public awareness and vigilanceLack of public awareness and vigilance Lack of orientation of officials for working with LGsLack of orientation of officials for working with LGs Elite capture in highly unequal societiesElite capture in highly unequal societies Bias against womenBias against women Bureaucracy has not learnt to work with the local Bureaucracy has not learnt to work with the local
governmentgovernment Downward accountability mechanism not yet Downward accountability mechanism not yet
developeddeveloped Decision-making not yet broad-basedDecision-making not yet broad-based Rules & procedures not adequately framedRules & procedures not adequately framed
2828
Threats…………………..Threats…………………..
Disparities of caste, class, gender Disparities of caste, class, gender etc.etc.
Resistance of political class at the Resistance of political class at the state and national level to share state and national level to share powerpower
Resistance from the rural elites and Resistance from the rural elites and
dominatingdominating class to share power class to share power with disadvantaged groupswith disadvantaged groups
Clienteles and PatronageClienteles and Patronage
2929
Four ChallengesFour Challenges Power sharing among
Politicians
Inconsistency in
implementing directions by
officialdom
Landlords and Feudal
Elements
Contractors
3030
Opportunities………………Opportunities……………… People’s participation providing good governance at People’s participation providing good governance at
grassroots levelgrassroots level Involvement of people in development Involvement of people in development
planningplanning Gender budgetingGender budgeting Resource mobilization (cash, kind or Resource mobilization (cash, kind or
labour) for local developmentlabour) for local development Increasing participation in decision-makingIncreasing participation in decision-making The State and Administration nearer to The State and Administration nearer to
peoplepeople Democracy extended to grassrootsDemocracy extended to grassroots Poverty eradicationPoverty eradication
3131
Strength……………………..Strength…………………….. Constitutional Status
Constitutional Status for stability and continuity
Timely Election
Demand from below
Representations for weaker sections
Gram Sabha – Direct Democracy
CSOs/ Environment demanding decentralization
Framework for 4 “Fs”
Functions, Functionaries, Funds, Freedom (Autonomy)
“There is a silent revolution that is taking place in our countryside – silent only because the media and urban political opinion are not giving adequate attention to it. It is the harbinger of new hope for the eradication of rural poverty and the promotion of rural prosperity.”
Dr. Manmohan Singh, Prime Minister of IndiaNovember 22, 2006