An Overview of Panchayati Raj in Orissa

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An Overview ofPanchayati Raj in Orissa
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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.
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Why Panchayati Raj.

• Promote Peoples Participation in Rural
  Development programmes
• Provide Responsive Administration based on the
  concept of Democratic Decentralization
• Act as a medium of Social and Political change
• Facilitating direct, representative and
  participative democracy and Social Mobilization
  at local levels
• Prepare Plans for Development and assist in their
  implementation.
• Representations for weaker sections
• Gram Sabha / Palli Sabha Direct Democracy

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Orissa PRIs at a Glance

• Constitutional mandate PRIs to work for
  Economic Development Social Justice
• 51972 Villages, 6234 GPs, 314 PSs, 30 ZPs with
  100862 Elected Representatives.
• 2nd executive leader post in all 3-tier PRIs for
  women
• Election as per PESA in 2007 with PRIs at all
  levels headed by STs in 1941 GPs, 120 PSs 13ZPs
• 21 subjects of 11 departments transferred to PRIs
  as per 73rd Amendment

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Growth of 3-tier PRIs Orissa
Year GP PS ZP
1961-62 2350 214 13
1966-67 3826 307 13
1983-84 4391 314 -
1991-92 5263 314 -
1997-98 5263 314 30
2002-03 6234 314 30
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Journey of Panchayati Raj

• OGP Act - 1948
• CD Programme - 1952
• NES - 1953
• BRM Comm. - 1957
• 3-tier PRIs - 1959
• (OGP Act, 1959, OPS Act, 1959, OZP Act,1961)
• Intro. of 3-tier PRIs - 1961 67
• Dissolution of ZP - 1967
• Cont.. of 2-tier PRIs - till 1990
• Intro. of 3-tier PRIs - 1990
• (Resv. of Women)
• Election to 3-tier PRIs - 1997
• (73rd Const. Amendment PESA)
• Conduct of election as per PESA 2002
• Empowerment of PRIs .,,,,,,,2002 and 2007
  election

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Profile of PRI Elected Reps.

• ZP - 854
• PS - 6227
• GP - 93786
• Total 1,00,867
• N.B. Women (33) 36,084

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Panchayati Raj..A Pro-Poor, Pro-PRI Endeavour

• Creating a culture of Participatory development
  and Solution at Community level through its
  programmes structure
• Changing Rural livesPoverty Alleviation
  programs
• MGNREGA-SGSY-IAY-BRGF-TRIPTI
• Facilitating Basic services
• FCA-KL Grants-GGY-MO-KUDIA
• Mainstreaming SHGs into Mission Shakti assist
  in marketing thro ORMAS
• Capacity Building of PRIs / PROs - SIRD
• Ensuring transparency through E-Governance and
  Social Audit
• Bringing in Fiscal Discipline through PRIASOFT,
  PAMIS, BETAN.

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Institutional Framework of Decentralization

• Palli Sabha
• Gram Sabha
• Gram Panchayat
• Panchayat Samiti
• Standing Committees
• DRDA
• District Planning Committee
• Zilla Parishad
• Standing Committee
• State Finance Commission
• State Election Commission

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LEGAL FRAMEWORK

• Orissa GP Act 1964
• Orissa PS Act 1959
• Orissa ZP Act 1991
• Amended Spirit Mandate of 73rd Const.
  Amendment PESA Act, 1996

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Decentralised Decision making Planning
Structure for Pro-poor Development in Odisha
Zilla Parishad Panchayat Samiti Gram
Panchayat Gram Sabha Palli Sabha Convergence
Mode (Self Employment Wage Employment Prog.)
Representative Democracy
Participative Democracy
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General Devolution

• Officials accountable
• Place plan Scheme for approval
• Can visit offices
• Call for report and ensure their presence in the
  meetings
• Write about to HoD/Govt.
• Casual Leave to head of office
• Executive officers
• Collector ZP
• BDO PS
• EO GP (VLW/VAW)

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Function

• 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.

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Function ...... Cont.

• 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.

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Function ...... 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.

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Function ...... 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.

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Functionaries

• 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

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Functionaries ....Cont.

• 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

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Funds
Fund is provided to PRIs mainly out of following
sources, namely

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

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Chief 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.

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Accountability

• The district level, Block level and Grama
  Panchayat level functionaries of different
  departments of Government the subjects of which
  have been transferred to PRIs will attend the
  meetings of PRIS
• Remain accountable to respective level of PRI
  though they shall continue as employees of their
  respective department.
• They shall place plans and schemes for discussion
  and approval in the meeting of respective level
  of PRI.
• The President, Zilla Parishad, Chairman,
  Panchayat Samiti and Sarapanch, Grama Panchayat
  are vested with authority to supervise the work
  and function of Govt. functionaries at respective
  level, calling for information and report from
  time to time. They can submit proposal to the
  appropriate level about indiscipline,
  irregularity and other shortcomings of the
  District Level Officers.

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Accountability ....cont.

• Submit suggestions/ recommendations on
  improvement of function of these functionaries
  through appropriate level of PRIs as well as
  District Level officers.
• The Project Director, DRDA as the Executive
  Officer of Zilla Parishad, will call for the
  report and will place such report before the
  President, Zilla Parishad
• President of Zilla Parishad can submit report to
  the Head of Department as well as to Government.
• Such proposals emanating from Zilla Parishad
  shall be given due consideration and decision
  taken thereon shall be communicated to other PRIs.

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Peoples Empowermentthrough PRIs in Sch. Areas

• Approval of Plans, Programmes,
• Project selection, Selection of
• beneficiaries issue of UCs
• Marketing Ownership of MFP
• Enforcement of Prohibition
• Sale of Intoxicant
• Regulation of Money Lending
• Transfer of Tribal Land
• Control of Village Markets
• Management of Water bodies
• Minor Minerals

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Women Empowerment - PRIs

• Pre-73rd CAA Scenario Mandatory Provision of
  Reservation of Women leader at GP, PS ZP at the
  level of Naib Sarapanch, Vice-Chairman Vice
  President respectively.
• Women Participation
• 1/10th Palli Sabha - Desirable
• 1/3rd Gram Sabha Mandatory

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Decentralised Planning

• District Planning Committee formed in all
  districts
• PRIs leaders participation ensured
• Consolidation Integration of Plans of different
  line departments, ULBs PRIs
• Provision of Supervisory role - PRIs

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Weaknesses..

• Lack of political will of political parties for
  decentralisation
• Lack of public awareness and vigilance
• Lack of orientation of officials for working with
  LGs
• Elite capture in highly unequal societies
• Bias against women
• Bureaucracy has not learnt to work with the local
  government
• Downward accountability mechanism not yet
  developed
• Decision-making not yet broad-based
• Rules procedures not adequately framed

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Threats..

• Disparities of caste, class, gender etc.
• Resistance of political class at the state and
  national level to share power
• Resistance from the rural elites and dominating
  class to share power with disadvantaged groups
• Clienteles and Patronage

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Four Challenges

• Power sharing among Politicians
• Inconsistency in implementing directions by
  officialdom
• Landlords and Feudal Elements
• Contractors

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Opportunities

• Peoples participation providing good governance
  at grassroots level
• Involvement of people in development planning
• Gender budgeting
• Resource mobilization (cash, kind or labour) for
  local development
• Increasing participation in decision-making
• The State and Administration nearer to people
• Democracy extended to grassroots
• Poverty eradication

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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)

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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 India November 22, 2006