INTRODUCTION:

Panchayati Raj is a culmination of recognition given by Indian Constitution to the role of Panchayat Article 40 of our constitution states that the state shall take steps to organize Village Panchayats and endow them with such powers and authority as may be necessary to enable them to function as units of Self-government. Panchayati Raj aims to make democracy real by bringing the million into functioning of democracy. The main objects are:

· To provide a broad base to democracy in the country by transferring power from the Center and the States through districts and blocks to the village.

· To enable the people to participate in democracy in a more effective way and thus provide the much –needed training ground for future leadership.

· To give the rural people an opportunity to plan and administer their own affairs.

· To develop a sense of Community feeling, self reliance and initiative among the village people.

· To provide to the weaker sections of the community an opportunity to participate in the management of rural affairs.

· To bring overall rural development. Gandhiji has stated that unless villages are developed, India will continue to remain backward.

The Panchayati Raj in India was inaugurated as a consequence of the recommendation of Balawant Rai Mehta Committee set up in 1957, to study the Community Development Programme of 1952 and National Extension Service launched in 1953.These schemes, despite the high objectives failed because they could not invite rural participation. The Study team suggested the establishment of Panchayati Raj with adequate delegation of powers. People would be more active if plans are implemented through the elected representatives of the rural people. So the Committee recommended the setting up of elected and organically link democratic bodies at the village, block and the district levels. The scheme of Panchayati Raj was first implemented by Rajasthan on 2^nd October 1959.

With the passage of 73^rd Constitutional Amendment Act, the Panchayati Raj institutions have got a structural, functional, Financial, electoral and reservational. These institutions have also received constitutional legitimacy. The Act provides for the Grama Sabha as the foundation of the Panchayati Raj System consisting of persons registered in the electoral roll of the concerned village.

Panchayati Raj Institution functions at the village Intermediate (Block) and district level. There are approximately 2,34,030 Gram Panchayats at the village level, 6053 Janapad Panchayats at the block level and 535 Zilla Panchayats at the districts level. There are more than 31 lakh elected representatives at all the three tiers.¹

Panchayat Institutions in Chhattisgarh

Chhattisgarh came into being on 1 November 2000, when Madhya Pradesh was divided into two states. The First institutional and legislative steps towards the creation of Chhattisgarh were taken as far back as 1994. However, it was only in 2000, that the National Democratic Alliance Government at the center passed the Madhya Pradesh reorganization Act, 2000 which bifurcated Madhya Pradesh into the two separate states i.e., Chhattisgarh and Madhya Pradesh. According to the 2001 census, the total population of Chhattisgarh is almost 2.1 crore. The state has a total of approximately 20,378 village, 96 Tehsils, 146 blocks and 16 districts.²

In accordance with section 78 and 79 of the Madhya Pradesh reorganization Act, any law already in force in the state of Mandhya Pradesh when Chhattisgarh was created remained applicable in the new state of Chhattisgarh. Accordingly, the Panchayat Raj legislation in force in Madhya Pradesh at the time the state was divided became applicable to Chhattisgarh. It is that law-now called the Chhattisgarh Panchayati Raj Adhiniyam, 1993, which forms the basis of the current Panchayat System in place in Chhattisgarh. Chhattisgarh operates a three-tier Panchayat Systems, which is intended to bring government closer to the people. Chhattisgarh has approximately 9,820 Gram Panchayats at the village level, 146 Janpad Panchayat the intermediate (Blocks) level and 16 Zilla Panchayat at the district level.³ Additionally, there is the Gram Sabha, which is the basic unit in the Panchayati Raj mechanism. The first Panchayat elections were held in Chhattisgarh in January 2005.

Tribal Areas and Panchayats

Chhattisgarh is a large tribal population-33% of the entire population. As such, a large proportion of the state has been declared as “Schedule V Areas” under the Constitution⁴ which have special rights. Seven districts of Chhattisgarh are fully covered under Schedule V, namely-Surguja, Koriya Jashpur, Kanker, Bastar, Dantewada and Korba. Another six districts are partially covered under Schedule V. namely Raigarh, Bilaspur, Durg, Rajnandgnon, Raipur and Dhamtari.

It is important to note that the amendment to the Indian Constitution which set up the Panchayati Raj System⁵was not automatically applicable to Schedule V Areas. It was after the Central Government passed the provisions of the Panchayats (Extensions to Schedule V Areas. Accordingly, in 1997 the State Government added a new chapter to the existing Panchhayati Raj Legislation to make special provisions for Panchayats in Scheduled Areas in Chhattisgarh.⁶

Gram Panchayat

Gram Panchayat are the smallest unit of elected local-self governance, situated at the village level. Each Gram Panchayat area is divided into not less than ten and not more than twenty wards⁷ and each ward elects one Panch. The Gram Panchayat consists of the elected Panchs and a Sarpanch, who is the head of the Gram Panchayat. An Up-Sarpanch is also elected, who acts as the Sarpanch’s deputy. Each Gram Panchayat has a Secretary, who is being appointed by the State Government and responsible for maintaining records.

The Gram Sabha is a general body of electors whereas the Gram Panchayat is an executive elected body. The Gram Panchayat has to perform its duties as per the directions given by the general body. Every Gram Panchayat has the following three Standing Committees constituted by the elected members:-

· General Administration Committee: It is responsible for recommending construction works in the Gram Panchayat area, revenue, land development, budget, accounts and other finance related issues, among other things.

· Construction and Development Committee: It is responsible for preparation of the Gram Panchayat annual plan, all construction works, implements in communication, village electrification, public health, development of small and cottage industries and forest development among other things.

· Education, Health and Social Welfare Committee:- It is responsible for inspection of all Schools, Anganwadis and Balwadis, Certification of Primary Health Centres, Cleanness in the Panchayat area, preparing and implementing programmes for the weaker sections of the community, women and child development, among other things.

Gram Sabha:

There is a Gram Sabha for every village. The Gram Sabha consists of all the people who are registered in the list of voters of a village. The basic philosophy of the introduction of Gram Sabha is for participatory democracy. Gram Sabha provide a local forum for people to meet and discuss local development programmes and analyse the development and administrative actions of their elected representatives, which ensure transparency and accountability. Gram Sabha provides an opportunity for the participation of all sections of the village-women, dalits, tribals and other marginalized groups in planning and implementation of rural development programmes⁸.

The Chhattisgarh Panchayat Raj Act 1993 gives special powers to the Gram Sabha. The Gram Sabha can monitor and question the functioning of the Gram Panchayat. The Act also provides that it can make annual plans for the village to be passed onto higher levels of Panchayati Raj Institutions for integration. A Gram Sabha can also implement its own decisions without depending on the Gram Panchayat for projects valued upto Rs. 3 lakh.

In the Schedule V Areas, Gram Sabha are constituted for villages, hamlets pr even a habitation. At least one meeting of the Gram Sabha must be held every three months in tribal-dominated Panchayats⁹. Tribe or the Gram Sabha not the Sarpanch or Up-Sarpanch-who is elected for this purpose by majority of members present in that meeitng¹⁰.

Janapad Panchayat:

Each district is divided into Blocks, which are constituted by villages. A Janapad Panchayat is constituted for each Block. Every Janapad Panchayat consists of :-

· Members are elected by the voters of that area. Each Block is divided into constituencies, between 10-25 and each constituency elects a members.

· All members of the State Legislative Assembly from the Constituencies which wholly or partly fall within the Block.

· One- fifth of the Gram Panchayat Sarpanches in the territorial area of the Block on a rotational basis for a period of one year.

Each Janapad Panchayat is headed by a President and Vice-President, who are elected by and from the elected members. Reach Janapad Panchayat has a Chief Executive Officer who is appointed by the Government.

Zilla Panchayat :

A Zilla Panchayat is constituted for each district. The Zilla Panchayat comprises with the following members:-

· Members who are elected by the voters in the district. Each district is divided into 10-35 constituencies. Each constituency elects one member.

· Members of Lok Sabha, Rajya Sabha and State legislative Assembly of the district.

· All Presides of Janapad Panchayat of the district.

Each Zilla Panchayat is headed by a President and Vice-President who are elected from among the elected members. One Government official act as the Chief Executive Officer of each Zilla Panchayat.

Every Janpad Panchayat and Zilla Panchayat can constitute the following Standing Committees from amongst its elected members¹¹.

· General Administration Committee:- It is responsible for all matters connected with Janapad or Zilla Panchayat administration, budgets, accounts taxation, other financial matters and subjects is not allotted to any other Committees.

· Agriculture Committee:- It is responsible for agriculture, animal husbandry, power, reclamation, fisheries, seed distribution and other matters connected with agriculture and live stock.

· Education Committee:- It is responsible for education including adult education, social welfare of the disabled and destitute, women and child welfare, relief of distress caused by floods, drought earthquakes, health and sanitation.

· Communication and Works Committee:- It is responsible for communication, minor irrigation, rural housing, rural water supply, drainage and other public works.

· Cooperation and Industries Committee:- It is responsible for Coopreation, thrift and small savings, Cottage and village industries, markets and statistics.

Besides these five Committees, the Janapad Panchayat or Zilla Panchayat may constitute one or more such committees for other matters.

Rural Development:-

Chhattisgarh being newly created state, the purposeful endeavors of the Government are aimed at the Social, Economic and Political upliftment of the people in the rural areas. Rural Development aims at improving the rural lives with the participation of the rural masses. The concept of Rural Development targets the Social and Economic development of the rural areas. Rural Development in Chhattisgarh is concerned with the Economic Growth, Social Justice and Improvement in the living standards of the rural people by deploying an efficient delivery mechanism to provide adequate quality services and essential minimum needs.

The primary objective of the Government is the provision of basic infrastructure facilities and Social Services in the rural areas and assistance to the individual families and Self Help Groups living below the poverty line. Elimination of poverty and delivery of high quality services are the basic premises upon which the planning of Rural Development is based. Rural Development planning to accomplish the above objective is done at the Panchayat level, which are the basic structural units of development process.

Rural Development Programmes:

National Rural Employment Guarantee Act (NREGA)

It is land mark legislation and hailed as 'People's Act'. The major objective of the Act is to provide employment in rural areas to the poor. This Act provides opportunity to the people to get involved in the different levels of planning, implementation and monitoring of the work.

The whole Chhattisgarh state consisting of 16 districts, 146 development Blocks are notified under this Act for the implementation of NREG. Districts included are Bastar, Bilaspur, Dantewada, Dhamtari, Jaspur, Kanker, Kawardha, Koriya, Raigarh, Rajnandgaon, Surguja, Raipur, Mahasamund, Janjgir-Champa, Durg and Korba.

Watershed Management Programme (Hariyali):-

The department of land Resources, Ministry of Rural Development, is implementing the area development programmes of the Government of India. Among the ongoing area development programmes namely IWDP, DPA and DDP, the state is identified for the implementation of the IWDP and DPAP Programme. The sanctioned programmes are being implemented as the Watershed management Projects. The new initiatives in the implementation of Watershed Project is popularly known as HARIYALI which was launched on 27-01-2003 with an objective of empowering the PRIs for the programme implementation and keeping financial control over the Rural Development Schemes. Out of the 16 districts of Chhattisgarh, 12 districts have been identified for implementation of the Integrated Wasteland Development Programme. At present, 69 IWDP Projects have been sanctioned which is being implemented by 75 Projects Implementing Agency.

Drought Prone Area Programme under the area development initiatives specially for the Drought Affected Area that is being implemented with the objective to minimize the unfavorable blow of the Drought on over all physical, social, economic and ecological status of the area. Eight districts have been identified as the drought affected area of Chhattisgarh which spread over 29 Blocks covering an area of 21801 Sq. Km. The Block Panchayat is acting as the Project Implementing Agency.

Swarn Jayanti Gram Swarojgar Yojna (SGSY):-

MORD launched a rural self employment scheme called SGSY in April 1999 that has brought about a paradigm shift in development strategy for creating employment opportunities for the poor and has focused on mobilization of rural poor into SHGs, their capacity building, skill up gradation, training, assistance for taking different economic activities, credit linkages infrastructure, technology and marketing support as important elements of development strategy. State has 14.28 lakh BPL families however, under the SGSY only 49652 SHGs have been formed so far.

Indira Aawas Yojna (IAY) :-

IAY is a centrally sponsored scheme with 75% Central and 25% State share. It is a scheme for houseless of BPL families. It is being implemented through government functionaries comprising of technical staff and PRI members. The budget is directly sent to Zilla Panchayat and State contribute the share of the amount accordingly.

Sampoorna Gramin Rojgar Yojna (SGRY):-

The Programmes is self targeting in nature with special emphasis on providing wage employment to women Scheduled Caste, Scheduled Tribes and parents of children withdrawn from hazardous occupation. The scheme is exclusively implemented by the Panchayati Raj Institutions. It was implemented in two streams. The first stream was implemented at the district and intermediated Panchayat levels in which 50% of the funds and food grains were made available which were further distributed between the district Panchayat and the intermediate Panchayat in the ratio of 40:60 respectively. The second stream was implemented at the village Panchayat level and 50% of the funds and food grains were earmarked for the village Panchayat. This programme was merged into one stream since 2004-05. All three tiers, Viz., District Panchayat, Block Panchayat and the village Panchayat is an independent unit for preparing action plan and executing the scheme.

Rural Society occupies an important place in Chhattisgarh's economy. No development programme can succeed if it is not build on the foundation of the rural sector. There is dire need to give high priority to rural development and to formulate an integrated rural development policy, taking into account the following matters:-

· Introduction of rural higher education, based on the concept of Nai Talion as envisioned by Mahatma Gandhi for human resource development, keeping in view local requirements of rural management, engineering, science and technology, research, training, networking and extension.

· Impart proper training to the elected members of Panchayat Bodies for overall rural development.

· Ensure proper and effective dissemination of information.

· Maintain proper coordination and cooperation between Panchayats, government, voluntary organization to upgrade skills of rural people.

· Improve the quality of life of rural people by establishing rural enterprises catering to their skills and needs.

· Prepare and implement plan for "Male Village", involving Gram Sabha or Gram Panchayats for decentralized micro planning, to avail of modern physical and social infrastructure facilities required for a better quality of life.

REFERENCE:

1- Ministry of Panchayati Raj, Statistics provided at the 7th Roundtable Conference of the MOPR, Current as at December 2004.

2- Press Information Bureau, Government of India website: http:/pibinic.in Feature/feyr 2001/fgun 2001/f080620012.html.

3- PRIA (2005), Chhattisgarh ki Panchayati Raj Vyavstha, Raipur, P.8.

4- "Schedule V Areas" refers to the Schedule of the Constitution of India which deals specifically with the administration and Control of So- called Scheduled Areas inhabited by "Scheduled Tribes", which are designated by Government notification.

5- The Constitution (73rd Amendment), Act, 1992.

6- This is now known as Chapter 14A (Section 1239, A. f.), Chhattisgarh Panchayat Raj Addiniyam, 1993.

7- Wards are territorial constituencies of the Gram Panchayat.

8- PRIA (2003). Gram Sabha and Panchayats, New Delhi.

9- Chhattisgarh Scheduled Areas Gram Sabha (Constitution, Procedure of Meeting and Conduct of Business) Ries, 1998.

10- Rule 10, Ibid.

11- Section 47, Chhattisgarh Panchayat Raj Adhiniyam, 1993.

Received on 05.09.2014 Modified on 22.09.2014

Int. J. Ad. Social Sciences 2(3): July-Sept., 2014; Page 175-179