Roadmap for the Panchayati Raj (2011-16): An All India Perspective Ministry of Panchayati Raj Version date: Feb., 2011 ROADMAP FOR THE PANCHAYATI RAJ: AN ALL INDIA PERSPECTIVE Chapter One STATUS OF THE PANCHAYATS AND APPROACH TO THE ROADMAP……………. 1.1 Evolution of Local Governance in India ............................................................................... 1.2 Constitution 64th & 73rd Amendment Bills ........................................................................... 1.3 Local governance in the Tribal Areas : (a) Fifth Schedule Areas and PESA ...................................................................................... (b) North East States ............................................................................................................ 1.4 Current Status of the Panchayats and Devolution Index ...................................................... 1.5 Current Status of the Panchayat Infrastructure ..................................................................... 1.6 Efforts of Government of India & the States ........................................................................ 1.7 Why are the Panchayats not delivering in many States ........................................................ 1.8 Approach to the Roadmap .................................................................................................... Chapter Two STRENGTHENING DEMOCRATIC FUNCTIONING OF THE PANCHAYATS………... 2.1 Participation at village level: Gram Sabha and Ward Sabha ................................................ 2.2 Standing Committees ............................................................................................................ 2.3 Transparency and Accountability ......................................................................................... 2.4 Organizing the poor for their participation ........................................................................... 2.5 Women and Panchayats ........................................................................................................ 2.6 Role of non-office bearers .................................................................................................... 2.7 Role of Political parties ......................................................................................................... 2.8 Vigilance, Redressal of Grievances and Ombudsman .......................................................... 2.9 Federation of Panchayats ...................................................................................................... 2.10 Panchayat and the Civil Society ........................................................................................... 2.11 Action Points…………………………………………………………………………….. Chapter Three FUNCTIONS OF THE PANCHAYATS………………………………………………………. 3.1 Functions of a Model Local Government ............................................................................. 3.2 Constitution and functions of the Panchayats: ...................................................................... 3.3 Devolution and Activity Mapping ........................................................................................ 3.4 Role of Central Schemes ....................................................................................................... 3.5 Parallel Bodies and the Panchayats………………………………………………………. 3.6 Action points……………………………………………………………………………… Chapter Four FUNCTIONARIES OF THE PANCHAYATS………………………………………………… 4.1 First Round Table Resolutions on Manpower ..................................................................... 4.2 2nd ARC and Panchayat Manpower ...................................................................................... i 4.3 Devolution and Manpower for the Panchayats ..................................................................... 4.4 Panchayat Cadre and State Cadre 4.5 Action Points ......................................................................................................................... Chapter Five PANCHAYAT FINANCES AND ACCOUNTING………………………………………….. 5.1 Share of Panchayats in GDP ................................................................................................. 5.2 Constitutional Provisions on Panchayat Finances ................................................................ 5.3 2nd ARC ................................................................................................................................ 5.4 Fiscal Decentralization.......................................................................................................... 5.5 Finances of the Panchayats ................................................................................................... 5.6 Accounts and Audit System .................................................................................................. 5.7 Action Points ......................................................................................................................... Chapter Six CAPACITY BUILDING THROUGH TRAINING OF THE PANCHAYATS FUNCTIONARIES………………………………………………………………………………. 6.1 Dimensions of the Challenge ................................................................................................ 6.2 National Capacity Building Framework (NCBF) ................................................................. 6.3 Accounting CBT efforts………………………………………………………………….. 6.4 Training infrastructure for CBT……………………………………………………………. 6.5 CBT for Elected Women Representative………………………………………………… 6.6 CBT for Decentralized Governance & Decentralized Planning…………………………. 6.7 Action Points ......................................................................................................................... Chapter Seven DECENTRALIZED PLANNING……………………………………………………………… 7.1 Need for Decentralized Planning .......................................................................................... 7.2 Constitutional Provision……………………………………………..……………………. 7.3 11th Plan & Decentralized Planning………………………………………….…………… 7.4 2nd ARC………………………………………………………………………………….. 7.5 National conference on Decentralized Planning…………………………………………. 7.6 Manual for Integrated District Planning ............................................................................... 7.7 Participative integrated District Planning…………………………………………………. 7.8 Role of BRGF / MGNREGA in catalyzing Decentralized Planning .................................... 7.9 District Planning Committees (DPCs)……………………………………………………. 7.10 Action Points ......................................................................................................................... Chapter Eight E-PANCHAYAT………………………………………………………………………………… 8.1 Objective of e-Panchayat………………………………………………………………….. ii 8.2 ISNA, BPR & DPR for each State/UT…………………………………………………… 8.3 Panchayat Enterprise suit and Application Softwares……………………………………. 8.4 PRIASoft…………………………………………………………………………………. 8.5 PlanPlus Software………………………………………………………………………… 8.6 e-Panchayat & CSCs……………………………………………………………………… 8.7 Training e-Panchayat……………………………………………………………………. 8.8 Action Points……………………………………………………………………………. Chapter Nine PANCHAYAT (EXTENSION TO SCHEDULED AREAS) Act (PESA)…………………. 9.1 PESA for people-centric governance .................................................................................... 9.2 Need for PESA ..................................................................................................................... 9.3 Powers of Gram Sabha.......................................................................................................... 9.4 Role of PESA ........................................................................................................................ 9.5 Effective functioning of Gram Sabha……………………………………………………… 9.6 Action Points:........................................................................................................................ Chapter Ten DECENTRALIZED GOVERNANCE IN THE NORTH EAST STATES ………………….. 10.1 Sixth Schedule ...................................................................................................................... 10.2 2nd ARC and Expert Committee .......................................................................................... 10.3 Framework for dealing with decentralization in NE States .................................................. 10.4 Action Points:........................................................................................................................ Chapter Eleven LEGAL FRAMEWORK………………………………………………………………………. 11.1 Model Panchayati Raj Act .................................................................................................... 11.2 Amendment to Article 243 of the Constitution.................................................................... 11.3 Constitutional Amendment required……………………………………………………… 11.4 Setting up of District Councils .............................................................................................. 11.5 Making the Panchayats accountable to the Gram Sabha ...................................................... 11.6 Representation of MPs and State legislature, MLAs & MLCs in PRIs………………….. 11.7 Rotation in the reservation of seats………………………………………………………… 11.8 Reconciling the term of SFCs with that of the CFC………………………………………. 11.9 Restructuring of legislative councils…………………………………………………….. 11.10 Nyaya Panchayat Bill ……………………………………………………………………. 11.11 Dispute-free village scheme…………………………………………………………….. 11.12 Extension of UDPFI to rural areas……………………………………………………….