Chandan Kumar Nath
(chandankumarnath7236@gmail.com)
India’s Panchayati Raj system, a cornerstone of rural governance, embodies the ethos of decentralized democracy envisioned by Mahatma Gandhi as Gram Swaraj (village self-governance). The history of panchayat elections traces back to ancient India, evolving through centuries of socio-political transformations to become a constitutionally mandated institution today. The concept of panchayat local self-governing bodies has deep roots in India’s ancient history. The Rigveda (circa 1700 BCE) mentions sabhas, village assemblies that managed local affairs, suggesting early forms of collective governance. By the Mauryan period (circa 321–185 BCE), village councils, often comprising respected elders, resolved disputes, managed resources, and collected taxes. A remarkable example of this system is inscribed on a temple wall in Uthiramerur, Tamil Nadu, detailing a sophisticated process of selecting council members through sortition, where candidates were chosen by lot based on land ownership and knowledge of scriptures. These early panchayats were not elected in the modern sense but were consensus-driven, reflecting community trust in wise elders. However, mediaeval India saw the erosion of such autonomy. The feudal structures under Mughal rule and the emergence of zamindars (revenue collectors) centralized power, sidelining village self-governance. Despite this, panchayats persisted in pockets, particularly in South India, where they retained some administrative functions.
The British colonial administration further marginalized panchayats, replacing them with bureaucratic systems to maximize revenue collection. Yet, the late 19th and early 20th centuries saw efforts to revive local governance. The Royal Commission on Decentralization (1907) and the Montagu-Chelmsford Reforms (1919) recommended strengthening village institutions, but these remained largely advisory. The Government of India Act, 1935, introduced provincial autonomy, enabling elected provincial governments to enact laws for local self-governance. However, as D.P. Mishra, a minister in the Central Provinces, noted, local bodies suffered from inefficiency and were often synonymous with mismanagement. Mahatma Gandhi’s advocacy for Gram Swaraj during the freedom struggle rekindled interest in panchayats. He envisioned villages as self-sufficient republics, managing their affairs independently. This vision contrasted with the centralized state-building approach of leaders like Jawaharlal Nehru, who saw panchayats as extensions of the state rather than autonomous political entities. After independence in 1947, India’s Constitution included Article 40 under the Directive Principles of State Policy, urging states to organize village panchayats as units of self-government. The Community Development Programme (1952) aimed to involve villagers in development, but it lacked a robust electoral framework. The Balwant Rai Mehta Committee (1957) was a turning point, recommending a three-tier Panchayati Raj system: Gram Panchayat at the village level, Panchayat Samiti at the block level, and Zila Parishad at the district level. This vision materialized when Jawaharlal Nehru inaugurated the first modern panchayat in Nagaur, Rajasthan, on October 2, 1959, symbolically aligning with Gandhi’s birthday.
Rajasthan led the way, establishing the first Gram Panchayat in Bagdari village, followed by Andhra Pradesh. By the 1960s, several states adopted the three-tier system, with elections held every five years. However, the system faced challenges: inadequate funding, bureaucratic interference, and irregular elections weakened its efficacy. By the 1980s, many panchayats were either defunct or overshadowed by state governments.
The turning point came with the 73rd Constitutional Amendment Act of 1992, which granted constitutional status to Panchayati Raj Institutions (PRIs). Enacted on April 24, 1993, it mandated a uniform three-tier system for states with populations over 20 lakh, regular elections every five years, and reservations for marginalized groups. Key features included:
Reservation: At least one-third of seats reserved for women, with proportional representation for Scheduled Castes (SCs) and Scheduled Tribes (STs). Some states later increased women’s reservations to 50%.
Gram Sabha: A village assembly of all registered voters, serving as the foundation of participatory democracy.
State Election Commissions (SECs): Autonomous bodies to oversee PRI elections, ensuring fairness and regularity.
Financial Autonomy: Establishment of State Finance Commissions to recommend fiscal devolution to panchayats.
The amendment empowered PRIs to handle 29 subjects listed in the Eleventh Schedule, including agriculture, education, and rural development, fostering local accountability. Eight states extended the system to tribal areas by 1996, adapting it to local contexts. Today, India has over 250,000 Gram Panchayats , with millions of elected representatives, making it the world’s largest experiment in grassroots democracy. Panchayat elections, held every five years, are vibrant, with high voter turnouts often exceeding 60%, reflecting rural enthusiasm for local governance. The reservation policy has transformed representation: women constitute nearly 50% of elected representatives, with 21 states mandating 50% reservation. SCs and STs also hold significant positions, amplifying marginalized voices. However, challenges persist. Violence during elections, as seen in West Bengal’s 2023 panchayat polls, where 36 people died, underscores the intense political competition for control over rural resources. Opposition parties often allege electoral malpractices, such as ballot tampering and voter intimidation. SECs, while autonomous, sometimes face political pressure, as evidenced by court interventions in West Bengal to deploy central forces for fair polls. Financial dependency on state governments limits panchayat autonomy, with many PRIs relying on grants rather than local taxation. Capacity building remains a hurdle; many elected representatives, particularly women and first-time leaders, lack training to navigate complex administrative roles. Additionally, social hierarchies like caste and gender continue to influence decision-making in some regions, undermining the spirit of Gram Swaraj.
Panchayat elections have come a long way from ancient ‘sabhas’ to modern democratic institutions, embodying India’s commitment to decentralized governance. They have empowered millions, particularly women and marginalized communities, to shape their villages’ destinies. Yet, for Gram Swaraj to fully materialize, India must address systemic issues: strengthening financial autonomy, enhancing capacity building, and ensuring free and fair elections.
As India navigates its democratic journey, panchayat elections remain a testament to the resilience of rural communities. They are not just electoral events but a celebration of local agency, bridging ancient traditions with modern aspirations for inclusive development.