Panchayati Raj Institutions are the local self-government at the grass root level. The Panchayati Raj Institutions are expected to prepare and implement plans for economic development and social justice including 29 subjects listed in the 11th Schedule of the Constitution. First Five Year Plan observed that the village panchayat as most important unit of administration is actively associated with development process. It states that each state should have a program for establishing for coming years for village panchayats for development work. The developmental functions to be entrusted to the panchayats according to plan like framing programmes, budgets, financial needs, organizing labour for community works and assisting implementation of land reforms measures in the village. Participation of the people is a key element in the process of good governance. The philosophy of power to the people at the grassroots level emanates from people’s participation through economic development to meet their aspirations and improve their quality of life through better service delivery. Aristotle, the noted Greek Philosopher trained that participation in the affairs of the State for a citizen was essential to development and fulfillment of human personality. In his view, the best State is broad participation with no class dominating over others. He had established clear-cut relation between participation and development leading to good life.

In the 21st century, we all talk of a democratic set up of administration because it provides ample scope for people’s participation hastening up economic prosperity ensuring social justice to the marginalized and deprived. The present governance structure in India is known for its professionalization in ensuring laws, evoking schemes / programmes, making plans and projects but does not have the capacity to translate the same into action and produce the expected outcomes. It is found that people centric activity are missing in the process of development in almost all levels of implementation. The state with its bureaucratic system claim ownership of development, which reduces the citizens to beneficiaries without involvement. To reverse this paragon of development and governance from supply driven and government centric to demand driven and people-centric, role of PRIs are most suited to provide the framework for ascertaining the needs and aspirations of the people of the local level through PRI representatives available in 3 tiers of local governance structure along with effective functioning of Gram Sabha . It has been acknowledged by all sections that sitting at national/State capitals the people’s representatives cannot fulfill the aspiration of the local people and solve their problems. By empowering the PRIs and its elected representatives the overarching influence of bureaucracy can be curbed largely. Besides, when governance is established at the grassroots the procedure and practices of community come to foreplay vis-a-vis the governance structure and legal provisions. This will also free the Indian polity from middlemen who have mediated in the system. As a result the voices of the people are seldom heard, if heard are not taken into consideration. The voiceless people are brought to the election platform as voters through mediation by local mediators belonging to dominant castes and communities.
Judging in the above backdrop, the 73rd Constitutional Amendment has provided the institutional mechanism for creating an enabling environment for people’s participation through Gram Sabha and shaping the felt needs of the people through PRIs and largely, implementing the schemed programme for economic development and social justice.

The 73rd Constitutional Amendment, if properly carried out in letter and spirit has enough potential to alter the nature of governance and power relations amongst the unequal. It has tremendous scope to solve the problem of exclusion. Having realized the full implication of the Amendment, those who are in power corridor have devised new ways of sponsoring wives / daughters in local body elections the landlord is sponsoring his farm laborer for election for the seat reserved for Dalits.

Even after 26 years of the Amendment confusion has been created deliberately on devolution of powers to PRIs. Some states argue that neither PRI being a State subject they are at liberty to devolve powers by taking their own time and by interpreting the provisions of the Amendment as not mandatory nor any time frame has been prescribed thereunder. Even some states have not framed conformity legislatives in time with the spirit of the amendment, even different Departments of Central Govt. have not amended their Acts/Rules in conformity with PESA Act, for Scheduled Areas. Govt. either State or Central, people’s representatives should remember that the 73rd Amendment is the outcome of the failure of the State Govt to make the Panchayat institutions of self-governance. Judging in this perspective State Govts do not devolve powers to PRIs by not taking them into trust on the plea that PRIs indulge in rampant corruption, they do not have required staff and infrastructure, even efficiency to cope up with the extra load of devolution. The basic reason at the root of such reluctance is the hesitation of people’s representatives to part with their power / authority which they exercise through Block/ District Administration by influencing the Govt. machinery. This sort of nexus also results in corruption and impartiality and neutrality of bureaucracy is shattered and worst of all the people never set their needs and aspirations fulfilled.

Local self-governing bodies form an integral part of a democratic society. They are designed to play an effective role in the evolution of people’s participation from the lowest level, giving scope and opportunity for expressing themselves in administration, solving economic and social problems as per community interests thus paving for integration of the community and its welfare.

The term ‘development consists some complicated process/stages like people’s participation, planning at the grassroots, transparency and accountability of the implementing agencies, desired outcomes ensuring quality which can be integrated holistically for all round development and economic prosperity. Hence to make PRIs work like a mass movement it should start from the grassroots for socio-economic transformation to instill a mindset amongst all i.e. planning administrators, peoples representatives, NGOs social activists to realize the potential of the new dispensation.

It is now widely debated that whatever could not be done by 73rd Constitutional Amendment has been done by MGNREGA. The Act has not only transformed the rural scenario, it has changed the face of PRIs participants for the two tiers at the lowest level. The Act has stepped the abilities of the GP in terms of finance as an implementing agency bringing about grassroots planning, supervision in implementation, social audit grievance etc. It is clear-cut case of people's participation at its best eventhough the implementation of the scheme is still grappled with many deficiencies. The Central/ State Govt. should come forward with schemes which will strengthen the PRI infrastructure including financial activity and more people’s participation. Besides, some incentive schemes are to be introduced by Central Govt. which will allow the state Govt. for transforming power to PRIs in tune with 73rd amendment.

Despite all drawbacks the Panchayats have started transforming the living conditions of the rural poor by its functioning. By now more than 30 lakh PRI representatives are in position in India who mainly come from middle classes SC/ST/OBC categories and are thread of them are women. In Kerala due to well functioning of PRIs endowed with developed powers rural development has been phenomenal and it has contributed a lot for alleviating poverty in the state. In W.B., PRIs have taken deep roots and it was instrumental in successfully carrying out land reforms by involving itself in Operation Bargadars. In southern state like Karnataka, Tamilnadu and Andhra Pradesh PRIs also function up to satisfactory level even amid deficiencies. In a country like India rural development and banishment of poverty is only possible when PRIs are fully empowered with powers and they work effectively without hostels.

Gram Panchayats, MDGs and SDGs

India has witnessed significant progress towards the MDGs, with some targets having been met ahead of the 2015 deadline, however progress has been inconsistent. For instance, while India, according to official national estimates, has achieved the target for reducing poverty by half, it is falling short of achieving the target for reducing hunger. The country has achieved gender parity in primary school enrolment yet it is lagging behind on targets for primary school enrolment and completion. India has made progress in providing clean drinking water however; access to sanitation facilities remains inadequate.

India is one of the signatories to the resolution on SDGs. It has moved ahead on the nationalising of the implementation of the SDGs and initiated preparation of the Vision Document 2030 with NITI Aayog in the lead. Based on the guidance from NITI Aayog, State governments have begun the process of SDGs implementation. In addition to the State level, there is a critical need to take SDGs to the local level. Here lies the importance of local governments, especially the Gram Panchayats.

The twin objectives of the Panchayati Raj system as envisaged by the Constitution of India are to ensure local economic development and social justice.

The Eleventh schedule of the Constitution expects the Panchayats to play key roles in various thematic domains enlisted as 29 functions, though the specific mandates and capacities of these local governments vary from State to State. Many of the SDG targets are within the purview of these functions listed in the Eleventh Schedule.

There are also the various flagship programmes such as Swachh Bharat Abhiyan, Make in India, Digital India, Skill India, and Jan Dhan Yojana which are at the core of the SDGs and local governments play a pivotal role in many of these programmes.

• The Gram Panchayat Development Plans (GPDP) initiated after the historical recommendation of the Fourteenth Finance Commission paves the way for the Panchayats to link planning with the SDGs.
• For localisation of SDGs, the Ministry of Panchayati Raj (MoPR) has prepared a ‘Draft Vision Document for Achieving SDGs’. It has mapped roles of Panchayats in terms of SDGs and centrally sponsored schemes (CSS).

Presently the PRIs are ridden with rampant and corruption for which both representatives and officials are responsible. Some of the procedure /process of PRIs are obsolete and need urgent attention Corruption scenario can be tackled by setting state/district level ombudsmen and tracking down exemplary anti-corruption cases. The efficiency of PRI representatives and officials, RD functionaries can be raised by constant capacity building efforts. Infrastructure of PRI can be strengthened by developing a computerized scientific database, more trained and skilled manpower like JEs, Accountants . Overall the Palli / Gram Sabha should also be empowered to encourage people’s participation in decentralized planning, supervision in implementation, social audit, grievance redressal . In India the media is not championing the cause of PRIs as it does for Central/ State Govts. Wherever in India , committed leader with vision and capability is emerging, decentralized governance has worked wonders. Therefore our people’s representatives and bureaucrats should accept PRI representatives role as complementary to them. They should not work as development brokers and think for aspirations of the people. Enlightened citizens can set on the mindset of officials and people’s representatives and bring about a transformation. RTI Act, 2005 should be treated as a tool in their hands to toe the administration to their line . Then only Gram Swaraj as thought by Gandhiji will be reality.