Guarding grassroots democracy amid the unfinished agenda of local self-rule

The high expectations generated by the Constitutional amendments, and the laws enacted by Parliament and the State Legislatures, as a consequence, were largely belied by the continuing malaises of corruption both physical as well as moral and leakages in the administrative missionary.

Concerned by that situation and with a view to ensuring that the objectives of the constitutional and legal initiatives are realised, the government of India took several steps.

There followed many programmes aimed at containing, if not eliminating, leakages and graft in the process of reaching the intended benefits to the grassroots level PRIs. Prominent among them were, the Mahatma Gandhi National Rural Employment Guarantee scheme and the Swachh Bharat Mission, which provided for direct channeling of funds from the government of India to Grama Panchayats.

The overall effort has been directed at empowering PRIs and ULBs, through constitutional and statutory provisions that ensure that they are provided with the three Fs, namely functions, funds, and functionaries.

The concept of local self-governance, as a means of democratic functioning of bodies at the local level, was known even in ancient Greece, in the shape of the Polis and the Italian City States of the Middle Ages, such as Florence and Venice.

I remember how, in the days when I entered service, PRIs were robust and active, with the Sarpanchs, the Samithi Presidents and ZilaParishad Chairmen (as they were known in Andhra Pradesh state at that time), playing a predominant role in developmental activities, compared to legislators, be they MLAs or MPs. States such as Maharashtra and Gujarat, for example, even had IAS officers, who were senior even to the Deputy Commissioners, to be the Chief Executive Officers of ZillaParishads, an arrangement that reflected the importance those governments attached to the concept of strengthening local self-governance.

Going forward, one expects a new era of flourishing local self-government being ushered in, with programmes such as ‘eGramSwarajSwaraj’ and ‘SVAMITVA’ (Survey of Villages and Mapping with Improvised Technology in Village Areas, which uses drone technology), strengthening the effort.

Broadly speaking, the Gram Sabha acts as the legislative and supervisory body, with the Gram Panchayat as its executive arm. It approves development plans and annual budgets and financial statements and ensures accountability and financial propriety on the part of the Gram Panchayat, which is responsible for the day-to-day administration of the affairs of the village and execution of the programmes approved by the Gram Sabha.

It will, however, be necessary for the Gram Sabha to be wise and mature in the matter of exercising its power and authority. The Gram Panchayat should be free to take appropriate action in the jurisdiction allotted to it without undue interference.

Importantly, periodical monitoring should not degenerate into interfering with day-to-day matters. As John Stuart Mill, the great political philosopher, wisely observed, the tyranny of the majority, or the social pressure where the majority’s opinions and customs can suppress individual liberty, should always be guarded against.

A well known Latin proverb goes ‘Quiscustodietipsoscustodes?’, which translates into “Who will guard the guards themselves?” The phrase, from the Roman poet Juvenal, questions the accountability of those in positions of power, particularly when they are supposed to be enforcing rules or maintaining order.

The State Election Commissions and The State Finance Commissions, established under the Constitutional amendment, need to recognise the fact that the status and rank accorded to them, and the duties and functions entrusted, cast a heavy responsibility on their shoulders.

They are, after all, the guardians of grassroots level democracy. They should not, therefore, give any scope for the possible criticism, that it is necessary to have guards to guard the guardians.

In order to enable the PRIs effectively to discharge the functions and responsibilities assigned to them by the Constitution, the central and state governments need to ensure that the 3Fs are provided to them, namely, functions, functionaries and funds.

Just as in the case of the Councils of Ministers at the national and state levels, the heads of Panchayati Raj Institutions, at all the three tiers in the district, need to appreciate the importance of teamwork. Every one of them should realise should realise that they enjoy the status of being the first among equals, or primus inter pares, and carry the members of their team with them in all matters.

An integral part of the effort is to remain vigilant to the possibility, of those in power twisting the interpretation of the nuances of extant policies, to justify undue privileges being enjoyed by them and creating a new hierarchy where some individuals are given special treatment; or appearing to be fair, in other words, while being exactly the opposite.

The reason why George Orwell, in his legendary book, Animal Farm, said “all people are equal, but some are more equal”, satirising the hypocrisy and equality that go with the power of those in authority

Other methods to increase the efficacy of the system include the use of modern communication method, such as SMS alerts in public portal, for communication between the Gram Panchayat and the villagers, incentivising participation through social events, health camps, and instituting awards for exemplary conduct by villagers and encouraging social audit by public display of audit and action taken reports on decisions taken earlier.

Regular training programmes to empower the functionaries of the Gram Panchayat, such as the Sarpanchs and the Secretaries, is also, an important means of promoting greater efficacy of the system.

In recent times the realisation that the “government alone” approach will no longer do has dawned. A government, be it at the national or the state level, is but one of the actors in the process while NGOs, Local Self Government bodies and Civil Society Based Organisations are some of the others.

Abraham Lincoln’s definition, of democracy as being one “of the people, by the people and for the people,” will, in today’s context, need to be expanded also to say ‘with’ the people, which spirit is implicit, but appears to be in deep slumber and needing to be awakened.

Challenges which need to be addressed in the future include ensuring maximum participation by the villagers in the Gram Sabha meetings, regular conduct of meetings, the people of the village remaining vigilant about the possibility of power and authority being hijacked, by dominant social groups and the cronies of the Sarpanch, creating greater awareness among the villagers of their powers and rights and ensuring that decisions taken are implemented.

As Thomas Jefferson, one of the Founding Fathers of America, said, eternal vigilance is, in the ultimate analysis, the price of liberty.

A weakness that pervades the entire hierarchical structure from the central government through the states and the districts to the block and Gram Panchayat, is that no level is willing genuinely to decentralise authority and power, and contentsitself with mere delegation.

Unless this conundrum is addressed purposefully and prompt remedial measures taken, the entire exercise is in danger of degenerating into a farce.

(The writer was formerly Chief Secretary, Government of Andhra Pradesh)