Functional Devolution of Panchayat
The functional devolution of Panchayats refers to the transfer of responsibilities, authority, and resources from the state government to the local self-government institutions at the village, intermediate, and district levels. This process is essential for strengthening grassroots democracy and enabling local governance in a decentralized manner. In India, this devolution is guided by the 73rd Constitutional Amendment Act, 1992, which mandates the establishment of Panchayati Raj Institutions (PRIs) and empowers them to function as institutions of self-government.
Key Features of Functional Devolution
The functional devolution of Panchayats primarily involves three key dimensions:
1. Functions (What Panchayats should do):
Panchayats are entrusted with a wide range of functions that are meant to address local issues and ensure the delivery of basic services. These functions are broadly based on the Eleventh Schedule of the Constitution, which lists 29 subjects such as:
- Agriculture and land improvement
- Minor irrigation, water management
- Animal husbandry, fisheries
- Social forestry and fuel wood
- Rural housing
- Drinking water
- Roads, bridges, and rural connectivity
- Health and sanitation
- Primary and secondary education
- Women and child development
- Social welfare, and more.
However, actual devolution of these functions varies from state to state depending on their legislation and political will.
2. Finances (How Panchayats will do it):
Devolution of functions is incomplete without adequate financial devolution. Panchayats must be provided with:
- Funds from the State Finance Commissions (SFCs)
- Grants-in-aid from the central government (e.g., under schemes like MGNREGA, PMAY)
- Powers to levy and collect local taxes, fees, and fines
3. Functionaries (Who will implement it):
Panchayats require adequate staff and technical support to carry out their functions. This includes:
- Transfer or placement of government functionaries (e.g., health workers, teachers) under the control of Panchayats
- Capacity building and training for elected members and staff
- Administrative support through Panchayat Secretaries, Rozgar Sahayaks, etc.
Importance of Functional Devolution
Functional devolution is necessary to:
- Improve service delivery at the grassroots level
- Enhance transparency and accountability
- Promote people’s participation in governance
- Ensure bottom-up planning
- Achieve the goals of inclusive and sustainable development
However, despite constitutional provisions, real devolution remains uneven and partial across Indian states. Many Panchayats face challenges like limited autonomy, inadequate funds, and lack of trained personnel.
What is Activity Mapping in Panchayats?
Activity Mapping is a tool or process used to clearly define and assign specific roles, responsibilities, and activities related to each subject listed in the Eleventh Schedule among the three tiers of Panchayati Raj:
- Gram Panchayat (village level)
- Panchayat Samiti (block level)
- Zila Parishad (district level)
The goal is to ensure clarity of function, avoid duplication, and enable accountability in service delivery.
Process of Activity Mapping
The process of activity mapping typically involves the following steps:
1. Identification of Core Activities:
Each of the 29 subjects in the Eleventh Schedule is broken down into core activities like:
- Planning
- Implementation
- Monitoring
- Maintenance
For example, in the subject of primary education, core activities may include school construction, teacher appointment, distribution of books, and midday meal management.
2. Allocation of Activities to Panchayat Tiers:
Each core activity is then mapped to the appropriate tier:
- Gram Panchayat: Local level activities like school management, water supply, village sanitation
- Panchayat Samiti: Intermediate-level planning and coordination
- Zila Parishad: District-wide strategies, resource allocation, and supervision
This distribution is done based on:
- Capacity of the Panchayat
- Geographical spread of the activity
- Technical and financial requirements
3. Integration with Departmental Schemes:
Activity mapping is also linked with line departments like health, education, rural development, etc. Their schemes and activities are mapped with PRIs so that convergence is achieved.
For instance:
- Anganwadi services (ICDS) are coordinated with Gram Panchayats
- Rural roads and housing are aligned with Panchayat development plans
4. Legal and Administrative Backing:
State governments are required to pass Government Orders (GOs) or include activity mapping in their Panchayati Raj Acts. This legalizes the delegation of functions and empowers PRIs.
5. Monitoring and Capacity Building:
Once activities are mapped, training programs, reporting mechanisms, and performance audits are developed to support effective execution.
Example of Activity Mapping (in Indian Context)
Let’s take an example of the Drinking Water function:
| Activity | Gram Panchayat | Panchayat Samiti | Zila Parishad |
|---|---|---|---|
| Identification of sources | ✔ | ||
| Minor repair of hand pumps | ✔ | ||
| Construction of large tanks | ✔ | ||
| Planning of water schemes | ✔ | ✔ | |
| Coordination with PHED | ✔ |
This kind of detailed mapping ensures clear division of tasks and better service delivery.
Challenges in Functional Devolution and Activity Mapping
- Lack of Political Will: Many states hesitate to give up power to local bodies
- Inadequate Funds: Panchayats often lack financial autonomy
- Poor Capacity: Elected members may not have enough training
- Resistance from Line Departments: Departments may not want to share control
- Monitoring Issues: Lack of robust systems to track activity execution
Conclusion
The functional devolution of Panchayats and activity mapping are essential for the realization of true decentralization in India. While constitutional and legal frameworks exist, effective implementation at the state level is key. Clear activity mapping backed by adequate funds and trained personnel ensures that Panchayats become vibrant institutions of local governance capable of addressing the needs of the rural population.