Evolution of Local Governments
in Modern India
1.
Freedom Struggle for a truly Democratic India :
Gandhiji, Jawaharlal Nehru and Jai Prakash Narayan described democracy
as the government that gives power to the people. Gandhiji said,
"true democracy could not be worked by some persons sitting at the
top. It has to be worked from below by the people of every village."
A key component of Mahatma Gandhi's vision of free, democratic India
was the attainment of genuine people's participation in their governance
affairs. He termed it 'Gram Swarajya.' People's participation in
a democratic society could be ensured only by way of 'Gram Swarajya'
where the people themselves would do the management of the village
affairs and issues. The state or central level governments would
address only those functions that could not be fulfilled by the
village citizens. The British Rule simply did not permit the evolution
of such truly democratic governments in the villages. The British,
after all, did not have the welfare of Indian citizens as their
priority.
2.
Local Governments during British Rule:
The first attempt at decentralisation was after the 1857 mutiny
with the British administration coming under severe financial pressures.
In fact, the Visakhapatnam Municipal Association was started as
early as 1858. The Resolution on Local Self-Government of 1882 set
out principles of decentralization. The resolution recognized the
twin considerations of local government: (i) administrative efficiency,
and (ii) political education and sought to promote the same. Following
the recommendations of the Royal Commission on Decentralisation
(1909), the Madras District Boards Act was passed in 1920, resulting
in the transfer of administration to elected non-officials and thus
setting the framework for decentralisation.
3.
Post Independence attempts at Local Governance :
Following
Independence in 1947, in 1950 the Constitution of India came into
force; Directive Principles of state policy mention village Panchayats
as units of 'self-government.' Balwantray Mehta Committee was appointed
(in 1957) to examine the possibility of local participation in governance
process. By 1960, several state governments enacted new Panchayat
Acts bringing in three-tier Panchayat system. But the decline of
first generation of Panchayat Raj Institutions occurred in the period
1964-77. Attempts were made to revive the Local Governments and
the Asoka Mehta Committee (1978) suggested a two-tier structure
in place of the three-tier one. In 1989 the 64th Constitutional
Amendments Bill for empowerment of Local Governments was introduced
in the Parliament but was defeated in the Rajya Sabha. Subsequently,
the Parliament passed the 73rd and 74th amendments by 1993. In response,
all state governments passed conformity Acts by 1994. These Constitutional
Amendments made it mandatory for all states to have regularly-elected
local governments. The Andhra Pradesh Panchayat Raj Act (1994) satisfied
the requirements of the 73rd Amendment by incorporating various
provisions such as five-year term for local governments and one-third
reservation of seats for women. However the Act does not have a
clear delineation of functions and duties among various tiers of
local government.
4.
Lok Satta's initiative for attaining genuine 'Swarajya' for India
: The experience over the past few decades has shown
that the Local Governments as of today, do not have satisfactory
control over the funds, functions and functionaries. There is no
clear delineation of functions between the three-tiers of local
governments (Zilla, Mandal and the Village). Financially, their
meager resources are expended on the salaries of the administrative
officials at the local levels. To compound the misery, the Government
of Andhra Pradesh has diverted the resources allocated to the local
governments by the 10th and 11th Finance Commissions. The local
governments effectively have little control over even local-level
functionaries For instance, in Andhra Pradesh, the Government Order
(GO No. 358, 2000) vested all powers relating to teaching and non-teaching
staff of schools with the District Educational Officer (DEO) removing
them from the hands of the CEOs of Zilla Parishads. This is a regression
even from the British times. In light of such clearly un-acceptable
attitude towards the local governance, Lok Satta has declared 2003
as the year of local governments and launched a "Little Republics"
campaign in Andhra Pradesh. The on-going 1-Crore Signature Campaign
aims to showcase the unequivocal public demand for improving the
status of their local governments. This movement hopes to complete
the unfinished freedom struggle for a genuine democracy in India.
|