Panchayat Devolution Index 2024

Context: The Ministry of Panchayati Raj has recently published the Panchayat Devolution Index 2024. The index was last published in 2014. Over the past decade, the national average score has increased from 39.92 to 43.89.

About Panchayat Devolution Index (PDI)

• PDI is a tool to assess the devolution of powers and resources to Panchayati Raj Institutions (PRIs) across Indian states and Union Territories. 
• The index measures the performance of India’s panchayat system across states based on six key parameters:
  • Framework: Legal and policy framework supporting Panchayati raj institutions.
  • Functions: Extent of devolution of functions to panchayats.
  • Finances: Availability and allocation of financial resources.
  • Functionaries: Availability of trained personnel and administrative capacity.
  • Capacity building: Training and skill development of panchayat members.
  • Accountability: Transparency and effectiveness in governance.
• Developed by: Indian Institute of Public Administration. 

Key findings of the 2024 report

• Top performing States: Karnataka, Kerala, and Tamil Nadu.
• The national average score rose from 39.92 in 2013-14 to 43.89 in 2024.
  • The PDI was last published in 2014. The slight improvement in national average score indicates modest progress in devolution efforts. 
• Improvements and Declines:
  • 18 states and Union Territories improved their scores, while 11 recorded declines. 
  • Uttar Pradesh and Bihar showed the biggest improvement compared to their past performance.
  • Maharashtra, despite ranking fourth overall in 2024, is the only top-10 state to register a decline.
• Lowest-ranked states: Manipur, Arunachal Pradesh, and Jharkhand, with Manipur, Arunachal, and Haryana experiencing the steepest declines over the past decade.

Representation and demographics of Panchayats in 2024

• Total number of panchayats in India:
  • Numbers have increased from 2.48 lakh (2013-14) to 2.62 lakh (2024).
  • States with the highest number of panchayats are Uttar Pradesh, Maharashtra, and Madhya Pradesh.
• Average rural population per panchayat:
  • Increased from 3,087 (2013-14) to 4,669 (2024), indicating a trend of fewer but larger panchayats.
  • West Bengal, Assam, and Bihar have the most densely populated panchayats.

Women's representation in Panchayats

• Women’s reservation in panchayats:
  • Most states follow the 50% reservation quota for women in panchayat seats.
  • However, seven states and UTs fall below their mandated quota, E.g., Madhya Pradesh, Haryana, Punjab, and Tripura.
• Highest representation of women:
  • Odisha (61.51%)
  • Himachal Pradesh (57.5%)
  • Tamil Nadu (57.32%)
• Lowest representation of women: Uttar Pradesh (33.33%), which aligns with its one-third reservation policy for women rather than the 50% quota followed by most states.
• Overall progress:
  • The national average of women representatives has risen slightly from 45.9% (2013-14) to 46.44% (2024). 
  • The number of states with 50% or more women representatives has increased from 11 (2013-14) to 16 (2024).

Representation of Scheduled Castes (SC), Scheduled Tribes (ST), and Other Backward Classes (OBC): 

• Highest representation of marginalised groups in panchayats: 
  • Scheduled Castes (SCs): Punjab (36.34%)
  • Scheduled Tribes (STs): Chhattisgarh (41.04%).
  • Other Backward Classes (OBCs): Bihar (39.02%)
• National averages for representation of marginalised groups in 2024: 
  • SC representation: 18.03%
  • ST representation: 16.22%
  • OBC representation: 19.15%
• Arunachal Pradesh: Reported 100% ST representation (2013-14), but did not provide 2024 data.

Challenges faced by Panchayats

1. Funding: 

• Despite allocations, actual release of funds is often delayed. For instance, in 2023-24, only Rs 10,761 crore out of Rs 47,018 crore allocated was released as of November 2023.
• Poor internal resource generation: Most panchayats lack the ability to generate their own revenue, exacerbating their financial constraints.

2. Infrastructure shortfalls: 

• Many panchayats lack basic infrastructure like pucca buildings, computers, and internet access. E.g., Arunachal Pradesh has only 5% pucca buildings and no panchayat with computers.
• Digital Infrastructure: 100% computer availability in panchayats was reported in 12 states and UTs, while:
  • Arunachal Pradesh had 0% computer availability.
  • Odisha had only 13% of panchayats with computers.
• Internet access in panchayats:
  • 14 states and UTs reported 100% internet access.
  • Haryana (0%) and Arunachal Pradesh (1%) had nearly no internet connectivity in their panchayats.

3. Administrative challenges:

• Inadequate devolution of Powers: Many states have not fully devolved functions and authority to panchayats, limiting their scope of work.
• Lack of skilled functionaries: There is a shortage of trained and skilled personnel, including elected representatives and support staff.
• Interference from higher authorities: Interference by MPs and MLAs is seen to have undermined the autonomy and decision-making capacity of panchayats.

4. Women representation:

While 21 states and UTs meet or exceed the 50% reservation threshold for women, seven states fall below it.

5. Social Challenges:

• Gender and social biases: Despite reservations, women and marginalized groups often face challenges in exercising their roles effectively due to patriarchal attitudes and biases.
• Illiteracy among the functionaries: Illiterate or semi-literate sarpanch struggle to represent their panchayats effectively.

Way Forward

• Enhanced funding and infrastructure: Ensure timely release of allocated funds to panchayats and empower panchayats to generate their own revenue There is a need to invest in basic infrastructure like buildings, computers, and internet connectivity.
• Capacity building and training: Provide regular training and capacity-building programs for panchayat functionaries to enhance their skills and knowledge.
• Improved accountability and transparency: Implement robust accountability mechanisms to ensure transparency in decision-making and resource allocation.
• Strengthening framework and devolution of functions: Regularly review and update the legal framework to ensure it aligns with evolving needs and supports effective decentralization.
• Streamline administrative processes: Reduce interference from higher authorities and ensure clear devolution of powers.

Also Read: Panchayati Raj Movement is in Distress 

The PDI 2024 findings underscore the need for renewed efforts in financial devolution, administrative capacity-building, and infrastructure development to strengthen Panchayati Raj Institutions as the backbone of India’s rural democracy.