Panchayts and Parallel Bodies in Andhra Pradesh
Understanding and Observations
The constitution 73rd and 74th amendments in the early 90s f the last century gave space
to rural and urban local bodies a space in the constitution. The amendments envisaged
these bodies emerge as self governing units for planning for social justice and economic
development. In practice since then various alternative modes to pursue economic
development and reaching to the people were evolved. Those modes paved way for
alternative paths for “development”. This process led to a debate about the friction
between legitimacy and capacity of existing of popularly elected body at the other
structures said to be designed for the same function.
In the development discourse this is known as relation ship between Panchayati Raj
Institutions and Parallel bodies. In the Andhra Pradesh context this note tries to touch
up on some theoretical and policy aspects and field level practices which enable or
disable convergence of Panchayats and parallel bodies. The write up sheds some light on
the situation since mid 1990s and focuses on the situation since late 2004.
Theoretical frame and the policy Prescriptions
The enshrinement of Panchayts and Urban local bodies in the constitution and the
structural adjustments and reforms in started in early nineties in India. The debates for
restructuring the economy and for reinvigorating decentralized democracy emerged
simultaneously. The new economic logic pleaded good governance for and with
economic development( dominance of economic thinking giving credence to
efficiency in what ever form it may be) where as the logic democratic
decentralization hinged around (at least in debates) around economic development
with social justice (balancing the economics with politics of inclusion and
contestation). Reinvigorated democratic decentralization debate wanted those local
government institutions to transform from mere delivery mechanisms of government to
units of participatory democratic governance at sub state level.
The reason for strain between the parallel bodies and Panchayats can be located in the
friction between these thought currents. Policy prescriptions in consonance of economic
efficacy led to development of alternative approaches to service delivery, natural resource
management and poverty alleviation. Andhra Pradesh1 has been the pioneer in these
policy experiments .
These interventions led to development of second generation2 of parallel bodies to
Panchayats (Vijay Anand and Raghu Nandan 2004). In any given gram Panchayati in
1
Andharprdesh is the first state in the country where the world bank has has embarked on a regional sub
national level structural adjustment program. Mentioned in Thimma Reddy and K. S Gopal , Raghav Narsale
and Minar Pimple(2001) : Economic Restructuring of Andhraprdesh : an Analytical Introduction to
Andhraprdesh Economic restructuring Project. Center for Environment Concerns, Hyderabad : Focus
on the Global South , Mumbai.
2
More on these bodies is available in the paper by S.M .Vijayanand and T.R. Raghunandan (2004) in a
Brief Note On Parallel Bodies ( Paper circulated in the second round table conference of the State
1
Andhra Pradesh there are nearly ten parallel bodies comprising stake holders
committees ,user groups , self help groups etc. Some of them had statutory backing
Water Users Associations (WUA), School Educating Committees, (SEC) are examples of
this variety. Other was creation of Government Orders like Vana Samrakshana Smiths or
registered under society’s act like Women Self Help Groups.
These bodies were supported as specialized agencies of various line departments for
taking up specialized job. Sprouting and flourishing of these specialized bodies is also
can be ascribed to the skepticism of policymakers and bureaucrats about the abilities
of the local institutions. This skepticism appears to be a product of the rural reality of,
illiteracy, poverty and caste ridden society. This was true of pre reform period in Andhra
Pradesh too. The situation has not become better with a paradigmatic shift from state
centric system to market orientation.3.
The problem to a substantial extent lies in understanding of the local institutions as
delivery mechanisms of higher echelons of government (Union and State). This approach
did not change even after provision of constitutional space to them. The reforms pushed
forward the argument of efficient delivery services and governing for results and
emphasized the increase of the “stake holders”4 ( not citizens) in the development efforts.
This move significantly reduced the scope, minimized chance for innovation, stunted
the flourishing of panchayts in Andhraprdesh. Many a donor driven NGO activity since
early 1990s also undermined the local bodies. They too cared less for these grassroots
democratic institutions. In this context revitalizing them is a big challenge
The irony is that many of these specialized bodies take up the tasks mentioned in the
eleventh schedule which provided for a list of 29 subjects in which panchayts has to be
given primacy(along with two higher level governments). Especially the areas which are
crucial for human and natural resource management were de linked from the ambit of
panchayts. Ones again the argument against panchayts hinged around inefficiency and
lack of capacity. In fact Panchayats are sparingly capacitated compared to these parallel
bodies. With the advent of this specialized body focus has shifted to build capacity of
those stake holders than to the popularly elected bodies. Thus is the current state of
marginalization of constitutionally mandated institutions for democratic decentralization.
Scenario On the ground
By late 2004 the Women’s self Help groups or (WSHGs), Water Users Associations,
Vana Samrakshana Samithis and watershed committees (supported by District Water
Management agency DWMA and other agencies)were in vogue with proper support. The
Ministers of Panchayathi Raj held in Mysore in august 20004)- accsses from http://www.solutionexchange
–un.net.in/decen/cr/res08030703.doc down loaded April 2007
3
G. Krisna Reddy in Governance reforms and development in Andharaprdesh: A view through rural
prism in : Globalization , Governance reforms and Development in India Ed. Kameshwar
Choudhary,2007 Sage,New delhi.
4
Mooij Jos ,2003, in smart governance? Politics in policy process in Andhraprdesh , India working paper
no 228 , London , Overseas Development Institute
2
school education committees of previous statutory incarnations are done away with.
These parallel bodies have enhanced stakeholders understanding of the scheme of things.
General characteristics of P.Bs





They are financially stronger than any average panchayts. For example any
watershed committee of minimum 200 Ha would have finance resources of Rs.12
lakhs5 (GOI 2008) for a period of five years.
They are accountable to small group of stake holders and the officials of line
departments associated.
They have exclusive focus on specific tasks as stake holders. For example many
times the Village Organization (VO)–a body elected from small WSHs in the
village feels that the business of thrift and credit is a private affair which need
not be discussed at gramasabha.
Many of these bodies are creatures of executive orders.
They generally keep away from the function process of panchayats
Reasons for conflict





Parallel Bodies completely undermining the panchayts and function
independently.
The need and mandate for convergent action with PRIs is violated thus leading to
duplication and pilferage.
The exclusive patronage of technical support of the line departments to the
parallel bodies associated with their activities.
Sharing of the information and, resources and the results of the tasks is not taking
place. This opaqueness leads to doubts and mis understanding .
There is no organic link established between PBs and panchayats( Occassionallly
there is a notional membership of sarpanch in some of these parallel bodies which
in reality did not hold any substance)
These characteristics keep the parallel bodies and panchayts in an unhappy relation.
Field level efforts for convergence:
Though the general policy climate is inimical to panchayats there are some positive
practices are on the ground. Here are some cases from the field where there is convergence
was achieved at functional level..
5
Government of India 2008 Common Guidelines for watershed development Projects, reproduced by
WASSAN in 2008.
3
Case –I
SHG and Panchayats. In Anathema Grama Panchayat of Parvathagiri Mandal of Warangal
district there is higher degree of convergence between the Panchayat and the Village level
organization of Women Self Help Groups. It was achieved through understanding and
rapport generated between the Sarpanch and the leaders of SHGs.
This led to establishment of a water treatment plant with in the village by the women’s
groups and now they are running with profit. The plant is governed by a committee in
which one of the ward members is the committee member. Water is supplied to the plant
from the panchayath and a building was constructed with general funds to house the water
treatment equipment. And the committee reports its monthly activity to the Panchayat.
This is a case of cooperation
Case-II
WUA and Gram Panchayth ( Cinna ramana Gari Palle)
China Ramona Gari palle of Nallamada Mandal of Anantha puram is an example for
convergence between the water users association and the Panchayat. The water users
association closely worked with the Panchayt and farmers in the Panchayat decided to stop
digging bore wells. Instead they started sharing of water from the existing 38 bore wells.
The village tank is treated from the catchment to the command. Funds of WUA are used
and the accounts are presented in the gramasabha.
The water users association keeps all its accounts in public domain.The panchayth are
working in close collaboration with water users association. Panchayat and WUA now
prepare crop and water use plan for the village every year keeping the rainfall and water
table level in view. This is a case of cooperation
Case III.
Establishing and strengthening functional relations between PRIs and VSSs:
Experiences of SVRDES
The main objective of the initiative is to facilitate convergence of VSSs and PRIs for
effective and purposeful natural resource management and work towards building
functional relationship between VSSs and PRIs. Both the institutions realized the need to
converge and work towards effective management of natural resources. A series of
meetings between these institutions helped to reach an understanding. Information sharing
facilitated strengthening of relations. There was mutual trust and understanding which
paved the way for smooth functioning of convergence .
The above cases of functional convergence shows bring us to some pre requisites
4
Convergent efforts in the face of adverse policy environment



Understanding the commonality of the mandate by the Panchayat and the parallel
body.
Information sharing among the institutions
Sharing of the resources between and among the institutions
What can be done at policy level?







There are serious efforts at convergent action at the higher levels of the line
departments concerned with holistic development with ministry of the panchayati
raj.
Committee system has to be strengthened at the Panchayat.
Participatory planning for economic and social development by the panchayats
and parallel bodies has to be mandated.
Grama Sabha has to be strengthened and all the parallel bodies have to be made
accountable to it.
There should be a monthly convergence meeting of the general body of the
Panchayat and the office bears of the parallel bodies.
All the financial and work related records of the parallel bodies and the
panchayats have to be kept in public domain.
All the Operation and maintenance budgets for the structures developed by the
parallel bodies have to be rooted through the panchayath.

There is need for a concrete thinking around the principles of subsidiary, efficiency,
democratization and citizens right full participation in decisions which affect them.
5