**Executive Summary**
This report details the progress of implementing the Panchayats (Extension to the Scheduled Areas) Act (PESA), 1996, in Odisha, specifically the drafting of the State PESA Rules, 2023. It highlights the central government's role in monitoring state compliance through national conferences and a newly developed set of 10 PESA performance indicators. Key activities include the recent sharing of modified draft rules with stakeholder departments for final feedback following public consultations.
**Key Points / Main Content**
**Legislative Status in Odisha**
* **Integration of Provisions:** The Government of Odisha has incorporated PESA provisions into the Orissa Grama Panchayats Act, 1964.
* **Draft Rules:** The draft Odisha Grama Panchayats (Extension to Scheduled Areas) Rules, 2023, were published on November 10, 2023.
* **Consultation Process:** The state has completed public hearings for objections and suggestions, leading to a modified draft currently under review by stakeholder departments.
**Governance and Monitoring**
* **State Jurisdiction:** As "Local Government" is a State subject, the Odisha government is responsible for effective implementation at the village level, including Gram Sabha management and natural resource oversight.
* **Central Oversight:** The Union Ministry of Panchayati Raj monitors compliance through regional conferences (Pune and Ranchi in early 2024), national conferences (September 2024), and "writeshops" (May 2025).
* **Self-Governance Promotion:** Events like the PESA Mahotsav 2025 in Andhra Pradesh have been used to showcase tribal culture and promote self-governance.
**Performance Assessment Framework**
The Ministry of Panchayati Raj developed 10 PESA indicators to identify gaps and strengthen implementation, including:
* Alignment of State Panchayat Raj Acts with PESA.
* Notification and conformity of State PESA Rules.
* Uploading of Gram Panchayat Development Plans (GPDP) and Gram Sabha minutes to the 'Panchayat NIRNAY' portal.
* Mapping of PESA villages in the Local Government (LG) directory.
* Deployment of dedicated PESA staff and training under the Rashtriya Gram Swaraj Abhiyan (RGSA).
**Impact Analysis**
**Government of Odisha (State Departments)**
**Impact**
Responsible for the legislative alignment and ground-level execution of PESA mandates.
**Action Required**
Must review modified draft rules, provide constructive feedback, and utilize the 10 PESA indicators to assess performance and identify implementation gaps.
**Ministry of Panchayati Raj (Union)**
**Impact**
Acts as the monitoring body to ensure states comply with the PESA Act through capacity building and assessment.
**Action Required**
Continue organizing regional workshops and monitoring the 'Panchayat NIRNAY' portal for digital compliance and data uploads.
**Scheduled Area Communities and Gram Sabhas**
**Impact**
Gains legal backing for self-governance and control over minor forest produce and natural resources.
**Action Required**
Participate in the orientation programs under RGSA and ensure the documentation of meetings (minutes/photos/videos) is uploaded to central portals.
Key Entities Referenced
The provisions of the Panchayats (Extension to the Scheduled Areas) Act (PESA), 1996: The central legislation that extends panchayat provisions to Fifth Schedule Areas to ensure self-governance for tribal communities.
Odisha Grama Panchayats (Extension to Scheduled Areas) Rules, 2023: Draft state rules notified to establish a specific regulatory framework for implementing PESA mandates within Odisha.
Ministry of Panchayati Raj: The Union Ministry responsible for monitoring state-level PESA compliance and developing the 10 PESA performance indicators.
Orissa Grama Panchayats Act, 1964: The principal state legislation into which the Government of Odisha has incorporated PESA provisions.
Odisha: The primary state of applicability where the implementation of PESA rules and self-governance structures is being executed.
Ministry of Tribal Affairs
IMPLEMENTATION OF PESA ACT,1996 IN
ODISHA
Posted On: 25 MAR 2026 2:26PM by PIB Delhi
The Union Minister of State for Tribal Affairs Shri Durgadas Uikey today informed Rajya Sabha that the
subject matter of the question pertains to the Ministry of Panchayati Raj. The Ministry of Panchayati Raj
has informed that:
"To implement “The provisions of the Panchayats (Extension to the Scheduled Areas) Act (PESA), 1996
to the Fifth Schedule Areas of Odisha, the Government of Odisha has incorporated the provisions of PESA
Act in their State Panchayati Raj Act, i.e., the Orissa Grama Panchayats Act, 1964.
The Government of Odisha has informed that draft notification for Odisha Grama Panchayats (Extension
to Scheduled Areas) Rules, 2023, has been published in the Odisha Gazette on 10.11.2023, and objections/
suggestions have been invited from all persons likely to be affected. After that, the State Government has
conducted personal hearings of the persons/organisations who had submitted objections/ suggestions on
the said draft notification. Further, the Principal Secretary, Panchayati Raj and Drinking Water Department
(Odisha), has conducted many consultative meetings with various Stakeholder Departments. After
considering objections/suggestions, the State Government has modified the draft PESA Rules and shared
them with all Stakeholder Departments to review and provide constructive feedback.
"Panchayat," being "Local Government", is a State subject and part of State List of Seventh Schedule of
the Constitution of India. Panchayats are set up and operate through the respective State Panchayati Raj
Acts which may vary from State to State, subject to the provisions of the Constitution. Accordingly, all
matters relating to Panchayats, including to ensure the effective implementation of the PESA Rules at the
village level, to monitor the review compliance with PESA provisions such as gram sabha, minor forest
produce and natural resource management, fall within the purview of the State Government.
However, to ensure the effective implementation of the PESA in the State of Odisha, Ministry of
Panchayati Raj monitors the compliance with PESA provisions from time to time through
National/Regional conferences, workshops, writeshops, etc. Recently, the Ministry has organised two
Regional Conferences on PESA on 11th and 12th January, 2024, at Pune, Maharashtra, and on 4th and 5th
March, 2024, at Ranchi, Jharkhand with a view to assess the progress made by the States in implementing
the PESA Act and to develop a common vision on its impact at the grassroots level. The Ministry has also
organized a 'National Conference on PESA Act' on 26th September, 2024 at New Delhi. A National PESA
Writeshop has also been held at Pune on 13 and 14 May 2025. PESA Mahotsav, 2025 was celebrated on
the occasion of PESA Day in Andhra Pradesh to promote and strengthen self-governance in Scheduled
Areas. The event included sports competitions, traditional tribal games, cultural performances, and a Craft
Bazaar and Food Festival showcasing tribal art, handicrafts, and indigenous cuisine.
Ministry of Panchayati Raj has recently developed 10 PESA indicators to facilitate State Governments in
assessing performance, identifying gaps and taking appropriate measures to strengthen the implementation
of PESA in the State. These 10 PESA Indicators are- Alignment of State Panchayat Raj Acts with PESAProvisions; State PESA Rules Notified; Provisions in State PESA Rules in conformity with PESA Act;
Amendments in State Acts/Rules/Regulations Policies /Executive Directions of other line departments to
comply with PESA Act; GPDP plan upload of PESA Gram Sabhas; Mapping of PESA
Villages/Panchayats in LG directory; Deployment of PESA Staff at State Level; PESA Trainings;
Orientation of PESA Gram Sabha under RGSA and Uploading of photos/videos and minutes of Gram
Sabha on 'Panchayat NIRNAY' portal."
*****
RN/
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