Parliament Question: Panchayati Raj Devolution and Grassroots Governance

GOVERNMENT OF INDIA MINISTRY OF PANCHAYATI RAJ LOK SABHA UNSTARRED QUESTION NO– 2615 ANSWERED ON- 04.08.2026 PANCHAYATI RAJ DEVOLUTION AND GRASSROOTS GOVERNANCE

2615. ADV GOWAAL KAGADA PADAVI:

DR. BACHHAV SHOBHA DINESH:

SHRI VISHALDADA PRAKASHBAPU PATIL:

MS. PRANITI SUSHILKUMAR SHINDE:

Will the Minister of PANCHAYATI RAJ be pleased to state:

(a) whether the Government has undertaken an assessment, through the devolution Index, of the devolution of the 29 subjects listed in the Eleventh Schedule to Panchayati Raj Institutions, and if so, the details thereof, along with the reasons for the poor performing States in this regard, State/UT-wise;

(b) whether the Ministry has taken any action to ensure that States/UTs effectively implement the 73rd Constitutional Amendment Act, 1992, and if so, the details thereof;

(c) the details and steps taken by the Ministry to curb the 'Sarpanch Pati' practice or proxy functioning in Panchayati Raj Institutions;

(d) whether the Ministry has completed the collection of updated devolution index data from certain States which were unable to provide the same during the previous assessment and if so, the details thereof; and

(e) if so, the timeline of the release of the latest version of the Devolution Index? ANSWER THE MINISTER OF PANCHAYATI RAJ (SHRI RAJIV RANJAN SINGH)

(a) Yes, Sir. The Ministry of Panchayati Raj has released a report titled “Status of Devolution to Panchayats in States - An Indicative Evidence-Based Ranking, 2024” in February 2025 to assess the effectiveness of devolution and the role of local governments in strengthening grassroots democracy. This report presents the Devolution Index, which provides the overall scores and ranks for all States/Union Territories (UTs) covered under Part-IX of the Constitution, based on

six identified dimensions: Framework, Functions, Finances, Functionaries, Capacity Enhancement, and Accountability. The dimension “Functions” includes the assessment of devolution of the 29 subjects listed in the Eleventh Schedule of the Constitution of India. This report reveals that the extent of devolution has increased from 39.9% to 43.9% between the 1period 2013-14 to 2021-22. Ranking of States/UTs in Devolution Index and Sub-indices is attached as Annexure-I.

As per this report, States/UTs of Andaman & Nicobar Islands, Arunachal Pradesh, Dadra & Nagar Haveli and Daman & Diu, Goa, Haryana, Jammu and Kashmir, Jharkhand, Ladakh, Lakshadweep, Manipur, Puducherry, and Punjab have been categorized as “Very Low (below National Average of 43.9)” on Devolution Index. The reason of their poor performance includes delay in elections, delays in delimitation, shortage of Staff, parastatal interference, inadequate training infrastructure and training activities and irregular constitution & delays in recommendations by State Finance Commissions etc.

(b) “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. All the States/UTs, covered under Part-IX of the Constitution, have made their own Panchayati Raj Act, subject to the provisions of the Constitution. This Ministry has not received any reference/complaint from any State/UT for facing any difficulty in implementation of provisions of 73rd Constitutional Amendment Act, 1992 incorporated as the Part IX of the Constitution.

The Ministry of Panchayati Raj has implemented a Centrally Sponsored Scheme, namely the Revamped Rashtriya Gram Swaraj Abhiyan (RGSA), w.e.f. financial year 2022-23, with the objective of supporting Panchayati Raj institutions by imparting trainings to Elected Representatives and other stakeholders to develop leadership abilities, thereby enabling Gram Panchayats to function effectively across all States/UTs. Under the scheme, capacity building support is provided to elected representatives, functionaries, and other stakeholders of Panchayats under different categories, viz. basic orientation and refresher programmes, thematic interventions, specialized trainings and Panchayat Development Plan-related programmes, etc.

The scheme also supports exposure visits to facilitate experiential learning and replication of best practices for strengthening Panchayat governance, as well as development of training modules and materials etc. The Ministry also supplements the efforts of States/UTs on limited scale for creating basic infrastructure for effective functioning of Gram Panchayats such as Construction of Gram Panchayat Bhawans, Computers and Co-location of Common Service Centres (CSC) with Gram Panchayat Bhawans with focus on North East States, as proposed by States/UTs in their Annual Action Plans and later approved by Central Empowered Committee.

Further, to enhance skills and knowledge, a major step has also been taken to build capacity and train elected representatives and functionaries of Panchayats through Institutes of excellence such as IIMs/IITs under the Leadership/Management Development Program (MDP).

The Ministry of Panchayati Raj, in collaboration with IIM Ahmedabad, has also developed a training module on Own Source Revenue (OSR) to strengthen the financial self- reliance of Gram Panchayats. The module helps elected representatives and Panchayat functionaries understand how OSR is generated through tax and non-tax sources.

This Ministry has implemented the e-Panchayat Mission Mode Project (MMP) under Revamped RGSA, which has significantly enhanced transparency, efficiency, and governance at 2the grassroots level. The eGramSwaraj application, developed as part of the e-Panchayat MMP, has facilitated digital planning, accounting, monitoring, and online payments at the Panchayat level. The integration of eGramSwaraj with the Public Financial Management System (PFMS) enables real-time payments to vendors and service providers, ensuring seamless fund flow and reducing delays. The Ministry has strengthened the e-GramSwaraj platform through integration with other national digital platforms. Integration with the Government e-Marketplace (GeM) facilitates transparent, efficient and rule-based procurement by Gram Panchayats.

Further, ‘AuditOnline’, an application has been developed for online audits of Panchayat accounts and their financial management. AuditOnline for transparent auditing of Central Finance Commission funds utilization to strengthen financial management of Panchayats launched in April 2020.

Furthermore, applications developed by the Ministry like Meri Panchayat have endeavoured to bring transparency in Panchayat Governance by making information on planning, activities and progress of works in Panchayat accessible to public. Similarly, Panchayat NIRNAY is an online application that aims at bringing transparency and better management in conduct of Gram Sabhas by Panchayats.

The 16th Finance Commission (Financial Year 2026-27 to 2030--31) has recommended Rs. 87,048 Crores as Performance Grants. These Performance Grants have been divided in two components– (i) Local Body Performance Grant, which shall be released depending on the quantum of Own Source Revenue generated and enhanced by the Rural Local Bodies and (ii) State Performance Grant, which shall be contingent upon the quantum of fund transferring by the State from its own resources.

(c) It is the responsibility of the State Government concerned to take steps to curb the 'Sarpanch Pati' practice or proxy functioning in Panchayati Raj Institutions.

However, on the direction of the Hon’ble Supreme Court, the Ministry of Panchayati Raj constituted an Advisory Committee in September 2023 to examine the issue of Women Pradhans being represented by the male members of their families and also to examine other issues related to proxy practices. The Committee has submitted its Report with recommendations to the Ministry in February 2025, and the same has been accepted by the Ministry.

The Advisory Committee recommended that the State Governments take necessary measures, including social campaigns, legal reforms, monitoring and schemes to eliminate Sarpanch Patis in Panchayati Raj Institutions (PRIs) and ensure empowerment of women Sarpanches. Owing to the importance of this matter and its impact on women's leadership in PRls, this Ministry has also constituted a Task Force on 17th April 2025.

Further, the Ministry has launched a Specialized Training Module as a part of “Shashkta Panchayat Netri Abhiyan” for the capacity building of Women Elected Representatives of Panchayati Raj Institutions. The focus of this training module is to build the capacity of Women Elected Representatives across different aspects of rural governance and enhance their 3knowledge and practical skills for the effective discharge of roles and responsibilities as elected representatives, thereby promoting women-led governance.

(d) & (e) No, Sir. The Ministry of Panchayati Raj has no proposal, at present, to update the Devolution Index or to release any latest Devolution Index. *** 4ANNEXURE-I Annexure referred to in reply to part (a) of Lok Sabha Unstarred Question No. 2615 for answer on 04.08.2026 Ranking of States/UTs in Devolution Index (DI) and Sub-indices Capacity Accountability DI Framework Functions Finances Functionaries Ran Building k Sco Sco Sco Sco Sco Sco State State State State State State State Score re re re re re re General Category States

72.2 83.5 60.2 70.6 90.9 86.1Karnatak 1 Karnataka Kerala Tamil Nadu Karnataka Gujarat Telangana 81.33 3 6 4 5 4 9 a

70.5 Maharashtr 74.7 57.6 62.8 84.2 84.2 2 Kerala Karnataka Kerala Tamil Nadu Tamil Nadu Kerala 81.18 9 a 4 2 9 5 9

68.3 74.4 57.4 55.7 82.9 83.9Maharas 3 Tamil Nadu Karnataka Odisha Tamil Nadu Kerala Gujarat 80.36 8 3 6 8 9 6 htra Maharashtr 61.4 56.1 54.5 80.1 Uttar 4 Haryana 73.3 Rajasthan Rajasthan Karnataka Goa 77.7 76.07 a 4 3 6 1 Pradesh Uttar 60.0 Madhya 53.8 53.5 Chhattisgar 78.3 Andhra 76.6Tamil 5 70 Kerala Odisha 71 Pradesh 7 Pradesh 6 7 h 3 Pradesh 9 Nadu

58.2 Uttar 46.8 West 52.9 75.1 Uttar 74.4Andhra 6 Gujarat Odisha 69.2 Bihar 60.49 6 Pradesh 9 Bengal 6 3 Pradesh 4 Pradesh

56.6 68.5 Maharashtr 46.5 Uttar 51.7 Maharashtr 73.6 Maharashtr 73.3Telangan 7 Rajasthan Rajasthan 60.43 7 4 a 2 Pradesh 6 a 3 a 5 a West 56.5 Chhattisgar 68.5 Chhattisgar 42.3 Chhattisgar 51.4 Andhra 68.7 71.5Chhattis 8 Karnataka 58.17 Bengal 2 h 1 h 9 h 5 Pradesh 8 9 garh Chhattisgar 56.2 66.8 41.2 46.8 West 67.7 71.1West 9 Tamil Nadu Gujarat Telangana Kerala 57.87 h 6 3 3 6 Bengal 6 1 Bengal 10 Telangana 55.1 West 62.3 Madhya 39.4 Bihar 43.8 Rajasthan 64.0 West 70.6Odisha 51.92 5Bengal Pradesh 7 6 3 Bengal 3 Andhra 54.4 61.6 38.7 Andhra 43.1 Uttar 63.1 Madhya 11 Gujarat Telangana 70 Bihar 51.64 Pradesh 3 5 7 Pradesh 9 Pradesh 3 Pradesh Madhya 50.9 Andhra 60.0 West 33.0 Maharashtr 42.9 Madhya 62.2 61.4 12 Rajasthan Gujarat 47.9 Pradesh 4 Pradesh 8 Bengal 7 a 6 Pradesh 2 3

50.0 Uttar 54.6 31.9 Madhya 42.3 58.0 55.2 13 Odisha Punjab Telangana Bihar Haryana 41.93 3 Pradesh 4 7 Pradesh 4 1 7

48.2 52.8 Andhra 41.6 46.3 Chhattisgar 47.6Rajastha 14 Bihar Goa 30.5 Gujarat Goa 41.43 4 8 Pradesh 3 1 h 1 n

39.3 49.7 27.5 40.3 38.4 43.4Madhya 15 Haryana Bihar Jharkhand Haryana Haryana Odisha 36.55 3 6 6 8 8 3 Pradesh

37.7 47.2 18.6 36.3 27.8 35.3 16 Goa Punjab Bihar Punjab Jharkhand Haryana Goa 31.75 1 6 9 6 3 5

29.3 45.3 16.8 30.0 27.4 26.3 17 Punjab Telangana Haryana Jharkhand Odisha Punjab Punjab 24.87 4 5 2 5 2 4

27.7 26.8 24.7Jharkhan 18 Jharkhand Jharkhand 42.3 Goa 6.63 Goa Punjab 8.2 Jharkhand 16.47 3 8 2 d Northeastern / Hilly Area States

57.5 Uttarakhan 70.9 42.5 59.1 Himachal 70.0 Himachal 83.6 1 Tripura Sikkim Tripura Tripura 70.69 8 d 5 9 6 Pradesh 6 Pradesh 8 Himachal 53.1 28.6 Himachal 48.4 65.1 76.8 2 Tripura 66.5 Assam Assam Tripura Assam 57.14 Pradesh 7 6 Pradesh 1 2 2 Uttarakhan 49.1 65.2 Himachal 23.0 Uttarakhan 47.1 Uttarakhan 60.4 71.9Uttarakh 3 Sikkim Assam 52.72 d 1 7 Pradesh 1 d 1 d 9 6 and

49.0 Himachal 62.2 52.2 Uttarakhan 56.0Himacha 4 Assam Tripura 21.5 Sikkim 43.5 Tripura 39.41 6 Pradesh 2 2 d 2 l Pradesh

43.8 54.0 Uttarakhan 16.6 34.0 31.4 53.2 5 Sikkim Assam Assam Sikkim Sikkim Sikkim 34.94 1 4 d 8 6 2 3 6 Arunachal 17.9 Arunachal 41.5 Arunachal 12.7 Manipur# 13.1 Manipur# 21.4 Arunachal 37.4 Manipur 28.75 6Pradesh# 6 Pradesh# Pradesh# 7 Pradesh# # Arunach

17.1 34.0 11.2 Arunachal Arunachal 7 Manipur# Manipur# Manipur# 6.83 5.74 Manipur# 3.75 al 22.56 3 5 3 Pradesh# Pradesh# Pradesh# Union Territories Andama Andaman Jammu and 27.8 55.2 Jammu and 11.8 16.1 Lakshadwe 39.5 Jammu and 55.0n 1 &Nicobar Puducherry 45.73 Kashmir 5 1 Kashmir 8 6 ep# 3 Kashmir 8 &Nicoba Islands r Islands Andaman Andaman Jammu

27.1 Lakshadwe 31.4 11.0 Jammu and 13.2 Jammu and 36.9 54.8 2 &Nicobar Ladakh &Nicobar and 39.76 5 ep# 2 8 Kashmir 9 Kashmir 7 2 Islands Islands Kashmir Dadra & Andaman Nagar Lakshadwe 18.3 Jammu and 23.0 Lakshadwe 10.3 31.6 29.3Puduche 3 &Nicobar 9.09 Haveli and Ladakh 29.33 ep# 2 Kashmir 7 ep# 6 9 2 rry Islands Daman & Diu# Dadra & Nagar

16.1 22.2 25.2 Lakshadwe 15.1Lakshad 4 Ladakh Ladakh Puducherry 4.63 Haveli and 5.45 Ladakh 28.13 8 1 5 ep# 8 weep# Daman & Diu# Dadra & Nagar Andaman

16.1 22.0 Lakshadwe 21.4 13.7 5 Puducherry Haveli and &Nicobar 4.5 3.99 Puducherry Puducherry Ladakh 27.43 6 6 ep# 9 5 Daman & Islands Diu# Dadra & Dadra & Dadra & Dadra & Andaman Nagar 13.6 Nagar 20.9 Nagar Nagar 6 Puducherry 9.31 0 Ladakh 0 &Nicobar 8.57 24.91 Haveli and 2 Haveli and 4 Haveli and Haveli Islands Daman & Daman & Daman & and 7Diu# Diu# Diu# Daman & Diu# National 43.8 54.2 29.1 37.0 50.9 54.6

47.51 Average 9 9 8 4 6 3

Source: Report titled “Status of Devolution to Panchayats in States - An Indicative Evidence-Based Ranking, 2024”

Note: #States for which previous data is used.

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