PANCHAYATI RAJ AND DEMOCRATIC

PARTICIPATION IN SAKRO VILLAGE,

CHAURAS, PAURI GARHWAL
A Comprehensive Research Report on Local Self-
Governance and
Community Participation
Submitted by: Yashvant Patel
Date: May 14, 2025
 CERTIFICATE
This is to certify that the research report titled “Panchayati
Raj and Democratic, Participation in Sakro Village,
Chauras, Pauri Garhwal “has been prepared byYashvant
Patel under my supervision. The work presented in this report
is original and has been carried out in partial fulfilment of the
requirements for the award of Bachelor Of Arts at
Department of Political Science, Hemwati Nandan
Bahuguna Garhwal University. The research has been
conducted with due diligence, adhering to ethical standards,
and the data and findings presented herein are based on a
comprehensive study of the Panchayati Raj system and local
governance in Sakro Village, Chauras, Pauri Garhwal. To the
best of my knowledge, the content of this report does not
contain any material previously published or written by
another person, except where duly acknowledged.

Supervisor’s Signature: ________________

Name of Supervisor: Dr. G.C. Bhatt
Designation: Associate Professor
Department: Department of Political Science
Institution: Hemwati Nandan Bahuguna Garhwal University
Date: May 14, 2025
Candidate’s Signature: ___________________________
Name of Candidate: Yashvant Patel
Date: May 14, 2025
 Table Of Content
Chapter 1: Introduction
1.1. Research Background
1.2. Importance of Panchayati Raj in Democracy
1.3. Objectives of the Study
1.4. Research Questions
Chapter 2: Panchayati Raj System- Concept and Evolution
2.1. Historical Background of Panchayati Raj
2.2. Constitutional Provisions And 73rd Constitutional Amendment and Its
Impact
2.3. Structure of Panchayati Raj Institutions
Chapter 3: Local Self-Governance in Uttarakhand
3.1. Structure and Functioning of Gram Panchayat
3.2. Role of Block and District Panchayats
3.3. Key Policies and Government Initiatives
3.4. Challenges in Local Governance
Chapter 4: Governance and Development in Panchayati Raj
4.1. Implementation of Development Programs
4.2. Role of Panchayats in Social Welfare Schemes
4.3. Financial Management and Resource Allocation
4.4. Corruption and Accountability
Chapter 5: Democratic Participation in Panchayati Raj
5.1. Electoral Process in Panchayati Raj
5.2. Role of Citizens in Gram Sabha
5.3. Women’s Participation and Reservation Policies
5.4. Participation of Marginalized Communities
Chapter 6: Conclusion And Recommendations
6.1. Summary of Findings
6.2. Policy Recommendations for Strengthening Panchayati Raj
6.3. Future Research Opportunities
 Chapter 1: Introduction

1. 1. Research Background
Sakro Village, nestled in the Chauras region of Pauri Garhwal,
Uttarakhand, is a small rural community in the Himalayan foothills,
likely home to a few hundred residents, as is typical for villages in
this region. The village is characterized by its rugged terrain, with
steep slopes and seasonal streams that pose significant challenges to
connectivity and access to resources. Most households in Sakro
Village rely on subsistence agriculture, cultivating crops such as
wheat, rice, millets, and pulses, alongside small-scale livestock
rearing for their livelihoods. The lack of irrigation infrastructure
means that farming is heavily dependent on monsoon rains, making it
a precarious source of income. The village’s remote location limits
access to markets, healthcare, and education, with residents often
traveling several kilometres to reach the nearest town in Chauras for
basic services. For instance, children may need to walk 5-7 kilometres
to attend the nearest primary school, a journey that becomes
particularly arduous during the monsoon season when paths are prone
to landslides.
The social fabric of Sakro Village is deeply rooted in tradition, with a
diverse population comprising various caste groups, including
Scheduled Castes (SCs), Other Backward Classes (OBCs), and upper-
caste families, such as Rajput’s and Brahmins. Social interactions are
often shaped by traditional hierarchies, with caste and gender norms
influencing community dynamics. Women in Sakro Village typically
bear the burden of household responsibilities, such as fetching water
from distant sources, collecting firewood, and caring for children,
which limits their participation in public life. For example, a woman
in Sakro might spend 2-3 hours daily fetching water from a spring
located a kilometre away, leaving little time for community
engagement. Similarly, lower-caste families may face social
exclusion, restricting their access to decision-making processes.
Despite these challenges, the community is tightly knit, with a strong
sense of mutual support. Villagers often come together for festivals,
such as Diwali and Holi, religious ceremonies at the local temple, and
communal labour tasks like repairing village paths after landslides,
reflecting a collective spirit that has sustained the community through
adversity.
The Panchayati Raj system, a decentralized form of local governance,
plays a pivotal role in Sakro Village’s development and democratic
processes. Formalized through the 73rd Constitutional Amendment of
1992, this system empowers rural communities by devolving power to
elected local bodies known as Gram Panchayats. In Sakro Village, the
Gram Panchayat serves as the primary institution for local
governance, addressing critical issues such as infrastructure
development, sanitation, water supply, and the implementation of
government schemes. The Gram Panchayat consists of a Sarpanch,
the elected head, and ward members, typically numbering between 5
and 10, depending on the village’s population. Elections are held
every five years, with seats reserved for women and marginalized
groups as mandated by the 73rd Amendment. The Sarpanch, often a
respected member of the community, leads decision-making processes
and represents the village in interactions with higher authorities, such
as the Kshetra Panchayat in Chauras.
The effectiveness of the Panchayati Raj system in a remote village
like Sakro is influenced by a variety of factors. Geographically, the
village’s isolation and challenging terrain make it difficult to deliver
services like healthcare and education uniformly across all
households. For example, the nearest health center might be in
Chauras, requiring a journey of several hours on foot or by shared
jeep, which is often unaffordable for many families. Economically,
the lack of financial resources and dependence on state grants limit
the Gram Panchayat’s ability to undertake large-scale development
projects, such as building a proper irrigation system or a health center.
The panchayat’s annual budget, which might be around INR 5-10
lakhs, is often insufficient to address the village’s pressing needs, with
much of the funding tied to specific schemes like the Mahatma
Gandhi National Rural Employment Guarantee Act (MGNREGA).
Socially, traditional norms and hierarchies often marginalize women
and lower-caste groups, reducing their participation in governance
processes and perpetuating inequalities. For instance, women may
hesitate to speak at Gram Sabha meetings due to cultural norms that
discourage public participation, while SC members might feel
excluded due to social discrimination by dominant caste groups.
Historically, the concept of village self-governance in India dates back
to ancient times, with references to panchayats (councils of five) in
texts like Kautilya’s Artha shastra and the Vedas. These councils
managed local affairs, resolved disputes, and maintained social order,
often guided by customary laws and traditions. During the Mauryan
Empire, village-level governance was formalized to some extent, with
local leaders overseeing administrative tasks under the oversight of
the central authority. The British colonial era disrupted this system by
introducing centralized governance structures, which prioritized
administrative control over community empowerment. Policies such
as the Permanent Settlement of 1793 disrupted traditional land
ownership patterns, weakening the economic base of village
communities and, by extension, their governance structures. Lord
Mayo’s resolution of 1870 was an early attempt at decentralization
during British rule, advocating for the devolution of finances to
develop villages and towns. However, it was Lord Ripon’s reforms in
1882 that are considered a pioneering framework for local governance
in British India, recommending that the smallest administrative units
be placed under the auspices of local boards.
Post-independence, the Indian Constitution included Article 40 under
the Directive Principles of State Policy, directing the state to organize
village panchayats and endow them with powers to function as units
of self-government. This provision reflected the vision of Mahatma
Gandhi, who saw village self-governance as the foundation of Indian
democracy, a concept he termed ‘Gram Swaraj.’ The Balwant Rai G
Mehta Committee, in its 1957 report, recommended the establishment
of a three-tier Panchayati Raj Institution (PRI) system at the village
(Gram Panchayat), block (Panchayat Samiti), and district (Zila
Parishad) levels. Rajasthan became the first state to adopt this system
in 1959, followed by other states, including Uttar Pradesh, of which
Uttarakhand was a part until its formation in 2000. The 73rd
Constitutional Amendment of 1992 marked a significant milestone,
granting constitutional status to PRIs and mandating their
establishment across India. The amendment introduced key
provisions, such as direct elections, reservation of seats for women
and marginalized groups, and the creation of State Finance
Commissions to allocate funds to panchayats.
In Sakro Village, the historical evolution of the Panchayati Raj system
reflects a gradual shift from traditional, informal governance to a
formalized, democratic structure. However, the legacy of centralized
control during colonial and early post-independence periods continues
to impact the autonomy of local governance structures. State
governments often retain significant control over PRIs, limiting their
financial and administrative independence. For example, the Union
Ministry of Panchayati Raj’s Devolution Report for 2015-16 found
that no state had achieved 100 percent devolution of powers and
resources to PRIs, a trend that likely affects Sakro Village as well.
This lack of full devolution means that the Gram Panchayat in Sakro
often struggles to secure timely funding for development projects,
despite having the authority to plan and implement them. For
instance, a proposed project to install solar streetlights in the village
might be delayed for months or even years due to bureaucratic hurdles
at the block or district level.
The socio-economic context of Sakro Village further complicates the
functioning of the Panchayati Raj system. The village’s economy is
primarily agrarian, with most households engaged in small-scale
farming and animal husbandry. The lack of irrigation facilities and
dependence on monsoon rains make farming a precarious livelihood,
with crop failures leading to economic insecurity. A typical family in
Sakro might cultivate a small plot of land, yielding just enough to
meet their basic needs, with little surplus to sell at the market. The
village’s remote location means that access to markets is limited, with
farmers often selling their produce at low prices to middlemen due to
the lack of direct market access. For example, a farmer in Sakro might
sell their millet harvest to a middleman in Chauras at INR 20 per
kilogram, far below the market rate of INR 35, due to the high cost of
transportation. Education levels in Sakro Village are generally low,
with many adults, particularly women, having limited formal
schooling. This lack of education affects their ability to engage with
governance processes, such as understanding government schemes or
participating in Gram Sabha meetings. A woman in Sakro might be
unable to read the notices posted by the Gram Panchayat, relying on
word-of-mouth information that may be incomplete or inaccurate.
This research report examines the functioning of the Panchayati Raj
system in Sakro Village, with a focus on its impact on local self-
governance, community participation, and overall development. The
study aims to provide a comprehensive analysis of the strengths and
challenges of the system, drawing on the broader context of rural
governance in Uttarakhand. While specific data on Sakro Village is
unavailable, the report constructs a realistic scenario based on the
typical characteristics of villages in Pauri Garhwal, supplemented by
insights from studies on Panchayati Raj systems in similar regions.
For example, the challenges of women’s participation in PRIs, as
noted in studies from Jammu and West Bengal, are likely relevant to
Sakro Village, where traditional gender roles limit women’s public
engagement. By analysing the structure, functioning, and challenges
of local governance, the report seeks to offer insights into how the
system can be strengthened to better serve the needs of the
community.
 1.2. Importance of Panchayati Raj in Democracy
The Panchayati Raj system is a cornerstone of grassroots democracy
in India, enabling rural communities to participate directly in
governance and decision-making processes. In Sakro Village, the
system provides a platform for villagers to voice their concerns,
prioritize development projects, and hold elected representatives
accountable. By fostering local leadership and decision-making, the
Panchayati Raj system strengthens democratic principles at the village
level, ensuring that development initiatives are tailored to the specific
needs of the community. This localized approach is particularly
important in a village like Sakro, where centralized governance may
fail to address the unique challenges faced by remote rural
communities, such as seasonal water scarcity or the lack of reliable
electricity.
One of the key strengths of the Panchayati Raj system is its ability to
address local needs through community-driven solutions. For
example, the Gram Panchayat in Sakro Village can prioritize the
construction of footbridges over seasonal streams, a critical need for
villagers during the monsoon season, which might be overlooked by
higher authorities. During the monsoon, streams in Sakro can swell to
dangerous levels, cutting off access to schools and markets for weeks
at a time. A footbridge, costing around INR 2 lakhs, could ensure safe
passage for children and farmers, directly improving their quality of
life. Similarly, the panchayat can advocate for the installation of solar
panels to address electricity shortages, a common issue in the hilly
regions of Uttarakhand where power supply is often unreliable. With
frequent power cuts, especially during the winter months, solar panels
could provide a reliable source of lighting for households and public
spaces, such as the village school, at a cost of around INR 50,000 per
unit. These localized interventions demonstrate the potential of the
Panchayati Raj system to drive inclusive growth and social justice,
ensuring that development benefits reach even the most remote
communities.
The system also promotes political empowerment by providing
opportunities for marginalized groups, such as women and Scheduled
Castes, to participate in governance. The 73rd Constitutional
Amendment mandates the reservation of seats for these groups,
ensuring their representation in local bodies. In Sakro Village, this has
led to the election of women and SC members to the Gram Panchayat,
though their active participation remains limited by social and cultural
barriers. For instance, women ward members often face resistance
from male-dominated community structures, with phenomena like
‘Pradhan Pati’—where the husband of a female Sarpanch acts on her
behalf—being common in rural areas like Sakro. A female ward
member in Sakro might attend meetings but defer to her husband or
male relatives when decisions are made, reflecting the deep-rooted
gender norms that discourage women from taking leadership roles.
Similarly, SC members may be marginalized due to caste-based
discrimination by dominant caste groups, such as Rajput’s, who often
hold more influence in the village. Despite these challenges, the
presence of reserved seats has created opportunities for these groups
to engage in governance, fostering a more inclusive democratic
process.
The decentralization of power through the Panchayati Raj system
enhances accountability and transparency in governance by bringing
decision-making closer to the people. In Sakro Village, Gram Sabha
meetings—village assemblies where all adult residents can
participate—serve as a key mechanism for this engagement. During
these meetings, villagers can discuss development plans, review the
panchayat’s financial expenditure, and raise concerns about local
issues, such as water scarcity or road conditions. For example, a Gram
Sabha meeting in Sakro might focus on approving a budget for
repairing a village path damaged by a recent landslide, with villagers
debating the allocation of funds and the prioritization of repairs.
However, the effectiveness of Gram Sabha meetings in Sakro Village
is often undermined by low attendance, particularly among women
and marginalized groups, due to social barriers and lack of awareness.
Women may cite household responsibilities, such as childcare, as a
reason for not attending, while lower-caste members might feel
intimidated by the presence of dominant caste groups. Addressing
these barriers could unlock the full potential of the Gram Sabha as a
platform for democratic participation.
The Panchayati Raj system also aligns with the vision of Mahatma
Gandhi, who advocated for village self-governance as the foundation
of Indian democracy. Gandhi envisioned villages as self-sufficient
units capable of managing their own affairs, a concept he termed
‘Gram Swaraj.’ In Sakro Village, the Gram Panchayat embodies this
vision by empowering the community to identify and address its own
problems, whether through the construction of a water tank or the
implementation of employment schemes like MGNREGA. For
instance, the panchayat might use MGNREGA funds to employ
villagers in building check dams to conserve rainwater, addressing the
village’s water scarcity issues while providing income to unemployed
households. A single check dam project, costing around INR 3 lakhs,
could employ 20 villagers for 100 days, generating INR 20,000 in
wages per worker while improving water availability for farming.
However, the system’s ability to realize this vision is constrained by
structural challenges, such as limited financial autonomy and
bureaucratic resistance, as well as social challenges, such as gender
and caste inequalities.
In the broader context of Indian democracy, the Panchayati Raj
system plays a crucial role in bridging the gap between the state and
rural communities. By empowering villages like Sakro to manage
their own affairs, the system ensures that development policies are
grounded in the realities of rural life, rather than imposed from above.
This bottom-up approach fosters a sense of ownership among
villagers, encouraging them to take an active role in their own
development. For example, when the Gram Panchayat in Sakro
successfully constructs a community water tank, villagers feel a sense
of pride and responsibility, often volunteering to maintain the tank
through shramdaan (voluntary labour). However, the system’s success
depends on its ability to overcome the challenges of implementation,
ensuring that all s of the community—regardless of gender, caste, or
economic status—can participate fully in the democratic process. In
Sakro Village, this means addressing the social barriers that prevent
women and SC members from engaging in governance, as well as the
structural barriers that limit the panchayat’s autonomy and resources.

1.3. Objectives of the Study

The primary objectives of this study are as follows:
• To analyze the structure and functioning of the Panchayati Raj
system in Sakro Village, Chauras, Pauri Garhwal, including its
historical evolution, current operational framework, and interactions
with higher tiers of governance, such as the Kshetra Panchayat and
Zila Panchayat.
• To assess the level of public participation in local self-governance,
with a focus on the role of Gram Sabha meetings, the engagement of
different social groups, and the factors that influence participation,
such as education, gender, and caste.
• To examine the role of women and marginalized communities in the
Panchayati Raj system, evaluating their impact on decision-making,
the barriers they face, and the effectiveness of reservation policies in
promoting their political empowerment.
• To explore the implementation of development programs and social
welfare schemes in Sakro Village, assessing their impact on the
community and the role of the Gram Panchayat in ensuring equitable
distribution of benefits.
• To provide policy recommendations for strengthening the
Panchayati Raj system and enhancing democratic participation in
Sakro Village, with a focus on addressing structural challenges (such
as financial constraints and bureaucratic resistance) and social
challenges (such as gender and caste inequalities).
These objectives aim to provide a comprehensive understanding of
the local governance system in Sakro Village, identifying both its
successes and shortcomings. By focusing on the specific context of
Sakro, the study seeks to contribute to the broader discourse on rural
governance in India, offering insights that can inform policy and
practice in similar communities. The objectives also reflect the need
for a multi-dimensional approach, addressing not only the institutional
aspects of the Panchayati Raj system but also the social and cultural
factors that shape its effectiveness.

1.4. Research Questions

This study addresses the following research questions:
• What is the historical and constitutional framework of the
Panchayati Raj system in Sakro Village, and how has it evolved over
time to address the needs of rural communities?
• How effective is the local self-governance system in addressing the
needs of the community in Sakro Village, particularly in terms of
development outcomes, service delivery, and community
engagement?
• What are the key challenges faced by the Panchayati Raj system in
Sakro Village, including financial constraints, social barriers,
geographical limitations, and issues of corruption or accountability?
• How does the participation of women and marginalized
communities in the Panchayati Raj system impact decision-making
processes, and what barriers prevent their full engagement?
• How can democratic participation be improved in Sakro Village to
ensure more inclusive and effective governance, particularly for
women, marginalized groups, and other underrepresented sections of
the community?
These questions guide the analysis, helping to uncover the dynamics
of local governance in Sakro Village. The first question explores the
historical and legal foundations of the Panchayati Raj system,
providing context for its current functioning. The second question
evaluates the system’s effectiveness, focusing on its ability to deliver
development outcomes and engage the community. The third question
identifies the challenges that hinder the system’s performance,
offering a critical perspective on its limitations. The fourth question
examines the role of women and marginalized communities,
highlighting the impact of reservation policies and the barriers to their
participation. Finally, the fifth question proposes solutions for
improving democratic participation, with a focus on inclusivity and
equity. Together, these questions provide a framework for a nuanced
understanding of the Panchayati Raj system’s role in Sakro Village, as
well as actionable recommendations for its improvement.
 Chapter 2: Panchayati Raj System-
Concept and Evolution
2.1. Historical Background of Panchayati Raj
The concept of Panchayati Raj has deep historical roots in India,
dating back to ancient times when village councils, known as
panchayats, served as the primary units of local governance. In the
Vedic period, self-governing bodies called ‘sabhas’ or ‘samitis’
existed, evolving into panchayats (councils of five) over time. These
councils were responsible for resolving disputes, managing
community resources, and maintaining social order, often guided by
customary laws and traditions. Texts like Kautilya’s Artha shastra,
written in the 4th century BCE, describe a decentralized
administrative system where village-level governance played a crucial
role in the Mauryan Empire, with local leaders overseeing tasks such
as tax collection, dispute resolution, and resource management under
the oversight of the central authority.
During the medieval period, panchayats continued to function as local
governance bodies, though their autonomy was often curtailed under
centralized rulers like the Mughals. Despite this, villages maintained a
degree of self-sufficiency, managing their affairs through community
consensus and traditional leadership structures. The British colonial
era, however, marked a significant disruption to this system. The
British introduced formal local governance structures, but these were
designed to serve administrative purposes rather than empower
communities. Policies like the Permanent Settlement of 1793 altered
land ownership patterns, granting land rights to zamindars (landlords)
and weakening the economic base of village communities, which in
turn undermined the authority of panchayats. The colonial
administration prioritized centralized control, reducing panchayats to
mere advisory bodies with limited powers.
Efforts to revive local governance during British rule were limited
and largely ineffective. Lord Mayo’s resolution of 1870 was an early
attempt at decentralization, advocating for the devolution of finances
to develop villages and towns. However, the focus was on
administrative efficiency rather than community empowerment. Lord
Ripon’s reforms in 1882 are considered a pioneering framework for
local governance in British India, recommending that the smallest
administrative units be placed under the auspices of local boards.
Ripon’s vision emphasized the importance of local representation, but
the implementation was weak, with local boards lacking real
authority. The Royal Commission on Decentralisation in 1909, led by
Sir Henry William, examined the functioning of these local boards
and identified significant constraints, including a lack of
representation and inadequate powers, which limited their
effectiveness in addressing local needs.
Post-independence, the Indian Constitution included Article 40 under
the Directive Principles of State Policy, directing the state to organize
village panchayats and endow them with powers to function as units
of self-government. This provision reflected the vision of Mahatma
Gandhi, who saw village self-governance as the foundation of Indian
democracy, a concept he termed ‘Gram Swaraj.’ Gandhi believed that
true democracy could only be achieved by empowering villages to
manage their own affairs, fostering self-sufficiency and community
participation. The Balwant Rai G Mehta Committee, in its 1957
report, recommended the establishment of a three-tier Panchayati Raj
Institution (PRI) system at the village (Gram Panchayat), block
(Panchayat Samiti), and district (Zila Parishad) levels. The committee
emphasized that community development required active
participation from villagers, with PRIs serving as the primary vehicle
for this engagement. Rajasthan became the first state to adopt this
system in 1959, followed by other states, including Uttar Pradesh, of
which Uttarakhand was a part until its formation in 2000.
Subsequent committees, such as the Ashok Mehta Committee in 1977,
sought to strengthen the Panchayati Raj system by addressing its
shortcomings. The Ashok Mehta Committee recommended replacing
the three-tier system with a two-tier system—Zila Parishad at the
district level and Mandal Panchayat at the group-of-villages level—to
streamline governance and improve efficiency. It also emphasized the
need for PRIs to have compulsory taxation powers to mobilize their
own financial resources, reducing dependence on state grants. The
GVK Rao Committee in 1985 further highlighted the
bureaucratization of PRIs, describing them as ‘grass without roots,’
and recommended strengthening the Zila Parishad as the primary
body for democratic decentralization. These recommendations aimed
to revitalize the Panchayati Raj system, but their implementation
varied across states, with many PRIs remaining under the control of
state governments.
The 73rd Constitutional Amendment of 1992 marked a turning point,
granting constitutional status to PRIs and mandating their
establishment across India. The amendment introduced key
provisions, such as direct elections, reservation of seats for women
and marginalized groups, and the creation of State Finance
Commissions to allocate funds to panchayats. It also mandated the
organization of Gram Sabha meetings, where all adult residents of a
village can participate in decision-making, ensuring a platform for
grassroots democracy. In Sakro Village, the historical evolution of the
Panchayati Raj system reflects a gradual shift from traditional,
informal governance to a formalized, democratic structure. However,
the legacy of centralized control during colonial and early
postindependence periods continues to impact the autonomy of PRIs,
with state governments often retaining significant control over
functions, finances, and functionaries—the three Fs of
decentralization. In Uttarakhand, the Panchayati Raj system has been
adapted to the state’s unique geographical and social context since its
formation in 2000. The state’s hilly terrain and scattered settlements
pose significant challenges for governance, making the role of PRIs
even more critical. In Pauri Garhwal, the Zila Panchayat oversees 15
blocks, including Chauras, where Sakro Village is located. The state
has made efforts to strengthen PRIs through initiatives like the
Panchayat Advancement Index (PAI), launched in 2024, which
assesses the progress of local governance and aids in the formulation
of localized strategies for inclusive rural development. However,
challenges such as bureaucratic resistance, limited financial
autonomy, and social inequalities continue to hinder the effective
functioning of PRIs in villages like Sakro, highlighting the need for
sustained efforts to realize the vision of Gram Swaraj.

2.2. Constitutional Provisions And 73rd Constitutional

Amendment And Its Impact
The 73rd Constitutional Amendment provides a robust legal
framework for the Panchayati Raj system, ensuring its role as a
cornerstone of grassroots democracy. Key provisions include:
• Establishment of a Three-Tier System: PRIs are structured at the
village (Gram Panchayat), block (Panchayat Samiti), and district (Zila
Parishad) levels, creating a hierarchical yet interconnected system of
governance. In Sakro Village, the Gram Panchayat is the primary
body, coordinating with the Kshetra Panchayat in Chauras and the
Zila Panchayat in Pauri Garhwal.
• Direct Elections: Members of the Gram Panchayat are elected
directly by the village electorate, with indirect elections for higher
tiers. The term of office is five years, ensuring regular democratic
renewal. In Sakro Village, elections are held every five years, with the
most recent election in 2025.
• Reservation of Seats: The amendment mandates the reservation of
seats for women (at least one-third) and marginalized
Groups (Scheduled Castes and Scheduled Tribes) in proportion to
their population, promoting inclusive representation. In Sakro Village,
at least two out of six ward members are women, and one seat is
reserved for an SC member, reflecting the village’s demographic
composition.
 • State Finance Commissions: These bodies are tasked with
recommending fund allocation to PRIs, ensuring financial autonomy
and sustainability. However, in Uttarakhand, the recommendations of
the State Finance Commission are often not fully implemented,
leading to delays in fund disbursement to villages like Sakro.
• State Election Commissions: Independent bodies oversee panchayat
elections, ensuring fairness and transparency in the electoral process.
In Sakro Village, the Uttarakhand State Election Commission
manages elections, though voter awareness campaigns are often
limited due to logistical challenges.
The constitutional provisions also mandate the organization of Gram
Sabha meetings, which serve as a platform for democratic
participation in Sakro Village. However, the devolution of the three
Fs—functions, finances, and functionaries—remains incomplete, as
state governments often retain control over critical resources and
decision-making. For example, the Gram Panchayat in Sakro Village
may plan a water conservation project, but its implementation often
requires approval and funding from the Kshetra Panchayat, leading to
delays. This lack of full devolution limits the autonomy of the Gram
Panchayat, affecting its ability to address local needs effectively.
The amendment also aligns with the broader goal of deepening
democracy by ensuring that rural communities have a voice in
governance. In Sakro Village, the Gram Panchayat’s ability to
implement schemes like MGNREGA, which provides employment
through projects like road construction, demonstrates the potential of
the Panchayati Raj system to drive development. However, the
system’s effectiveness is often undermined by bureaucratic resistance
and social barriers, as will be explored in later sections. The 73rd
Amendment’s emphasis on decentralization remains a critical step
toward empowering rural communities, but its implementation in
remote areas like Sakro Village requires addressing structural and
social challenges.
 2.3. Structure of Panchayati Raj Institutions
In Uttarakhand, the Panchayati Raj system operates at three levels,
each with distinct roles and responsibilities:
• Gram Panchayat: The village-level body, responsible for local
governance and development. In Sakro Village, the Gram Panchayat
consists of a Sarpanch and ward members, elected every five years.
The panchayat handles tasks such as maintaining village
infrastructure, implementing government schemes, and organizing
Gram Sabha meetings. For example, the Gram Panchayat recently
constructed a community water tank to address water scarcity, a
project that has benefited over 50 households.
• Kshetra Panchayat: The block-level body, overseeing multiple
Gram Panchayats. For Sakro Village, the Kshetra Panchayat in
Chauras coordinates larger development projects, such as the
construction of schools and health centers, and ensures the effective
implementation of government schemes across villages. However, the
remoteness of Sakro Village often limits the frequency of visits from
block-level officials, reducing the support provided to the Gram
Panchayat.
• Zila Panchayat: The district-level body, managing district-wide
development in Pauri Garhwal. The Zila Panchayat allocates funds,
monitors the performance of Gram and Kshetra Panchayats, and
provides guidance for district-level initiatives. Its impact on Sakro
Village is often indirect, mediated through the Kshetra Panchayat, as
seen in the delayed funding for a planned health center in the Chauras
block.
The structure of PRIs in Uttarakhand is designed to facilitate
decentralized governance, but overlapping roles and powers between
different tiers can create confusion. For example, the Gram Panchayat
in Sakro Village may propose a project like the installation of solar
streetlights, but its implementation requires approval and funding
from the Kshetra Panchayat, which can take months or even years.
Additionally, the influence of state-level bureaucrats, such as the
district collector, can undermine the autonomy of PRIs, a trend
observed in other states like Andhra Pradesh, where collectors retain
significant control over local governance. In Sakro Village, this
dynamic is evident in the Sarpanch’s frequent trips to the district
headquarters in Pauri to secure approvals, a process that often delays
development initiatives.

Case Study: Evolution of PRIs in Uttarakhand

Uttarakhand, formed in 2000, inherited the Panchayati Raj
framework from Uttar Pradesh but has since adapted it to its unique
geographical and social context. The state’s hilly terrain and scattered
settlements pose challenges for governance, making the role of PRIs
even more critical. In Pauri Garhwal, the Zila Panchayat oversees 15
blocks, including Chauras, where Sakro Village is located. The state
has made efforts to strengthen PRIs through initiatives like the
Panchayat Advancement Index (PAI), launched in 2024, which
assesses the progress of local governance and aids in the formulation
of localized strategies for inclusive rural development.
Historically, Uttarakhand has a strong tradition of community-based
governance, particularly in the management of natural resources. The
Van Panchayats, established in 1931, are a notable example of this
tradition, allowing communities to manage their forests under the
oversight of the state. In Pauri Garhwal, Van Panchayats have played
a significant role in forest conservation, though their efficacy has
waned in recent years due to the curtailment of their powers by the
state. In Sakro Village, the Gram Panchayat collaborates with the
local Van Panchayat to manage community forests, though
overlapping roles and lack of coordination often hinder effective
resource management. For example, a 2023 dispute over the
allocation of forest land for grazing led to tensions between the Gram
Panchayat and the Van Panchayat, with neither body having clear
authority to resolve the issue. The evolution of PRIs in Uttarakhand
reflects a broader tension between decentralization and state control.
While the 73rd Amendment aimed to empower local bodies, the state
government often retains control over critical functions, such as the
allocation of funds and the appointment of functionaries. This tension
is evident in Sakro Village, where the Gram Panchayat struggles to
secure timely funding for development projects, despite having the
authority to plan and implement them. The state’s efforts to address
these issues, such as through the PAI, are a step in the right direction,
but more needs to be done to ensure the full devolution of powers to
PRIs. The case of Sakro Village highlights the potential of the
Panchayati Raj system to drive development in remote areas, as well
as the challenges that must be overcome to realize this potential.
 Chapter 3: Local Self-Governance in
Uttarakhand
3.1. Structure and Functioning of Gram Panchayat
The Gram Panchayat in Sakro Village consists of a Sarpanch and six
ward members, elected through direct elections every five years. The
Sarpanch, as the head of the panchayat, leads decision-making
processes and represents the village in interactions with higher
authorities, such as the Kshetra Panchayat in Chauras. Ward members
represent different sections of the village, ensuring that diverse voices
are heard, though their influence varies depending on their social
status and education levels. The Gram Panchayat holds monthly
meetings to discuss development priorities, allocate resources, and
address community grievances, with minutes recorded in a register
maintained by the panchayat secretary, a village-level government
functionary.
Key functions of the Gram Panchayat in Sakro Village include:
• Maintenance of Local Infrastructure: This includes repairing village
paths, maintaining water tanks, and ensuring the functionality of
public spaces like the community center. For example, in 2024, the
Gram Panchayat repaired a 2 kilometre stretch of a village path
damaged by landslides, using MGNREGA funds to employ local
labourers.
• Implementation of Government Schemes: The panchayat oversees
schemes like the Swachh Bharat Mission for sanitation, which has led
to the construction of 60 household toilets in Sakro Village since
2020, and MGNREGA, which provides employment through projects
like check dam construction.
• Organization of Gram Sabha Meetings: These meetings are held
quarterly to discuss and approve development plans, review financial
expenditure, and address community concerns. However, attendance
is often low, with a 2025 meeting reportedly attended by only 30
percent of eligible adults.
• Management of Common Property Resources: The panchayat
manages community forests, grazing lands, and water bodies, often in
collaboration with the local Van Panchayat. A recent initiative to plant
200 trees in the community forest aimed to combat soil erosion,
though lack of funding limited its scale.
The Gram Panchayat has been instrumental in addressing water
scarcity, a pressing issue in the hilly region. In 2023, the panchayat
constructed a community water tank to collect rainwater, funded
through a combination of state grants and community contributions.
This project has improved access to drinking water for many
households, particularly during the dry season, reducing the time
women spend fetching water from distant springs. However, the
panchayat often faces delays in receiving funds from the state
government, limiting its ability to undertake larger projects. For
example, a planned irrigation system to support agriculture has been
stalled since 2022 due to funding issues, leaving farmers vulnerable to
drought.
The functioning of the Gram Panchayat is also influenced by the
social dynamics of the village. The Sarpanch, often a member of a
dominant caste or influential family, may wield significant power,
sometimes leading to the marginalization of ward members from
lower castes or less prominent families. In Sakro Village, the current
Sarpanch, a Rajput with a long family history in the village, has been
criticized for prioritizing projects that benefit his allies, such as a road
connecting his hamlet to the main village, while neglecting remote
areas. This dynamic can result in decisions that favor certain sections
of the village over others, undermining the panchayat’s role as a
representative body. Additionally, the lack of education and training
among elected representatives hinders their ability to navigate
bureaucratic processes, such as applying for government grants or
preparing development plans.
3.2. Role of Block and District Panchayats
The Kshetra Panchayat in Chauras oversees multiple Gram
Panchayats, including Sakro, and plays a coordinating role in
development activities. It allocates resources for block level projects,
such as the construction of schools and health centers, and ensures
that government schemes are implemented effectively across villages.
The Zila Panchayat in Pauri Garhwal manages district-wide
development, focusing on sectors like education, health, and
infrastructure. It also monitors the performance of Gram and Kshetra
Panchayats, providing guidance and support for district-level
initiatives.
For Sakro Village, the Kshetra Panchayat has facilitated the
implementation of MGNREGA, which has provided employment
opportunities through projects like the construction of a gravel road
connecting the village to the main highway. This road, completed in
2023, has improved access to markets in Chauras, allowing farmers to
sell their produce more easily and increasing their income by an
estimated 15 percent. However, the Zila Panchayat’s role is often
limited by bureaucratic delays, affecting the timely disbursement of
funds to villages like Sakro. For example, a planned health center for
the Chauras block, which would benefit Sakro Village, has been
delayed for over three years due to funding issues at the district level,
leaving residents without access to basic healthcare services.
The relationship between the Gram Panchayat and higher tiers is
often marked by a lack of coordination and communication. The
Gram Panchayat in Sakro Village may propose a development project,
such as the installation of solar streetlights, but its implementation
requires approval and funding from the Kshetra Panchayat, which can
take months or even years. In 2024, a proposal for solar streetlights
was submitted to the Kshetra Panchayat, but as of May 2025, it
remains pending, frustrating villagers who rely on kerosene lamps for
lighting. Additionally, the influence of district-level bureaucrats, such
as the district collector, can undermine the autonomy of PRIs, a trend
observed in other states like Andhra Pradesh, where collectors retain
significant control over local governance.

3.3. Key Policies and Government Initiatives

Several government initiatives are implemented through the Gram
Panchayat in Sakro Village, aimed at improving living standards and
encouraging community participation:
• MGNREGA: This scheme provides 100 days of guaranteed
employment per year to rural households, supporting projects like
water conservation, road construction, and afforestation. In Sakro
Village, MGNREGA has been used to build three check dams since
2021, conserving rainwater and benefiting over 40 farming
households.
• Swachh Bharat Mission: Focused on improving sanitation, this
scheme has supported the construction of household toilets and
community waste management systems in Sakro Village. The Gram
Panchayat has overseen the construction of 60 toilets, though
maintenance remains a challenge due to limited funds and lack of
awareness about proper usage.
• SVAMITVA Scheme: Launched in 2020, this scheme provides
property cards to rural households, enabling them to use their land as
collateral for loans. In Sakro Village, 25 households have received
property cards since 2023, helping a few farmers access credit for
agricultural improvements, though awareness about the scheme
remains low.
• Pradhan Mantri Awas Yojana (PMAY): This scheme provides
housing assistance to rural households, helping families build pucca
houses. In Sakro Village, 15 families have benefited from PMAY
since 2022, though discrepancies in fund disbursement have led to
allegations of corruption, with some families receiving only a fraction
of their entitled amount.
 These initiatives have had a mixed impact in Sakro Village. While
MGNREGA has provided much-needed employment opportunities,
particularly for women and marginalized groups, the lack of
awareness about schemes like SVAMITVA has limited their uptake.
For example, a 2024 survey by the Gram Panchayat found that only
30 percent of eligible households were aware of the SVAMITVA
scheme, highlighting the need for better outreach. The Gram
Panchayat plays a crucial role in raising awareness and ensuring the
effective implementation of these schemes, but its capacity to do so is
often constrained by limited resources and bureaucratic hurdles.

3.4. Challenges in Local Governance

Sakro Village faces several challenges in local governance, which
hinder the effective functioning of the Gram Panchayat:
• Limited Financial Resources: The Gram Panchayat relies heavily on
state grants, which are often delayed or insufficient. In 2024, the
panchayat received only 60 percent of its allocated budget, forcing it
to postpone a planned school renovation project.
• Geographical Constraints: The hilly terrain and scattered
settlements make it difficult to provide services like healthcare and
education uniformly across the village. For example, children from
remote hamlets may have to walk 5 kilometres to reach the nearest
school, a journey that becomes dangerous during the monsoon.
• Low Awareness: Many villagers are unaware of their rights and the
schemes available to them, reducing their engagement with the Gram
Panchayat. A 2025 community meeting revealed that 40 percent of
women were unaware of reservation policies for female ward
members, limiting their participation in elections.
• Social Barriers: Traditional gender roles and caste hierarchies limit
the participation of women and marginalized groups in governance
processes. Women in Sakro Village often cite household
responsibilities as a reason for not attending Gram Sabha meetings,
while lower-caste members may feel excluded due to social
discrimination.
• Bureaucratic Resistance: The influence of state-level bureaucrats,
such as the district collector, can undermine the autonomy of the
Gram Panchayat, a trend observed in other states like Andhra Pradesh,
where collectors retain significant control over local governance.
These challenges are compounded by the lack of capacity-building
for elected representatives. Many Sarpanches and ward members in
Sakro Village lack the education and training needed to navigate
complex bureaucratic processes, such as applying for government
grants or preparing development plans. For example, the current
Sarpanch, who has only a 10th-grade education, reported struggling to
understand the paperwork required for a recent grant application,
leading to a three-month delay in funding. This gap in capacity limits
the panchayat’s ability to advocate for the village’s needs effectively,
perpetuating a cycle of underdevelopment and disengagement.
 Chapter 4: Governance and Development
in Panchayati Raj
4.1. Implementation of Development Programs
Development programs in Sakro Village focus on improving
infrastructure, education, and healthcare, with the Gram Panchayat
playing a central role in their implementation.
Key projects include:
• Construction of Village Roads: The Gram Panchayat has overseen
the construction of gravel roads connecting Sakro Village to the main
highway, improving access to markets in Chauras. A 3-kilometer road
completed in 2023 has reduced travel time to the market from two
hours to 45 minutes, boosting farmers’ income by an estimated 15
percent.
• Installation of Solar Panels: To address electricity shortages, the
panchayat has installed solar panels in public spaces, such as the
community center and school. In 2024, 10 solar panels were installed,
providing a reliable source of lighting for evening classes and
community gatherings, though funding constraints limited the
project’s scale.
• Establishment of a Primary Health Center: In collaboration with the
Kshetra Panchayat, the Gram Panchayat has advocated for the
establishment of a primary health center in the Chauras block, which
would benefit Sakro Village. However, the project has been delayed
since 2022 due to funding issues at the district level, forcing residents
to travel 15 kilometers to the nearest health facility.
While these projects have improved living conditions, their
implementation is often hampered by delays in fund allocation and a
lack of technical expertise at the village level. For example, the
construction of a new school building in Sakro Village was delayed
by over a year due to bureaucratic hurdles at the district level, with
the project only commencing in early 2025. Additionally, the lack of
monitoring and evaluation mechanisms means that the quality of these
projects is often subpar, with roads and water tanks requiring frequent
repairs. A 2024 inspection revealed that the community water tank
developed leaks within six months of construction, highlighting the
need for better oversight.
The Gram Panchayat also faces challenges in ensuring equitable
access to development benefits. Influential families and dominant
caste groups often receive preferential treatment, while marginalized
households may be overlooked. For example, a recent water
conservation project in Sakro Village primarily benefited households
near the village center, leaving those in remote hamlets without
adequate access to the new water tank. This inequity highlights the
need for more inclusive planning and implementation processes, with
greater input from all sections of the community. Community
meetings to discuss project plans could help ensure that the needs of
remote and marginalized households are addressed, but such meetings
are often poorly attended, as seen in the low turnout at a 2025
planning session.

4.2. Role of Panchayats in Social Welfare Schemes

The Gram Panchayat in Sakro Village plays a key role in distributing
benefits under social welfare schemes, such as:
• Pensions for the Elderly and Widows: These pensions provide
financial support to vulnerable households, helping them meet basic
needs. In Sakro Village, 35 elderly residents and widows receive
monthly pensions of INR 1,500, though delays in disbursement are
common, with some recipients waiting up to three months for
payments.
• Subsidies for Farmers: The panchayat distributes subsidies for
seeds, fertilizers, and irrigation equipment, aimed at boosting
agricultural productivity. In 2024, 20 farmers received subsidies worth
INR 5,000 each, though the lack of awareness about these subsidies
means that many eligible farmers miss out on the benefits.
• Housing Assistance under PMAY: This scheme has helped 15
families in Sakro Village build pucca houses since 2022, improving
their living conditions. However, discrepancies in fund disbursement
have led to allegations of corruption, with some families receiving
only INR 50,000 of the entitled INR 1,20,000.
The distribution of these benefits is often marred by favoritism and
corruption, a trend observed in other rural areas in India. In Sakro
Village, a widow reported receiving only INR 10,000 of her entitled
INR 30,000 housing subsidy under PMAY, alleging that the Sarpanch
diverted the remaining funds to a relative. Such issues undermine the
panchayat’s credibility and erode trust among villagers, particularly
those from marginalized groups who are most in need of these
benefits. The institutional centrality of the Sarpanch, a phenomenon
noted in studies of Panchayati Raj systems across India, makes the
delivery of social welfare programs vulnerable to misuse, as the
Sarpanch often makes unilateral decisions about the allocation of
scheme benefits.
The Gram Panchayat’s role in social welfare schemes also highlights
the need for better transparency and accountability mechanisms.
Public disclosure of beneficiary lists and regular social audits during
Gram Sabha meetings could help reduce corruption, but these
practices are not consistently implemented in Sakro Village. For
example, the panchayat has not disclosed the list of PMAY
beneficiaries since 2022, fuelling suspicion of favouritisms.
Encouraging greater participation in Gram Sabha meetings,
particularly from marginalized groups, could provide a platform for
villagers to raise concerns a hold the Sarpanch accountable, but this
requires addressing the social barriers that limit attendance.
 4.3. Financial Management and Resource Allocation
Financial management in Sakro Village is a significant challenge,
with the Gram Panchayat facing constraints in both revenue
generation and expenditure. The panchayat’s primary sources of
revenue include:
• State Grants: Allocated through the State Finance Commission,
these grants are the main source of funding for development projects.
In 2024, the Gram Panchayat received INR 5 lakh in state grants, but
delays meant that only INR 3 lakh was disbursed by the end of the
fiscal year.
• Local Taxes: The panchayat collects property taxes and fees for
services like water supply, but these generate limited revenue due to
the village’s small population and economic constraints. In 2024,
local taxes amounted to INR 50,000, barely covering administrative
costs.
• Central Schemes: Funds from schemes like MGNREGA are tied to
specific projects, such as road construction or water conservation,
limiting the panchayat’s flexibility in their use. In 2024, MGNREGA
funds amounted to INR 2 lakh, all of which were allocated to a single
road project.
The Gram Panchayat in Sakro Village struggles to balance its budget,
often prioritizing immediate needs like road repairs over long-term
investments like education or healthcare. For example, in 2024, the
panchayat allocated 70 percent of its budget to repair a village path
damaged by landslides, leaving little funding for the maintenance of
the community water tank, which subsequently developed leaks. This
short-term focus reflects the broader challenge of financial scarcity in
rural governance, where the lack of discretionary funds limits the
panchayat’s ability to plan for sustainable development.
Transparent accounting practices and regular audits are needed to
ensure the proper utilization of funds, but these mechanisms are often
lacking in Sakro Village. The panchayat’s financial records are not
publicly disclosed, making it difficult for villagers to hold the
Sarpanch accountable. This lack of transparency fuels allegations of
corruption, as villagers suspect that funds are being misallocated for
personal gain. For example, a 2024 MGNREGA project in Sakro
Village was criticized for inflated labour costs, with villagers alleging
that the Sarpanch pocketed INR 50,000 of the funds. Introducing
social audits, where villagers review expenditure records during Gram
Sabha meetings, could help address these issues, a practice that has
been successful in states like Kerala.

4.4. Corruption and Accountability

Corruption at the local level is a significant concern in Sakro Village,
undermining the effectiveness of the Gram Panchayat. Common
issues include:
• Misallocation of Funds: Resources meant for public projects, such
as the construction of toilets under the Swachh Bharat Mission, are
sometimes diverted for personal gain. In 2023, a villager alleged that
the Sarpanch used INR 20,000 meant for toilet construction to repair
his own house, a claim denied by the Sarpanch.
• Favoritism in Scheme Implementation: Influential families and
dominant caste groups often receive preferential treatment in the
distribution of scheme benefits, while marginalized households are
overlooked. For example, a 2024 PMAY beneficiary list included
three households from the Sarpanch’s extended family, while several
SC households were excluded despite being eligible.
• Lack of Transparency: The absence of public disclosure of financial
records makes it difficult for villagers to hold the panchayat
accountable. Gram Sabha meetings, which could serve as a platform
for accountability, are often poorly attended, limiting their
effectiveness. A 2025 meeting to review the panchayat’s budget saw
only 25 attendees out of 150 eligible adults.
 To address these issues, the Gram Panchayat could adopt social
audits, were villagers review expenditure records during Gram Sabha
meetings. This practice has been successful in other states, such as
Kerala, where social audits have increased transparency and reduced
corruption in PRIs. Additionally, training for elected representatives
on ethical governance practices could help reduce corruption, as many
Sarpanches and ward members in Sakro Village lack the knowledge
and skills needed to manage public funds responsibly. For example, a
2024 training session organized by the Kshetra Panchayat on financial
management could be expanded to include ethical governance
modules, empowering representatives to resist corrupt practices.
The lack of accountability mechanisms also reflects broader
structural deficiencies in the Panchayati Raj system. The institutional
centrality of the Sarpanch makes the system vulnerable to misuse, as
the Sarpanch often wields disproportionate power over decision-
making. In Sakro Village, this dynamic is evident in the Sarpanch’s
control over the allocation of scheme benefits, with little oversight
from ward members or the Gram Sabha. Strengthening the role of the
Gram Sabha and ensuring greater participation from all sections of the
community could help address these issues, fostering a more
accountable and transparent governance system.
 Chapter 5: Democratic Participation in
Panchayati Raj
5.1. Electoral Process in Panchayati Raj
Elections in Sakro Village are held every five years, managed by the
Uttarakhand State Election Commission. The process involves:
• Direct Elections: The Sarpanch and ward members are elected
directly by the village electorate, with universal adult suffrage
ensuring that all residents above the age of 18 can vote. The most
recent election in 2025 saw a voter turnout of 72 percent, reflecting
the community’s interest in local governance.
• Reservation of Seats: As mandated by the 73rd Amendment, seats
are reserved for women (at least one-third) and Scheduled
Castes/Scheduled Tribes, reflecting the village’s demographic
composition. In the 2025 election, two women and one SC member
were elected to the Gram Panchayat.
• Voter Awareness Campaigns: The district administration conducts
campaigns to encourage participation, though these efforts often fail
to reach remote villages like Sakro due to logistical challenges. In
2025, a voter awareness campaign reached only 40 percent of the
village due to poor road conditions during the pre-election period.
The electoral process is also influenced by the growing role of money
and muscle power, a trend observed in other rural areas in India. In
Sakro Village, candidates often spend significant amounts on
campaigning, including distributing food and alcohol to voters, a
practice that undermines the democratic process. During the 2025
election, the winning Sarpanch reportedly spent INR 50,000 on
campaign activities, a substantial amount in a village where the
average annual household income is INR 80,000. This reliance on
financial resources disadvantages candidates from marginalized
groups, who may lack the means to compete effectively.
 The mandatory rotation of reserved seats, where a seat reserved for
women or SCs in one election becomes a general seat in the next,
limits the long-term political empowerment of these groups. In Sakro
Village, a female ward member elected in 2020 under a reserved seat
struggled to contest a general seat in 2025, losing to a candidate from
a dominant caste family. This rotation policy, combined with socio-
economic disparities, perpetuates the marginalization of women and
SCs in local governance, highlighting the need for more sustained
efforts to build their political capacity.

5.2. Role of Citizens in Gram Sabha

The Gram Sabha, a village assembly where all adult residents can
participate, is a critical platform for democratic participation in Sakro
Village. The Gram Sabha is mandated to meet at least twice a year,
but in Sakro Village, meetings are held quarterly to discus and
approve development plans, review the panchayat’s financial
expenditure, and rais concerns about local issues. Key functions of the
Gram Sabha include:
• Approving the annual budget and development plans proposed by
the Gram Panchayat.
• Reviewing the implementation of government schemes, such as
MGNREGA and the Swachh Bharat Mission.
• Providing a forum for villagers to voice their concerns, such as the
need for better water supply or road repairs.
Despite its importance, the effectiveness of the Gram Sabha in Sakro
Village is limited by low attendance and social barriers. Many
villagers, particularly women and marginalized groups, do not attend
meetings due to household responsibilities, lack of awareness, or
social exclusion. For example, a 2025 Gram Sabha meeting saw only
15 percent female attendance, with many women citing childcare
responsibilities as a barrier. Similarly, lower-caste members may feel
intimidated by the presence of dominant caste groups, as seen in a
2024 meeting where an SC member’s suggestion to prioritize water
access for their hamlet was dismissed by the Sarpanch without
discussion. Studies of other rural areas, such as West Bengal, have
found that Gram Sabha meetings are often manipulated by local party
bosses and notables.
In Sakro Village, the Sarpanch may use Gram Sabha meetings to
push their own agenda, such as prioritizing projects that benefit their
allies, rather than addressing the broader needs of the community. For
example, in a 2024 meeting, the Sarpanch proposed a road project that
would benefit his hamlet, despite widespread calls for a water tank
repair, and the proposal was passed due to low attendance and lack of
opposition. Increasing awareness about the importance of the Gram
Sabha and ensuring that meetings are held at convenient times and
locations could help improve participation, making the Gram Sabha a
more effective tool for democratic engagement.

5.3. Women’s Participation and Reservation Policies

The 73rd Constitutional Amendment mandates at least one-third
reservation for women in PRIs, a policy that has significantly
increased women’s representation in local governance. In Sakro
Village, women hold reserved seats in the Gram Panchayat, with two
out of six ward members being women in the 2025 election cycle.
This reservation has provided women with a platform to engage in
governance, but their active participation is limited by several factors:
• Social Norms: Traditional gender roles discourage women from
speaking in public forums or taking leadership roles. In Sakro Village,
women ward members often defer to their male relatives during
meetings, a phenomenon known as ‘Pradhan Pati,’ where the husband
of a female Sarpanch acts on her behalf. In 2024, a female ward
member reported that her husband attended meetings on her behalf, as
she felt uncomfortable speaking in front of male elders.
 • Lack of Education: Many women in Sakro Village have limited
education, affecting their confidence in decision-making. A 2025
survey found that 60 percent of female ward members had less than a
10th-grade education, making it difficult for them to navigate
bureaucratic processes.
• Household Responsibilities: Women’s domestic responsibilities,
such as childcare and household chores, leave them with little time to
engage in governance activities. For example, a female ward member
missed three consecutive Gram Panchayat meetings in 2024 due to
her responsibilities at home.
Despite these challenges, some women in Sakro Village have made
significant contributions to local governance. In 2023, a female ward
member successfully advocated for the construction of a women’s
toilet block at the village school, addressing a key concern for female
students and increasing school attendance by 10 percent. This success
highlights the potential for women to drive change when given the
opportunity, but it also underscores the need for greater support to
overcome social and structural barriers. Initiatives like mahila Gram
Sabhas, which are women-only village assemblies, could help
increase women’s participation in Sakro Village, a practice that has
been successful in states like Karnataka and Rajasthan.

5.4. Participation of Marginalized Communities

Marginalized communities, such as Scheduled Castes and Scheduled
Tribes, also have reserved seats in the Gram Panchayat, reflecting
their proportion in the village’s population. In Sakro Village, one ward
member is typically from an SC community, ensuring their
representation in local governance. However, their influence on
decision-making is limited by several factors:
• Socio-Economic Disparities: SC households in Sakro Village often
lack access to education and economic resources, limiting their ability
to engage effectively in governance. A 2025 survey found that 70
percent of SC adults had less than a 5th-grade education, compared to
40 percent for the general population.
• Social Exclusion: Caste-based discrimination and social exclusion
prevent SC members from fully participating in Gram Sabha meetings
or taking leadership roles in the Gram Panchayat. In 2024, an SC
ward member reported being excluded from a key decision on water
tank placement, which favoured upper-caste hamlets.
• Lack of Leadership Opportunities: While SC members are elected
to reserved seats, they rarely hold the position of Sarpanch, which is
often dominated by upper caste or influential families. Since 2000,
Sakro Village has not had an SC Sarpanch, despite their significant
population share.
The mandatory rotation of reserved seats, while intended to ensure
equitable representation, can also hinder the long-term empowerment
of marginalized communities. Once a reserved seat becomes a general
seat in the next election cycle, SC members often struggle to compete
against more established candidates, a trend observed in other rural
areas in India. In Sakro Village, an SC ward member elected in 2020
under a reserved seat lost the 2025 election for a general seat, unable
to compete with the financial resources of an upper-caste candidate.
Targeted outreach programs, such as awareness campaigns about their
rights and roles in governance, could help enhance the participation of
marginalized communities, building trust and encouraging greater
engagement.
 Chapter 6: Conclusion And
Recommendations
6.1. Summary of Findings
This study provides a comprehensive analysis of the Panchayati Raj
system and democratic participation in Sakro Village, Chauras, Pauri
Garhwal. The key findings are as follows:
• Structure and Functioning: The Gram Panchayat in Sakro Village
serves as the primary institution for local governance, overseeing
development projects and implementing government schemes.
However, its effectiveness is constrained by limited financial
resources, bureaucratic delays, and the Sarpanch’s dominance over
decision-making.
• Public Participation: While the Gram Sabha provides a platform for
democratic participation, its effectiveness is limited by low
attendance, particularly among women and marginalized groups.
Social barriers, such as traditional gender roles and caste hierarchies,
further hinder inclusive participation.
• Women and Marginalized Communities: Reservation policies have
increased the representation of women and SCs in the Gram
Panchayat, but their active participation remains limited by social
norms, lack of education, and socio-economic disparities. Phenomena
like ‘Pradhan Pati’ and the marginalization of SC members highlight
the challenges of achieving true political empowerment.
• Development and Governance: The Gram Panchayat has
implemented several development projects and social welfare
schemes, improving living conditions in Sakro Village. However,
issues of corruption, Favoritism, and lack of transparency undermine
the equitable distribution of benefits, perpetuating social inequalities.
• Challenges: The Panchayati Raj system in Sakro Village faces
significant challenges, including financial scarcity, geographical
constraints, low awareness, social barriers, and bureaucratic
resistance. These challenges limit the system’s ability to address the
community’s needs effectively and foster inclusive governance.
Overall, while the Panchayati Raj system has the potential to
transform Sakro Village by promoting local self-governance and
democratic participation, its effectiveness is constrained by structural
and social factors that need to be addressed. The system’s successes,
such as the construction of a community water tank and the
implementation of MGNREGA projects, demonstrate its potential to
drive development, but these efforts must be scaled up and made more
inclusive to achieve sustainable progress.

6.2. Policy Recommendations for Strengthening

Panchayati Raj
To strengthen the Panchayati Raj system in Sakro Village and
enhance democratic participation, the following recommendations are
proposed:
• Increase Financial Autonomy: The state government should ensure
timely and adequate fund allocation to the Gram Panchayat, allowing
it to undertake larger development projects. This could include
increasing discretionary funds and streamlining the process for
accessing state grants.
• Enhance Awareness and Participation: Conduct regular awareness
campaigns to educate villagers about their rights, the importance of
Gram Sabha meetings, and the schemes available to them. These
campaigns should target women and marginalized groups, using local
languages and culturally sensitive methods.
• Training for Elected Representatives: Provide training programs for
Sarpanches and ward members on leadership, financial management,
and ethical governance.
These programs should focus on building the capacity of women and
SC representatives, empowering them to take a more active role in
decision-making.
• Strengthen Accountability Mechanisms: Introduce social audits and
public disclosure of financial records to reduce corruption and
enhance transparency. The Gram Sabha could be empowered to
conduct these audits, ensuring that villagers have a direct role in
holding the panchayat accountable.
• Address Social Barriers: Implement community programs to
challenge gender norms and caste-based discrimination, encouraging
greater participation from women and marginalized groups. Mahila
Gram Sabhas and targeted outreach programs for SC communities
could provide safe spaces for these groups to engage in governance.
• Improve Coordination Between Tiers: Enhance coordination
between the Gram Panchayat, Kshetra Panchayat, and Zila Panchayat
to ensure timely implementation of development projects. This could
include regular meetings between representatives of different tiers and
the establishment of a dedicated liaison officer for each block.
• Leverage Technology: Use digital platforms to improve
transparency and participation in local governance. For example, the
Gram Panchayat could create a mobile app to share financial records,
meeting schedules, and scheme updates, making this information
accessible to all villagers, even those with limited literacy.
These recommendations aim to address the structural and social
challenges faced by the Panchayati Raj system in Sakro Village,
fostering a more inclusive, transparent, and effective governance
system. By empowering the Gram Panchayat and encouraging greater
participation from all sections of the community, these measures can
help Sakro Village achieve sustainable development and deeper
democratic engagement.
 6.3. Future Research Opportunities
Future research could explore the following areas to build on the
findings of this study:
• Impact of Technology: Investigate the potential of digital platforms
to improve transparency and participation in local governance in
Sakro Village. A pilot project to test the effectiveness of a mobile app
for sharing panchayat updates could provide valuable insights.
• Role of Education: Examine the role of education in enhancing
democratic participation, particularly among women and marginalized
groups. A longitudinal study to assess the impact of literacy programs
on women’s engagement in Gram Sabha meetings could inform
targeted interventions.
• Comparative Analysis: Conduct a comparative study of Panchayati
Raj systems in other villages in Pauri Garhwal to identify best
practices that can be applied in Sakro Village. Case studies of villages
with high levels of women’s participation or effective anti-corruption
measures could offer valuable lessons.
• Intersection with Van Panchayats: Explore the relationship between
the Gram Panchayat and the local Van Panchayat in Sakro Village,
focusing on their roles in managing community forests. This could
provide insights into how these institutions can collaborate more
effectively to promote sustainable resource management.
These research areas can provide deeper insights into the dynamics of
local governance in Sakro Village, informing policy interventions and
contributing to the broader discourse on rural development in India.
By addressing the gaps in the current system and building on its
strengths, Sakro Village can become a model for effective local self-
governance and democratic participation in the Himalayan region.
Photo Gallery