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Relevance: GS-II Devolution of Powers to Local Levels; PESA & Tribal Rights Source: MoPR / NIRD&PR National Study Report, 2026

1 · What exactly happened?

A recent study by the Ministry of Panchayati Raj points out a sad reality: villagers are simply not showing up for Gram Sabha meetings. The researchers call this “Gram Sabha Participation Fatigue.” People are tired of attending meetings that don’t change anything in their daily lives.

This isn’t about laziness. The 73rd Amendment wanted the Gram Sabha to be a powerful, self-governing village body. But today, it has just become a rubber-stamp to approve government schemes. When villagers realise that the real decisions are made in big government offices and not under the village tree, they lose interest.

2 · Why participation is falling

What is a Gram Sabha? It is the village assembly made up of every registered voter in the village, defined under Article 243(b). Its powers are granted by the State Legislature under Article 243A. It is the only place in our system where ordinary citizens practice direct democracy.
The Dream
Meant to rule themselves
The idea was that villagers would plan, decide, and hold leaders accountable. In tribal areas (PESA), they even have a legal right to say ‘no’ to projects.
The Reality
Clashing timings & rich control
Over 55% said meetings clash with farm or daily-wage work. Since attending doesn’t pay, the meetings are often hijacked by rich landlords or contractors who have free time.
Voice Ignored
The bypass of tribal consent
In Scheduled Areas, local consent is often forced. The famous Hasdeo Arand protests in Chhattisgarh happened because mining decisions completely bypassed the Gram Sabha.
The Solution
Give them real stakes
Give Panchayats more “free” funds to spend locally, compensate poor workers for attending, and make government officials answer to the village directly.
  • No financial freedom: Panchayats collect very little tax. The money they get from the Centre is strictly tied to specific schemes (like the Jal Jeevan Mission or Swachh Bharat). If the money is already locked for a specific purpose, villagers feel there is nothing left to debate.
  • Technology as a headache: Uploading meeting details live on the Panchayat NIRNAY portal is great for government records. But it distracts officials from actually solving local problems. Sometimes, real MGNREGA wage demands are ignored by simply blaming “server errors.”
  • The Legal Shield: The PESA Act, 1996 makes it absolutely mandatory to consult the Gram Sabha before acquiring land in Fifth Schedule tribal areas.
  • Supreme Court Backing: The historic Samatha Judgment (1997) ruled that tribal land and mining leases cannot be handed over to non-tribals or private companies in Scheduled Areas.
UPSC Value Box
73rd Amendment (1992) Added Part IX to the Constitution, giving legal status to Panchayati Raj Institutions.
Article 243(b) & 243A 243(b) defines the Gram Sabha (all registered village voters). 243A says it exercises powers given by the State Legislature.
PESA Act, 1996 Extends Panchayat rules to Fifth Schedule (Tribal) Areas. Makes Gram Sabha consultation compulsory before taking land.
Fifth Schedule Governs the administration of tribal areas in states outside the North-East.
Samatha Judgment (1997) Supreme Court ruling that protects tribal land and mining rights from private firms in Scheduled Areas.
Untied grants “Free” funds that a panchayat can spend on local needs, unlike funds tied to strict central schemes.
Hasdeo Arand A dense forest region in Chhattisgarh facing huge protests over coal mining that bypassed Gram Sabhas.
MCQ Practice Question
Q. With reference to the Gram Sabha and the PESA Act, consider the following statements:

  1. The Gram Sabha, consisting of persons registered in the electoral rolls of a village, is provided for under Part IX of the Constitution.
  2. The PESA Act, 1996 extended the provisions of Part IX to the Sixth Schedule Areas.
  3. Under PESA, the Gram Sabha must be consulted before acquisition of land in Scheduled Areas for development projects.

Which of the statements given above is/are correct?
(a) 1 and 2 only    (b) 2 and 3 only    (c) 1 and 3 only    (d) 1, 2 and 3
Answer: (c) 1 and 3 only

  • Statement 1 — Correct: Part IX (added by the 73rd Amendment) provides for the Gram Sabha, defined under Article 243(b).
  • Statement 2 — Incorrect: Beware the trap! PESA extends Part IX to Fifth Schedule Areas, not the Sixth Schedule (which applies to tribal areas of Assam, Meghalaya, Tripura, and Mizoram).
  • Statement 3 — Correct: PESA makes it mandatory to consult the Gram Sabha before taking land in Scheduled Areas.
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