People's Plan Campaign (PPC) 2025–26

The Ministry of Panchayati Raj recently launched the People’s Plan Campaign (PPC) for 2025–26 to initiate the nationwide process of preparing Panchayat Development Plans (PDPs) for the Financial Year 2026–27. The overarching slogan, “Sabki Yojana, Sabka Vikas”, emphasizes the inclusivity and holistic nature of the planning process, aiming for comprehensive rural development.

What is the People’s Plan Campaign (PPC)?

The People’s Plan Campaign (also known as Jan Yojana Abhiyan) was launched on October 2, 2018. It is designed to foster participatory, transparent, and accountable local governance by actively involving citizens at the Gram, Block, and District levels in the preparation of Panchayat Development Plans (PDPs). The campaign promotes community-driven development and decentralization.

Objectives of PPC:

1. Inclusive and Convergent Planning: To ensure that development plans at the Gram, Block, and District levels are inclusive and well-coordinated, addressing local needs and priorities.

2. Localization of SDGs: To align the Sustainable Development Goals (SDGs) with local development strategies, focusing on the nine thematic approaches of SDGs and integrating Village Prosperity and Resilience Plans (VPRPs) from Self-Help Groups (SHGs).

3. Gender-Responsive Governance: To promote greater involvement of Women Elected Representatives (WERs), fostering gender-sensitive development.

4. Transparency & Accountability: To ensure that the planning process is transparent, involving Gram Sabhas and making information publicly available through campaigns and disclosures.

Achievements of PPC (as of July 2025):

• Over 18.13 lakh PDPs have been uploaded since 2019, showing significant progress in grassroots-level planning.

Highlights of PPC 2025–26:

1. Review and Assessment: Gram Sabhas will review the previous Gram Panchayat Development Plans (GPDPs), assess progress using tools like eGramSwaraj and the Meri Panchayat App, and address delays or unfinished projects, particularly those linked to Central Finance Commission grants.

2. Panchayat Advancement Index (PAI): The Panchayat Advancement Index (PAI) will be used to guide the process and ensure improvement in the Own Source Revenue (OSR) of Panchayats.

3. Tribal Empowerment: The campaign will focus on tribal empowerment through initiatives like the Adi Karmayogi Abhiyaan.

4. Digital Planning: Tools like eGramSwaraj, Panchayat NIRNAY, and the Meri Panchayat App will be central to improving transparency, accountability, and participation in the development process.

Role of Panchayats in India’s Development Framework

The Panchayats are the core of India’s decentralized governance system. They are responsible for delivering local governance, public welfare, and development programs at the grassroots level.

Constitutional Role:

• 73rd Amendment (1992): Institutionalized the Panchayati Raj system, granting Gram Panchayats the constitutional mandate to plan and implement economic development and social justice programs.

• Article 243G: Empowers Panchayats to take decisions on economic and social justice programs, making them autonomous units of local self-government.

Key Functions of Panchayats:

1. Service Delivery & Welfare: Panchayats ensure the provision of essential services like water, sanitation, roads, street lighting, health, education, and nutrition.

2. Development Planning: Panchayats create Gram Panchayat Development Plans (GPDPs) in participatory Gram Sabhas, ensuring that local issues and priorities are incorporated.

3. SDG Localization: Panchayats play a key role in integrating SDG themes like poverty-free, healthy, water-sufficient, and clean & green villages into development plans.

People’s Planning:

• Self-Help Groups (SHGs) contribute to the planning process by preparing Village Prosperity and Resilience Plans (VPRPs), ensuring gender-sensitive and socially inclusive development.

Challenges

The PPC faces several challenges that need to be addressed to improve its effectiveness:

Challenges:

1. Lack of Trained Personnel: Many Gram Panchayats lack the technical skills and expertise needed for effective planning.

2. Limited Own Source Revenue (OSR): Panchayats depend largely on grants from the Centre and States, limiting their financial autonomy.

3. Connectivity Issues: Poor connectivity in remote areas hampers the use of digital tools like eGramSwaraj and other apps for real-time monitoring.

4. Weak Multi-Departmental Convergence: Lack of coordination between different departments hinders holistic planning and integrated development.

Actionable Strategies:

1. Capacity Building: Train Panchayat officials and facilitators through State Institutes of Rural Development & Panchayati Raj (SIRD&PRs).

2. Incentivizing OSR: Implement performance-linked grants and incentivize Own Source Revenue (OSR) mobilization.

3. Expanding Digital Infrastructure: Enhance BharatNet and digital infrastructure to improve e-governance and support PPC tools like eGramSwaraj, Meri Panchayat App, and Panchayat NIRNAY.

4. Improving Convergence: Establish convergence cells at the block and district levels to integrate key schemes like MGNREGA, PM Awas Yojana, Swachh Bharat Mission, and health programs.

What is a PRI?

Panchayati Raj Institution (PRI) refers to the system of local self-government in rural India. It provides a mechanism for decentralized governance and community participation in decision-making processes at the village, block, and district levels. The PRI system was institutionalized through the 73rd Constitutional Amendment Act, 1992, with the aim of empowering rural communities and ensuring their active participation in the governance and development processes.

Evolution of Panchayati Raj System in India

The evolution of Panchayati Raj in India spans several historical periods:

1. Vedic and Epic Eras:

   • During the Vedic period, democratic local governance was represented by groups like Sabhas and Samitis. These bodies were empowered to make decisions and approve the king’s policies.

   • The Mahabharata mentions a structured administration in villages with leaders responsible for managing affairs at different levels (10, 20, 100, 1,000 villages).

2. Ancient India:

   • In the Mauryan period, Kautilya’s Arthashastra refers to local governance, where village Panchayats were responsible for local taxation and defense. The village headmen, Grampatis, played a critical role in governance.

   • Over time, local governance structures continued in ancient India, although the role of women was not recognized in these early systems.

3. Medieval Period:

   • Under the Sultanate and Mughal rule, local governance was largely managed by village officials like Mukkaddam (administrator) and Patwari (revenue collector). However, village autonomy declined during this period, and caste and feudal systems took prominence.

4. British Period:

   • The British weakened local self-government structures, but efforts for local democratic governance emerged post-1870 with the Mayo’s Resolution and Lord Rippon’s reforms (1882). These reforms introduced elected representatives to local bodies, though these systems remained limited and not fully democratic.

   • In 1919, the Montagu-Chelmsford reforms transferred local governance to provinces, but local bodies remained weak due to fiscal and administrative constraints.

5. Post-Independence Period:

   • After independence, Panchayats were incorporated into the Directive Principles of State Policy (Article 40) of the Indian Constitution.

   • In 1959, a three-tier Panchayat Raj system was implemented in Rajasthan and later expanded across other states, as recommended by the Balwant Rai Mehta Committee. This system introduced Grama Panchayats (village level), Panchayat Samitis (block level), and Zilla Parishads (district level).

   • The Ashok Mehta Committee (1977) suggested a two-tier system. However, the need for comprehensive and functional local self-governance continued to evolve over time.

   • The 73rd and 74th Constitutional Amendments (1992) marked a significant turning point, establishing a strong framework for local governance.

Salient Features of the 73rd and 74th Amendments

The 73rd and 74th Amendments to the Indian Constitution brought about significant reforms to the structure of local self-governance in India. These amendments were passed in 1992 and became effective in 1993, and they laid the foundation for a more decentralized system of governance by providing constitutional recognition and strengthening the Panchayati Raj Institutions (PRIs) and Municipalities.

1. Panchayats (73rd Amendment) – Part IX of the Constitution

• Part IX of the Constitution was added to provide a legal framework for Panchayati Raj institutions (PRIs), starting at the village level and extending to district levels.

• Gram Sabhas (village assemblies) and Ward Committees (for municipalities) were recognized as the basic units of democracy.

2. Three-Tier System of Panchayats (Article 243B):

• Village Panchayats, Intermediate (block/taluk/mandal) Panchayats, and District Panchayats were established as a mandatory three-tier structure for decentralized governance.

  • Exceptions: States with populations under 20 lakh are not required to implement the intermediate level (block/taluk/mandal) panchayats.

3. Direct Elections (Article 243C):

• Seats at all levels of the Panchayats are filled through direct elections.

• The elections are to be uniform and conducted every five years, with provisions to ensure that new bodies are constituted before the expiry of the term (Article 243E).

4. Reservation of Seats (Article 243D):

• One-third of the total seats in Panchayats are reserved for women.

• Seats reserved for Scheduled Castes (SCs) and Scheduled Tribes (STs), and the chairpersons' positions at all levels (village, block, and district) are reserved in proportion to their population.

• One-third of the reserved seats for SCs and STs are also to be reserved for women.

• One-third of the positions of chairpersons at all levels of Panchayats are also reserved for women.

5. Role of Gram Sabhas (Article 243A):

• The Gram Sabha (village assembly) plays a crucial role in making decisions regarding development projects, social justice, and local issues.

6. Financial Empowerment (Article 243H and 243I):

• Panchayats are empowered with financial resources through the State Finance Commission, which is responsible for determining the principles based on which adequate financial resources are allocated to Panchayats.

• Panchayats are also empowered to collect taxes and retain revenue to fund local development projects. Additionally, they can access funds from Central Government programmes and grants under the Union Finance Commission.

7. Empowerment of Local Governance (Article 243G):

• Panchayats are responsible for preparing plans for economic development and social justice in areas devolved to them through state laws.

• The Eleventh Schedule of the Constitution outlines 29 subjects on which Panchayats have the authority to make decisions and implement plans.

8. Independent Election Commission (Article 243K):

• An Independent Election Commission at the state level is responsible for the superintendence, direction, and control of electoral rolls and the conduct of elections for Panchayats.

9. District Planning Committees (Article 243ZD) – 74th Amendment:

• The 74th Amendment provided for the creation of District Planning Committees. These committees are responsible for consolidating the plans developed by the Panchayats and Municipalities, ensuring coordinated and effective development planning across regions.

10. Uniform Terms and Elections (Article 243E):

• Panchayat bodies have a uniform five-year term. In the event of a dissolution, elections must be held within six months.

11. Special Provisions for Scheduled Areas (PESA Act 1996):

• Certain tribal and scheduled areas are exempt from the full application of the Panchayati Raj system due to their socio-cultural and administrative uniqueness. For these areas, the Panchayat (Extension to the Scheduled Areas) Act, 1996 was passed to ensure that local customs and practices are respected while empowering local bodies.

12. Functions in the Eleventh Schedule:

• 29 functions are listed in the Eleventh Schedule for Panchayats to manage. These include:

  • Agriculture, water management, land improvement.

  • Social welfare, health, sanitation, and education.

  • Rural electrification, non-conventional energy sources.

  • Construction of roads, bridges, and other infrastructure.

  • Promotion of industries, markets, and cooperatives.

Reforms and Challenges of PRIs

Reforms Since Inception:

• Empowerment of Women: The reservation of one-third of seats for women has drastically increased female political representation. In fact, India has the largest number of women in elected positions globally.

• Financial Devolution: The Finance Commissions have steadily increased funding allocations for PRIs, helping strengthen their capacity to function effectively.

• e-Governance: The government has introduced digital tools like eGramSwaraj to improve transparency and facilitate monitoring of rural development plans.

However, there have been significant challenges:

1. Lack of Effective Devolution:

   • States often retain authority over key functions and fail to fully devolve powers and funds to PRIs, limiting their autonomy and effectiveness.

2. Inadequate Funding:

   • PRIs struggle with insufficient financial resources. The grants provided by Finance Commissions often fall short of the actual requirements.

   • Many Gram Panchayats (GPs) are reluctant to generate their own revenue, relying heavily on state or central funding.

3. Infrastructural Challenges:

   • Many Panchayats do not have dedicated offices, and some lack basic amenities like toilets, electricity, and internet access, which hampers their efficiency.

4. Sarpanch Pati (Proxy Leadership):

   • The Sarpanch Pati culture, where male relatives of female sarpanchs exercise power, persists due to patriarchal societal norms, undermining women's authority.

5. Lack of Convergence in Government Programs:

   • There is no integrated approach to the implementation of government schemes. Different departments often run parallel projects without coordination, leading to inefficiency.

Steps Needed for Improvement:

To address these issues, several steps can be taken:

1. Clear Demarcation of Functions:

   • The 2nd Administrative Reform Commission (ARC) recommended clear division of functions between state, district, and local bodies to avoid overlap and confusion.

2. Enhancing Fiscal Autonomy:

   • Panchayats should have more autonomy to raise their own revenue through local taxes, user fees, etc., which would provide them with the financial independence necessary to implement local projects.

3. Capacity Building:

   • Extensive training for Panchayat members and officials is needed to improve governance skills, technical expertise, and understanding of financial management.

4. Infrastructure Improvement:

   • Efforts should be made to provide basic infrastructure to Panchayats, including office spaces, communication facilities, and internet connectivity to improve efficiency and transparency.

5. Convergence of Schemes:

   • A system for the convergence of government programs should be created at the district and block levels to ensure that development projects are implemented in a coordinated manner.

Conclusion

The People’s Plan Campaign (PPC) is a crucial initiative aimed at strengthening decentralization and empowering local governments to play an active role in sustainable rural development. By leveraging community participation and digital tools, the PPC can make Panchayati Raj more transparent, inclusive, and accountable, thus accelerating rural development and contributing to the vision of a Viksit Bharat by 2047.