This document outlines a presentation on decentralized planning and local self-governing institutions in Odisha, India, with a case study of Sundargarh district. It provides historical context on decentralized planning in India and Odisha, discusses the Panchayats Extension to Scheduled Areas Act (PESA) and its provisions for tribal area planning through local institutions. For Sundargarh district, it notes the decentralized planning process initiated in 2008, but observed weak institutional arrangements and a gap between projected and allocated funds. The presentation concludes with findings and recommendations to strengthen decentralized planning in line with PESA and increase tribal area Gram Sabha involvement in local development planning.

1. Bishnu Prasad Mohapatra, Visiting Fellow
Research Unit For Livelihoods and Natural Resources(RULNR)
Centre for Economic and Social Studies,
Hyderabad - 500 016
Local Self-Governing Institutions and
Decentralised Planning in Scheduled
Areas of Odisha-Case Study of a Tribal
District

2. Outline of the Presentation
 Introduction
 Local Governments and Decentralised Planning in India -
Form To Function
 PESAAct and Planning For Scheduled Areas
 Decentralised Planning and Local Self-Governing
Institutions in Odisha-A Historical Analysis
 Current Trends of Planning Process
 The case of Sundargarh District
 Major Findings
 Suggestions
 Conclusion

3. INTRODUCTION
 Local Self-Governing Institutions in India has been playing a
Catalytic role in Planning and Implementation of Development
Programes and this has become more affirmative since the
implementation of 73rd amendment and PESAAct.
 The provision of PESA Act enacted in 1996 emphasised the role of
Local Governments in Scheduled V Areas for Preparation of
Development Plans and Implementation of Development
Programmes.
 The Act has been vested powers to Gram Sabhas in the matters of
Approval of Plans for Village Panchayats .While doing so, the Gram
Sabhas will consider the local resources, customs and traditions of
Tribal People.
 However, despite all these provisions and presence of progressive
Legislation like PESA, Decentralised Planning in Tribal Areas of
Odisha have revealed weak Institutional Arrangements and capacity
gap of PRIs.

4. Continued…..
 The Decentralised Planning Process which was taken up since 2008 in
Odisha has Emphasised the role of PRIs and in the case of Scheduled
Areas, the PRIs will have to provide more emphasis on involvement of
Gram Sabhas in the Process.
 In the case of Sundargarh District, the Process of District Planning
which initiated in 2008 has resulted the preparation of Annual Plan and
Five year perspective plans.
 However from the field observation and analysis of secondary data it is
observed that the process has reflected weak institutional arrangements
and huge gap in projection and allocation of funds for the District.
 The present paper critically analyses such issues in keeping the
Provision of PESA and role of PRIs and Gram Sabhas in Local
Development Planning.
 The Paper provides a Set of Policy Recommendations which needs to
be taken into consideration in keeping the PESA in Mind.

5. Local Governments and Decentralised Planning in India
-From Theory to Practice
 Planning in India since the 1st Five year period has been viewed as
Top-Down in nature, which provided more weightage to Central
Government and State Governments while Formulating Plans.
 However, Decentralised Planning has always been argued as
realistic and pragmatic in nature which is based on “effective
utilization of Local Resources and Local wisdom”.
 It is argued that involvement of Local People and Local Institutions
leads efficient utilization of resources which ensure equitable
sharing of Benefits from Developments.
 Assertion in the favour of Decentralised Planning is based on
Following arguments;
1. Through Decentralised Plans participation of people can Ensure.
2. Need based and area specific plans can bridge regional disparities.

6. Continued…..
3. Improves effectiveness in implementing Development Programmes.
4. Creates scope for equitable participation and benefit sharing.
 Involving Local Governments in Planning Evolved Gradually during
different period of time in which Planning Commission also
emphasized for the Formulation of Such Plans.
 From Fourth Five Year Plan Onwards, there was a Focused to make
Planning as participatory by involving Local Governments which in
different period of time emerged as a key policy decisions.
 The 73rd Constitution Amendment Act further created a space for
Decentralised Planning which also advocated planning as a bottom-up
process.
 Implementation of Provisions of Panchayats(Extension to Scheduled
Areas) Act in 1996 also specified the role of Gram Panchayats and
Gram Sabhas in preparation of Plans for the Scheduled Areas.
 District Planning Committees(DPCs) have been constituted in Different
Districts to Prepare and approve Districts Development Plans.

7. Planning in Scheduled Areas and Role of PESA
 Planning For Scheduled Areas(Areas Comes under Article 274 (I)
and (II) was also initiated during different Five Year Plan periods in
India.
 During the First and Second Five Year Plan period approaches like
Special Multipurpose Tribals(SMPT) and Tribal Development(TD)
Blocks were adopted to streamline Planning in Scheduled Areas.
 During the Fifth Five Year Plan period(1974-1975), the Tribal Sub-
Plan strategy came which Focused Planning and Implementation of
Special Development programs in Tribal Areas.
 However, adoption of TSP Strategy argued as bureaucratic in nature
which left no space for involving Local Governments in Planning
and Implementation of Development Programs.
 Implementation of PESA Act in 1996 has been focused on the
Planning in Scheduled Areas as per the followings;

8. Continued…..
1. Prepare Plans for Economic Development
2. Approve such Plans by suggesting optimal utilization of
Natural Resources.
3. Control over Natural Resources
4. Ownership on Tribal Sub-plans
 However, state specific experiences shows that scant attention
have been given to PRIs while Planning for Economic
Developments.
 Even in the States like Odisha, Gram Sabhas and Gram
Panchayats in Scheduled are not given any space in Planning
and implementation development programs under TSP.

9. Decentralised Planning and Local Self-Governing Institutions in
Odisha-A Historical Analysis
Period Major
Developments(India)
Case of Odisha Implications in
Scheduled Areas
1951-1957 During this Period 1st Five Year
Plan propounded the approach of
Centralised Planning in India.
However, the recommendation of
Balawanta Rai Meheta Committee
Paved the way for the Formulation
of Block and District Level Plans.
The Orissa Gram
Panchayats Act of
1948,1964 and 1968
emphasized the
importance of
Decentralised Planning.
However no efforts
were made to involve
PRIs in Planning
Process.
In Scheduled Areas under
Article 274(I) and (II), no
specific Focus was Given
for Formulation of Special
Plans For these areas.
However emphasis was
made to bring Tribal
Development Issues into
Limelight.
1957-1971 Planning Commission Focused on
Formulation of District Plans and
accordingly issued guidelines to all
the States for formulation of
District Plans. Tibal Sub-Plan
Strategy also adopted during 5th
Five Year plan Period.
In the Case of Odisha,
the Orissa Gram
Panchayats Acts
provided space for Palli
Sabhas/Gram Sabhas
for Planning.
Tribal Sub-Plan Strategy
focused on the formulation
of sectoral plans at the
Block Level. However, no
emphasis was made to
involve Gram
Panchayats/Gram Sabhas in
Planning Process.

10. Continued…..
Period Major
Developments(India)
Case of Odisha Implications in
Scheduled Areas
1971-
1982
The Fifth Five Year Plan
further emphasized the
process of Decentralized
Planning. Ashok Meheta
Committee During this
Period Recommended the
role of Zilla Parishd in
Decentralized Planning.
Planning Commission also
suggested to Set up State
Planning Boards.
State Planning
Board also
attempted to
Prepare District
Plans. However
no concrete steps
were taken to
Formulate District
Development
Plans.
TSP Strategy could
not made any
contribution for
strengthening
bottom-up planning.
But the
recommendations of
Ashok Meheta
Committee was
provided advantage
to Decentralized
Planning.
1982-
1992
CH Hanumantha Rao
Committee Report
Emphasized the
importance of
Decentralized Planning.
Based on this, 7th Five
year Plan further focused
on the Formulation of
The State
Government took
initiative for
activating PRIs by
conducting
Elections to these
bodies. However
decentralised
Planning for Tribal
Areas were largely
based on sect oral
approach and ITDAs
were the major
agencies to prepare
such Plans.

11. Continued…..
Period Major
Developments(Ind
ia
Case of Odisha Implications in
Scheduled Areas
1992-
2007
73rd Amendment Act
enacted which
focused on Planning
By Gram Sabhas in
Rural Areas. PESA
Act also came into
Force, which further
provided powers to
PRIs for Planning and
implementation of
Development
Programs in
Scheduled Areas.
Keeping the manadate of
73rd CAA and PESA,
State Governments
constituted District
Planning Committees in
1998 and accordingly
focus was given for the
Formulation of District
Plans. Comprehensive
District Plan under
NFFWP initiated.
State Government
taken some steps to
bring convergence
between ITDAs and
PRIs while Planning For
Development Programs.
PRIs considered as a
primary vehicle for
implementing
development
perogrammes.
However, ground reality
shows that PRIs role
seems to be invisible.
2007
Onward
s
Eleventh Five Year
Plan provided focus
on Formulation of
As per the mandate of
Planning Commission,
District Planning Process
No effort was made to
issue special guideline
for Planning in

12. THE CASE OF SUNDARGARH DISTRICT
 District Planning process was carried out in the District
during 2008 as per the guideline issued by Planning
Commission and State Planning and Coordination
Department.
 The District which is located in North-Western part of
Odisha have a Distinct Feature of Tribal Population, rich
deposit of mineral resources.
 As a Scheduled District and having covered under the
PESA Act, the District covered under different tribal
development programs like ITDA.
 Planning process was carried out in the District for the
formulation of;
1. District Vision Document(2020)
2. Five Year Perspective Plan(2008-2012)

13. Continued…..
Village
•Palli Sabha
•Consolidation
and
Compilation
•Prioritization
Gram Panchayat
•Gram Sabha
•Compilation
and
Prioritization at
GP Level
•Presentation,
Discussion and
Approval By
GPs
Panchayat Samiti
•Discussion at
Samiti Meeting
•Compilation
and Approval
Zilla Parishad
•Discussion at
ZP Meeting
•Compilation
and Approval
District Planning
Committee
•Presentation
and Discussion
at DPC
Meeting
•Approval

14. Major Findings
Findings Implications
Planning Vs. Implementation:
The Issue of Funds
It is observed that there is a huge Gap in between
Projection and Allocation of Funds for undertaking
Development Programs.
Issue of Convergence Convergence Plan was largely missing in the whole
process which reflected the coordination Gap
between different Line Departments.
Departmental Plan Vs. District
Plan
Plan developed by different departments like Health
under NRHM and Education under SSA carried out
paralally which undermines the spirit of District Plan.
PESA and Institutionalization
of PRIs
Institutionalization of PRIs as per the mandate of
PESA Act not taken seriously as result of which
serious Tribal Development issues were not
reflected either at Gram Sabhas or Gram
Panchayats.
District Resource Envelope:
Unrealistic and based on
Guess work
District Resource Envelope prepared for the District
was based on unrealistic calculation of Resources.
Existing natural resources were not taken into
consideration while doing so.

15. Continued…..
Findings Implications
Macro-Perception Vs. Micro-
Expectation
The Planning Process was witnessed contestation
between Macro-Perception vs. Micro-Expectation
as far as Prioritization of issues are concerned.
While in one side there was issues like a Medical
College or better road connectivity while in other
side there was demand for more allocation for
IAYs or Pensions.
Gram Sabha: A weak
Institution
In the whole process, it was revealed that Gram
Sabhas in the District not playing any pro-active
role except to perform certain rituals. Peoples
aspiration reflected through Gram Sabhas based
on certain Schemes.
Capacity Gap and Poor
Infrastructure of PRIs
Weak Infrastructure Gap of PRIs and poor Data
Management System was reflected in the whole
process.
Scant Attention on Tribal
Customs, Traditions and
Cultures
No plans relating to Tribal People’s customs,
traditions or customs were reflected in the
Planning Process. Issues related to Mining,
Industrialisation, Land alienation, Illicit Liquor were
not reflected in the Planning Process.

16. Continued…..
Findings Implications
DPC-A Sign Board Institution From the analysis of Data It was revealed
that Functioning of DPC in the District
Confined with more or less approve the
plans without considering the ground
reality. Huge capacity Gap and Political
interference restricted the Functioning of
DPC in the District.
Bureaucratic Control and Presence Of Elite Planning Process in all the Stages staring
from Village to District was controlled by
District level Officials. Political interference
and selection of Projects and beneficiaries
were based on Political facilitation.
Poor Data Management System and
Inadequate Staff
Poor data management system, weak
infrastructure and manpower shortage were
another challenges which faced by the PRIs
while doing this task.

17. Suggestions
 Adequate Fiscal Devolution and Devolution of Funds should be done by
the State Government to effectively implement the Planned Activities.
 Implementation of Development Programmes by different Line
Departments should be done by PRIs and the Planning Process should be
done by Gram Sabhas.
 Resource mapping should be done by the respective Gram Panchayats to
enhance control and access over natural resources for optimal utilization
of such resources.
 Departmental Plans like Plans for SSA,NRHM,RKVY etc should not done
Paralally and there should be focus on recommendations of Gram Sabha
in this regard.
 Planning for the Development of Scheduled Tribes under TSP should be
done as per the mandate of PESA Act. Implementation of TSP Funds
should be channelized through PRIs.
 Customs ,Cultures and Traditions of Tribal People should be taken into
consideration while formulating Plans.
 District Resource Envelope should include all the available resources
including human resources. It should be realistic and based on scientific
calculation of actual value.

18. Continued…..
 Issue of Convergence should be taken seriously and convergence
plan should be followed in letter and spirit.
 Mechanism should be devised to bridge the gap between Macro-
Perception and Micro-expectation. Tribal people’s expectation
linked with Livelihoods should be given focus instead of
throwing the ideas from upper level.
 Functioning of District Planning Committees(DPCs) should be
further examined in considering the emerging development
needs. Specific functions of DPCs functioning in scheduled areas
should be framed in keeping the issues of Tribal Development
and PESA in Mind.
 Gram Panchayats should take whole responsibility in Developing
Planning for the respective GPs in close coordination with Gram
Sabhas. Issues like Elite’s Capture and Bureaucratic control
should be taken into consideration.

19. Continued…..
 Capacity Building of PRIs Staffs along with adequate
infrastructure facility should be taken into consideration in
keeping the importance of Planning Process.
 Planning process in Scheduled areas needs a fresh policy review
in keeping the current pace of Globalization in Mind.
Involvement of all the Stakeholders including Government,
Semi-Government and Private should be made mandatory.
 Implementation of Plans should be based on Prioroty fixed by
Gram Sabhas and no sort of dilution should be allowed.

20. THANK YOU ALL!