PESA Act Implemented in Jharkhand after 25 Years

Context & Why in News ?

• Panchayat (Extension to Scheduled Areas) Act rules notified in Jharkhand in 2025–26, 25 years after statehood.
• Applies fully in 13 districts, partially in 3.
• Reignites debate on Gram Sabha supremacy, customary law, and administrative control in Fifth Schedule Areas.

Relevance

GS II – Polity & Governance

• Fifth Schedule
• Tribal self-governance
• Panchayati Raj in Scheduled Areas

GS I – Indian Society

• Tribal autonomy & customary law

Constitutional / Legal Dimension

• Fifth Schedule (Article 244):
  • Mandates special governance for Scheduled Areas to protect tribal autonomy.
• PESA, 1996:
  • Extends Part IX (Panchayats) to Scheduled Areas with modifications.
  • Core spirit: Gram Sabha as basic unit of self-governance.
• Key Constitutional Anchors:
  • Article 13 (customary law protection via PESA).
  • Articles 38, 39(b): distributive justice, community control over resources.
• Fault Line:
  • Jharkhand rules alleged to dilute Sections 4(a), 4(d) of PESA → erosion of protection to customary law, cultural identity, community ownership.

Governance & Administrative Dimension

• What the Rules Provide:
  • Gram Sabha declared “supreme” in Scheduled Areas.
  • President chosen as per traditional customs.
  • Powers over:
    • Minor minerals, forest produce, small water bodies.
    • Local dispute resolution; fines up to ₹2,000.
• Critical Governance Concerns:
  • District Deputy Commissioner:
    • Recognises and notifies Gram Sabhas and boundaries → top-down control.
  • Gram Sabha excluded from:
    • District Mineral Foundation (DMF).
    • Tribal Sub Plan (TSP).
• Institutional Tension:
  • Panchayati Raj Institutions + bureaucracy vs customary institutions (Manki-Munda, Majhi-Pargana).

Economic & Resource Governance Dimension

• Resource-rich State:
  • ~30% forest cover.
  • ~40% of India’s mineral reserves.
  • Annual mineral output: ~160 million tonnes.
• Disconnect:
  • High resource extraction vs persistent tribal poverty.
• Key Issue:
  • Gram Sabha authority limited to minor minerals, not major mining, DMF funds, or consent mechanisms.

Social & Human Development Dimension

• Demographic Reality:
  • STs = 26.3% of population (~32.9 million).
  • 32 tribal communities; 8 PVTGs.
• Persistent Deprivation:
  • Literacy (STs): 57.2% (2011).
  • Only 6.08% tribal households in salaried jobs.
• Health Indicators:
  • 28% tribal women with BMI < 18.5 (NFHS-5).
  • High anaemia, malaria burden.
• Water & Welfare:
  • Jal Jeevan Mission coverage: ~55%, tribal areas lagging.

Environment & Forest Rights Dimension

• Forest Rights Act (FRA) Interface:
  • 110,756 claims filed; only ~56% approved by Aug 2025.
• Civil Society Concern:
  • Jharkhand Forest Rights Forum alleges:
    • Bureaucratic dominance.
    • Community forest management rights diluted.
• Structural Issue:
  • PESA + FRA not harmonised in rules → fragmented tribal governance.

Criticisms

Institutional

• Gram Sabha authority conditional on administrative recognition.
• Weak linkage with DMF, TSP, major development planning.

Legal

• Omission of explicit terms like “community ownership”.
• Customary law subordinated to executive discretion.

Implementation

• Risk of symbolic decentralisation.
• Panchayat secretaries and officials can override traditional institutions.

Ethical

• Violates principle of self-rule as intrinsic tribal right, not state concession.

Way Forward

• Amend Rules to fully mirror PESA Section 4:
  • Explicit protection to customary law, culture, community ownership.
• Gram Sabha Primacy:
  • Recognition by community, not district officials.
• Expand Economic Powers:
  • Mandatory Gram Sabha consent for DMF utilisation, major mining impacts.
• PESA–FRA Convergence Framework:
  • Single institutional platform for forest and village governance.
• Capacity Building:
  • Legal literacy, financial powers, independent dispute resolution.
• Governor’s Fifth Schedule Role:
  • Active use of discretionary powers to safeguard tribal interests.

Prelims Pointers

• PESA applies only to Fifth Schedule Areas, not Sixth Schedule.
• Jharkhand: last major Fifth Schedule state to notify PESA rules.
• Gram Sabha under PESA ≠ Gram Sabha under normal Panchayati Raj.
• Customary law protection is core to PESA, not optional.

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