G.V.K. Rao Committee

The G.V.K. Rao Committee was a significant administrative reform committee constituted by the Government of India in 1985 to examine and recommend measures for improving the administrative arrangements for rural development and for strengthening local governance through Panchayati Raj institutions. Its recommendations marked a crucial step towards re-establishing the role of local self-government in rural planning and administration, which had weakened in the decades following the early Panchayati Raj experiments of the 1960s.

Background and Context

By the early 1980s, the performance of Panchayati Raj institutions (PRIs)—originally introduced following the Balwantrai Mehta Committee (1957)—had declined in many parts of India. Although PRIs were designed to promote decentralised planning and people’s participation, they gradually became ineffective due to several reasons:

• Excessive bureaucratic control and centralisation of authority.
• Erosion of autonomy at the local level.
• Financial dependence on state governments.
• Lack of coordination among development departments.
• Political interference and irregular elections.

Simultaneously, the Integrated Rural Development Programme (IRDP) and other centrally sponsored schemes were launched during the late 1970s and early 1980s to alleviate rural poverty. However, their implementation revealed weaknesses in administrative coordination and local participation.
Recognising these issues, the Planning Commission constituted the Committee on Administrative Arrangements for Rural Development and Poverty Alleviation Programmes in 1985, under the chairmanship of Shri G.V.K. Rao, a senior member of the Indian Administrative Service (IAS) and former member of the Planning Commission.

Objectives and Terms of Reference

The primary objectives of the G.V.K. Rao Committee were to:

1. Review the existing administrative structure for rural development programmes.
2. Suggest measures for effective implementation and coordination of poverty alleviation schemes.
3. Recommend reforms for strengthening local institutions and ensuring people’s participation in planning and development.
4. Define the role of the District Rural Development Agency (DRDA), state governments, and Panchayati Raj institutions in rural governance.

Key Recommendations

The G.V.K. Rao Committee submitted its report in 1986, highlighting the need to revitalise Panchayati Raj institutions as the core mechanism for democratic decentralisation and rural development. Its major recommendations included the following:

1. Reactivation of Panchayati Raj Institutions (PRIs):
   • The committee observed that the “development administration has become increasingly bureaucratised and divorced from the people.”
   • It recommended that Panchayati Raj institutions should be assigned a central role in planning, implementation, and monitoring of rural development programmes.
   • PRIs were to act as the principal agencies for local-level development, replacing the fragmented bureaucratic arrangements.
2. Strengthening the District Level as the Key Unit of Planning:
   • The district should be the basic unit for planning and coordination of development activities.
   • The Zila Parishad was to be the apex body at the district level, responsible for integrating sectoral programmes and linking them with state and national plans.
   • The District Collector, while continuing as the chief executive officer of the district administration, should function under the general supervision of the Zila Parishad in matters related to rural development.
3. Reorganisation of the District Rural Development Agency (DRDA):
   • The DRDA, which had become a separate bureaucratic entity, should be merged with or placed under the control of the Zila Parishad to avoid duplication and ensure better coordination.
   • The committee proposed that the DRDA should serve as the technical and administrative arm of the Zila Parishad for implementing development programmes.
4. Decentralisation of Power and Financial Resources:
   • State governments should devolve adequate financial powers, taxation authority, and budgetary allocations to local bodies.
   • Panchayati Raj institutions should have access to local revenue sources, in addition to state and central grants, to ensure functional autonomy.
5. People’s Participation and Accountability:
   • The committee stressed the need for active community participation in rural development projects.
   • Transparency and accountability mechanisms were to be built into local governance through regular meetings, audits, and social review processes.
6. Administrative and Bureaucratic Reforms:
   • Bureaucrats working at the district and block levels should act as facilitators and advisors, not as controllers.
   • A proper career structure for development functionaries should be created to ensure continuity and motivation.
   • Training programmes were to be institutionalised for both officials and elected representatives.
7. Role of Gram Panchayat and Block Level Institutions:
   • The Gram Panchayat should serve as the foundation of local self-government, responsible for identifying local needs and implementing basic services.
   • The Block-level Panchayat Samiti should coordinate development activities of Gram Panchayats and act as a link between village and district levels.
8. Integration of Development Schemes:
   • The committee recommended consolidation of multiple centrally sponsored schemes into a comprehensive local development plan, avoiding fragmentation and redundancy.

Key Observations

The G.V.K. Rao Committee made several critical observations that reflected its philosophical and administrative understanding of governance:

• Development administration must be people-centred, not bureaucratic.
• Effective rural development requires decentralised decision-making, with Zila Parishad as the nodal body.
• The lack of coordination among different agencies was the primary cause of failure of rural development programmes.
• Political will and stable institutions are essential for successful decentralisation.

Impact and Subsequent Developments

The G.V.K. Rao Committee’s recommendations had a profound influence on subsequent policy reforms in India. Its emphasis on district-level planning and the integration of administrative machinery into Panchayati Raj institutions helped shape later government initiatives.
Key outcomes and influences include:

1. Formation of the L.M. Singhvi Committee (1986):
   • Soon after the Rao Committee report, the Government of India appointed the L.M. Singhvi Committee to recommend constitutional measures for strengthening Panchayati Raj.
   • The Singhvi Committee built upon Rao’s recommendations, leading to the demand for constitutional status for local self-governments.
2. Basis for the 73rd Constitutional Amendment (1992):
   • The Rao Committee’s advocacy for decentralisation, financial devolution, and the primacy of Zila Parishads was reflected in the 73rd Amendment, which granted constitutional recognition to Panchayati Raj institutions.
3. Reforms in Development Administration:
   • The merging of DRDAs with Zila Parishads in several states followed the Rao Committee’s advice.
   • District-level planning cells were created to integrate rural development programmes.
4. Revival of Grassroots Democracy:
   • The report reignited national discourse on grassroots governance, reinforcing the concept of “Power to the People” as a pillar of democratic development.

Evaluation and Criticism

While the G.V.K. Rao Committee was widely acclaimed, certain challenges persisted in implementing its recommendations:

• State governments showed reluctance to devolve power and resources to local bodies.
• The bureaucratic mindset and administrative hierarchy remained resistant to change.
• Uneven implementation across states led to regional disparities in decentralisation.
• Financial autonomy of local bodies continued to be limited despite policy reforms.

Nevertheless, the committee’s framework remains one of the most comprehensive blueprints for integrating administration with participatory governance.

Significance and Legacy

The G.V.K. Rao Committee occupies a pivotal place in India’s decentralisation history for the following reasons:

• It restored the centrality of Panchayati Raj institutions in rural development after two decades of neglect.
• It shifted the focus from bureaucratic to people-centric governance.
• It provided the administrative foundation for later constitutional and legislative reforms.
• It redefined the role of the district as the core unit of planning and development.