Panchayat Advancement Index (PAI) : Using Local Data for Better Governance

1. In recent years, the absence of timely Census data and lack of accessible, time-series datasets has been a major concern for policymakers and researchers.
2. This has created gaps in reliable information for planning and decision-making at all levels of government.
3. Though several ministries collect large amounts of data and policies like the National Data Sharing and Accessibility Policy (NDSAP), 2012 aim to make such data public.
4. But, There are still issues with how this data is presented and used.
    

Problems with Current Data Systems
 

1. Data available on government portals like data.gov.in is often too complex or not easy to understand.
2. Visual tools to make data more clear and usable are limited or underdeveloped.
3. As a result, decisions at Union and State levels are still often made based on past experience or personal judgement, not evidence.
4. At the local level — especially at the Gram Panchayat (GP), block, or district — data is mostly collected only for higher authorities and is not used effectively at the grassroots.
    

Introduction to Panchayat Advancement Index (PAI) :

 

1. To address these gaps, the government launched the PAI Baseline Report 2022-23, released by the Ministry of Panchayati Raj in April 2025.
2. PAI is a tool that helps measure the performance of Gram Panchayats using local-level data across different development areas.
3. It is based on 435 indicators (331 mandatory and 104 optional) and uses 566 different data points, across 9 themes related to the Localization of Sustainable Development Goals (LSDGs).
4. The data is aligned with the National Indicator Framework (NIF) developed by the Ministry of Statistics and Programme Implementation.

Coverage and Data Validation

 

1. The index includes validated data from over 2.16 lakh Gram Panchayats (GPs) across India.
2. However, about 11,000 GPs could not be included due to missing or unverified data.
3. While 25 States/UTs submitted nearly 100% data, Uttar Pradesh only submitted data for 23,207 out of 57,702 GPs (around 40%), which raises concerns about transparency and development planning in the state.

 

Performance Classification (2022–23)
 

Category	Score Range	% of GPs
Achiever	90+	0%
Front Runner	75–89.99	0.3%
Performer	60–74.99	35.8%
Aspirant	40–59.99	61.2%
Beginner	Below 40	2.7%

What Makes PAI Different

 

1. Unlike earlier data systems, PAI focuses on local results.
2. It helps Panchayats and communities see how they are performing in specific areas like health, education, sanitation, water supply, and more.
3. Even a sarpanch or ward member can understand their GP’s performance with basic help, and identify what needs to be improved.
4. The PAI portal allows local leaders and even MPs or MLAs to see data and plan actions for their areas.
    

Usefulness of PAI
 

1. PAI connects data directly with development outcomes.
2. For example, if a GP is marked low in “Healthy Panchayat” indicators, the areas that need improvement are clearly shown.
3. This helps all those involved — citizens, local leaders, health workers, and government officials — to focus their work where it's needed most.
4. Good coordination between departments and local representatives is found to be a major factor in better GP performance.
    

Role of Institutions and Community Participation

 

1. The government suggests that institutions under the Unnat Bharat Abhiyan (UBA) should study at least five GPs each and help them understand their PAI scores.
2. This “hand holding” by educational institutions and civil society groups can help improve planning and use of local funds.

Better Use of Local Funds

1. PAI can guide how funds should be spent under various schemes like:
   • MPLADS and MLALADS
   • District Mineral Foundation (DMF) Funds
   • CSR (Corporate Social Responsibility) funds
   • Central schemes like:
     1. MGNREGS
     2. Jal Jeevan Mission
     3. Swachh Bharat Mission–Grameen
         

Recommendations and Next Steps

 

1. There is a need to place trained data analysts at the block and district levels to prepare simple reports for local leaders and the public.
2. Better data dashboards and visual tools should be developed to make local data easier to use and understand.
3. The PAI model should also be extended to urban local bodies for better city-level governance.
4. Regular updates and follow-up reports should be published to track progress.

 

Constitutional & Legal Framework
 

1.  73rd Constitutional Amendment Act, 1992
   1. Gave constitutional status to PRIs (Panchayati Raj Institutions)
   2. Introduced Part IX (Articles 243–243-O)
   3. Added 11th Schedule: 29 devolvable subjects
2.  Key Articles
   1. Article 40 (DPSP): State to organise and empower panchayats
   2. Article 243-I: Mandatory formation of State Finance Commission (every 5 years)

 

Challenges to PRIs

 

1.  Limited Financial Autonomy
   1. Average revenue per GP (2022–23): ₹21.23 lakh
   2. Only 1.1% from own sources
   3. Only 8 states have constituted their 6th State Finance Commission
2.  Incomplete Devolution
   1. Despite the 73rd Amendment, <20% of states have transferred all 29 subjects
3.  Gender Representation Gaps
   1. 50% quota for women exists, but actual participation = 46.6%
   2. “Sarpanch Pati” syndrome limits agency of women leaders
   3. Patriarchal bias prevalent in UP, Bihar, Haryana, Rajasthan
4. Poor Inter-Departmental Coordination
   1. Multiple departments work in silos → Duplication & inefficience
5.  Tech and Capacity Gaps

Metric	Data
Computer-equipped GPs	12 states/UTs = 100%
Internet Access	Haryana: 0%, Arunachal Pradesh: 1%
Pucca Panchayat Buildings	Arunachal Pradesh: only 5

Measures to Strengthen PRIs

1. Implement State Finance Commissions on time
2. Adopt GIS-based tax mapping (RBI recommendation, 2022)
3. Incentivize local tax collection
4. Transfer all 29 subjects effectively
5. Ensure untied funds and frequent transfers
6. Expand Rashtriya Gram Swaraj Abhiyan (RGSA)
7. Special training for:
   1. Women representatives
   2. Marginalized groups
8. Promote convergence with SHGs & CBOs
9. Integrate e-Gram Swaraj, BharatNet, and CSCs
10. Use dashboards like Mission Antyodaya, Local Government Directory (LGD)
11. Establish Women Resource Centres
12. Institutionalize gender budgeting
13. Collect disaggregated gender data

In conclusion, The Panchayat Advancement Index is not just a ranking tool — it is a call to action for deeper, smarter governance rooted in local realities. It embodies a shift from top-down schemes to bottom-up planning, making Panchayati Raj Institutions true agents of change in India's development story.

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