Why Assam’s gaon burha governance system remains popular

Preface: The social governance systems in Indian villages remained relatively stable for centuries. The khaap, jajmani, bara balutedar and the gaon burha systems are but a few examples of these stable systems in different parts of the country. When viewed through the lens of today’s values, they appear patriarchal, feudal and iniquitous. But they served the purpose of maintaining social stability. This series explores how with changing times and values, the vestiges of these systems continue to survive and function. 

When Rahul Rabha, 25, brought 16-year-old Shobha Rabha into the village and declared his intention to marry her, little did he know that it would be a breach of the law. The village was abuzz discussing how this could be termed as a case of a criminal abduction of a minor.

Sensing trouble, Srikrishna Rabha, the gaon burha of Barjhar village in Satpur gram panchayat of Assam, called his committee to discuss the issue. They invited Shobha’s parents and went with them to Rahul’s house.

The alliance was discussed and they sent the girl back, promising the youth that they would be duly married when she reached the proper age. Everyone was happy with the arrangement as it obviated any police action.

Supriya Rabha, a young college student in Mirza town of Kamrup district of the state married her college senior Ramesh Rabha of her own accord. Two years later she had a tiff with her husband and his parents, and came back to her parents with her baby. 

Noticing that Supriya was living with her parents for several months, Srikrishna, the gaon burha, took suo moto cognisance of the matter after talking to the family. The gaon burha met his committee members and explained the situation. 

They informed Ramesh’s parents and on a fixed day, Srikrishna and other elders of the committee went to his house. After protracted discussions, the issues were resolved and Supriya now lives happily with her husband’s family. 

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What is the gaon burha system?

Gaon burha is a traditional institution found in almost all the states in northeast India. As the words suggest, the term means ‘village elder’. Gaon burha adjudicates on all small and big issues arising within the village and takes the lead on behalf of its residents in dealing with issues between villages.

The term gaon burha is also used for a village person who liaises with the Revenue Department (as also other official bodies) of the state but the two positions are different. Usually, a respected and wise senior man from the village is chosen by the village community to become the gaon burha. 

Among the Rabhas, the position is not hereditary. The gaon burha has a committee of five, who are respected community members. Any matter about the village is discussed and decided by this committee. There usually is no woman member in the committee.

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The village governance mechanism

The gaon burha and his committee are the ‘governance mechanism’ of the village. All matters pertaining to disputes on land, animals, etc. between households, scuffles between men, misbehaviour of any sort and matrimonial issues as well as disputes within the family are brought to the panel and are resolved by them. 

Traditionally, aggrieved parties approach the gaon burha with their grievance. For petty matters, the gaon burha may call the alleged offender and sort out the matter by himself. For more complex matters, they fix the meeting of the whole village. 

Messages about the date, time and venue of the meeting are sent to each and every house in the village. Attendance is mandatory. If the head of the household cannot attend the meeting, he has to give an explanation about it to the burha and send someone from the house to represent the household.  

Women usually do not attend the meeting if they are menstruating, though there is no formal barrier. The meeting happens under a tree, in the namghar (traditional shrine) or other convenient place. 

How are the issues resolved?

The complainant as well as the alleged offender are required to be present in person and the latter can even be brought by villagers using force if need be. The meeting begins formally with the complainant giving tambul (betel leaf and areca nut) to all those present and bowing to them. He is asked to present the case. 

The defendant is given adequate time to put counter arguments. The committee then has to announce its decision, but it may also decide to delegate to a few people the task of discussing the issue with the parties concerned. 

The committee’s decision would normally be towards an amicable settlement, requiring the offender to make amends and pay a fine for damages caused. Once the committee announces the decision, everyone has to abide by it. The villagers ensure that the offender as well as the complainant follow the decision and bury the hatchet. 

The gaon burha system has stood the test of time and kept villages largely self-governed, avoiding external interventions and legal costs. The gaon burha also takes leadership in convening and arranging village level functions and festivals. The gaon burha of any village is an important person who represents the village to the external world and guides and leads residents of his own village.

* Some names have been changed to protect privacy.

The lead image at the top shows a meeting convened by the gaon burha to resolve issues. (Photo courtesy Martin Rabha)  

Sanjiv Phansalkar is the director of VikasAnvesh Foundation, Pune. He was earlier a faculty member at the Institute of Rural Management Anand (IRMA). Phansalkar is a fellow of the Indian Institute of Management (IIM) Ahmedabad.

Martin Rabha is the founder and secretary of Diya Foundation, a not-for-profit organisation working among Assam’s small and marginal households, especially those belonging to the Scheduled Tribes.  

Nimisha Katakee is currently working as a consultant with a forest rights project in Jharkhand. The Assam-based development professional has been working on labour rights and promotion of sustainable livelihoods.