Panchayati Raj In India

Panchayati Raj Institution, or PRI, is the system of rural local self-government in India.

Local self-government means the management of local affairs by local bodies elected by the people of that area.

Panchayati Raj is considered an indigenous system of India.

In ancient India, local self-governing bodies existed from the Vedic period. Political assemblies of the Rigvedic period were known as Sabha, Samiti, Gana and Vidatha, and women also participated in them.

During British rule, village panchayats lost their autonomy and became weak.

After independence, Panchayati Raj was developed to strengthen democracy at the grassroots level and support rural development.

Constitutional Status Of Panchayati Raj

Panchayati Raj Institutions were given constitutional status through the 73rd Constitutional Amendment Act, 1992.

This amendment came into force on 24 April 1993.

It added:

• Part IX to the Constitution
• Articles 243 to 243O
• 11th Schedule, containing 29 functional items

Panchayati Raj Institutions are considered the practical shape of Article 40, which directs the State to organise village panchayats.

Balwant Rai Mehta Committee

In 1957, the Government of India appointed the Balwant Rai Mehta Committee.

The committee was appointed to examine the working of:

• Community Development Programme, 1952
• National Extension Service, 1953

Its purpose was to suggest measures for better functioning.

Recommendations Of Balwant Rai Mehta Committee

The committee recommended the scheme of democratic decentralisation, which later came to be known as Panchayati Raj.

Specific Recommendations

• There should be a three-tier system
• Gram Panchayat at village level
• Panchayat Samiti at block level
• Zila Parishad at district level
• Gram Panchayat should have directly elected representatives
• Panchayat Samiti should have indirectly elected members
• Zila Parishad should have indirectly elected members, with some directly elected members also recommended
• All planning and development activities should be given to these bodies
• Panchayat Samiti should be the executive body of Panchayati Raj

In 1958, the National Development Council accepted these recommendations.

States were allowed to develop their own Panchayati Raj patterns according to local conditions.

First Implementation Of Panchayati Raj

Rajasthan’s Nagaur district became the first district to implement Panchayati Raj in India.

It was implemented on 2 October 1959.

In Andhra Pradesh, the scheme was introduced on 1 November 1959.

Later, necessary legislation was passed and implemented in states such as:

• Assam
• Gujarat
• Karnataka
• Madhya Pradesh
• Maharashtra
• Orissa, now Odisha
• Punjab

Ashok Mehta Committee, 1977

The Ashok Mehta Committee was set up by the Janata Government in 1977.

It reported the decline and weakness of Panchayati Raj in the country.

Due to the collapse of the Janata Government, no action could be taken at the central level.

However, states such as Karnataka, West Bengal and Andhra Pradesh took steps to revitalise Panchayati Raj.

G.V.K. Rao Committee

The G.V.K. Rao Committee was related to administrative arrangements for rural development and poverty alleviation programmes.

It examined how local institutions could be used more effectively in rural development.

L.M. Singhvi Committee, 1986

The L.M. Singhvi Committee was established in 1986 by the Rajiv Gandhi Government.

It worked on the revitalisation of Panchayati Raj Institutions for democracy and development.

Recommendations Of L.M. Singhvi Committee

• Panchayati Raj Institutions should be constitutionally recognised, protected and preserved
• A new chapter should be added to the Constitution
• Nyaya Panchayats should be established for a cluster of villages
• Villages should be reorganised to make Gram Panchayats more viable
• Gram Sabha should be made the basis of direct democracy
• Village Panchayats should have more financial resources
• Judicial tribunals should be established in each state to decide disputes related to Panchayati Raj elections

V.P. Singh Government

The V.P. Singh Government announced measures to strengthen Panchayati Raj.

In 1990, a two-day conference of Chief Ministers was held under the chairmanship of V.P. Singh.

A Constitutional Amendment Bill was introduced in Lok Sabha.

However, because the government fell, the Bill could not be passed.

Narasimha Rao Government And 73rd Amendment

In 1992, the 73rd Constitutional Amendment Act was passed under the Narasimha Rao Government.

It came into force on 24 April 1993.

This gave constitutional recognition to Panchayati Raj Institutions.

Salient Features Of Panchayati Raj

The 73rd Amendment created a constitutional framework for Panchayati Raj.

Its main features include:

• Gram Sabha
• Three-tier Panchayati Raj system
• Direct elections
• Reservation of seats
• Five-year term
• State Election Commission
• State Finance Commission
• Powers and responsibilities for rural development

Gram Sabha

Gram Sabha is the foundation of the Panchayati Raj system.

It consists of persons registered in the electoral rolls of a village within the area of a Panchayat.

Gram Sabha is important because it represents direct democracy at the village level.

It gives local people the opportunity to participate in decision-making related to village development.

Three-Tier Structure Of Panchayati Raj

Panchayati Raj Institutions have a three-tier structure.

Level	Institution
Village Level	Gram Panchayat
Intermediate / Block Level	Panchayat Samiti
District Level	Zila Parishad

States with a population of less than 20 lakh may not constitute an intermediate level.

Election Of Members And Chairpersons

At all levels, members are elected directly by the people of the Panchayat area.

Chairpersons at the intermediate and district levels are elected from among the elected members.

The method of choosing the chairperson at the village level is determined by state legislation.

Reservation Of Seats

Reservation is an important feature of Panchayati Raj.

• Seats are reserved for Scheduled Castes and Scheduled Tribes at all levels in proportion to their population
• Offices of chairpersons are also reserved for Scheduled Castes and Scheduled Tribes
• Not less than 1/3rd of total seats are reserved for women
• Not less than 1/3rd of chairperson posts are reserved for women
• The State Legislature may provide reservation for backward classes

Duration Of Panchayats

Every Panchayat has a duration of 5 years at each level.

A Panchayat can be dissolved before the completion of 5 years.

In such cases:

• Fresh elections must be conducted
• The newly elected Panchayat serves only the remaining period
• Fresh elections must also be held before the expiry of the normal term

Disqualification Of Members

A person is disqualified from Panchayat membership if:

• He is disqualified under any law relating to State Legislature elections
• He is disqualified under state laws
• He is below 21 years of age

The decision on disqualification lies with the authority specified by the State Legislature.

State Election Commission

The State Election Commission is responsible for the superintendence, direction and control of elections to Panchayats.

State Election Commissioner

• The State Election Commissioner is appointed by the Governor
• Conditions of service are determined by the Governor
• Removal is similar to that of a High Court Judge
• The State Legislature may make provisions regarding Panchayat elections

Powers And Functions Of Panchayats

Panchayats are constitutional bodies of self-government.

Their main powers and functions include:

• Preparation of plans for economic development
• Preparation of plans for social justice
• Implementation of schemes for economic development
• Implementation of schemes for social justice

The actual powers of Panchayats depend on laws made by the State Legislature.

Finances Of Panchayats

The State Legislature may make provisions to strengthen Panchayat finances.

It may:

• Authorise Panchayats to levy, collect and appropriate taxes, duties, tolls and fees
• Assign to Panchayats taxes, duties, tolls and fees levied and collected by the State Government
• Provide grants-in-aid to Panchayats from the Consolidated Fund of the State
• Provide for the constitution of funds for crediting all money of Panchayats

State Finance Commission

The Governor constitutes a State Finance Commission every 5 years.

Its purpose is to review the financial position of Panchayats.

Recommendations Of State Finance Commission

The State Finance Commission may recommend:

• Assignment of taxes, fees, duties and tolls to Panchayats
• Distribution between the State and Panchayats of net proceeds of taxes, duties, tolls and fees levied by the State
• Taxes, duties, tolls and fees that may be assigned to Panchayats
• Grants-in-aid to Panchayats
• Constitution of a separate fund for Panchayats
• Measures needed to improve the financial position of Panchayats
• Any matter referred by the Governor in the interest of sound finance of Panchayats

The Central Finance Commission also suggests measures to augment the Consolidated Fund of a State to supplement Panchayat resources, based on State Finance Commission recommendations.

Audit Of Accounts

The State Legislature may make provisions regarding the audit of Panchayat accounts.

This ensures financial accountability at the local level.

Application To Union Territories

The President may direct that the provisions of Panchayati Raj apply to any Union Territory.

The President may also apply them with exceptions or modifications.

Exempted Areas

Certain areas are exempted from the application of the Panchayati Raj provisions.

These include:

• Jammu and Kashmir
• Nagaland
• Meghalaya
• Mizoram
• Scheduled Areas and Tribal Areas in states
• Hill areas of Manipur where District Councils exist
• Darjeeling district of West Bengal, where the Darjeeling Gorkha Hill Council exists

Bar To Interference By Courts In Electoral Matters

The Act bars interference by courts in Panchayat electoral matters.

This means:

• The validity of any law related to delimitation of constituencies or allotment of seats cannot be questioned in court
• Panchayat elections can be questioned only through an election petition
• Such petition must be presented to the authority and in the manner provided by the State Legislature

11th Schedule

The 11th Schedule was added by the 73rd Constitutional Amendment Act.

It contains 29 functional items related to Panchayats.

These items indicate the areas where Panchayats may be given responsibilities.

Importance Of Panchayati Raj

Panchayati Raj is important because it brings democracy closer to the people.

It helps in:

• Local participation
• Rural development
• Social justice
• Decentralised planning
• Political awareness
• Representation of women, SCs and STs
• Grassroots democracy

Panchayati Raj At A Glance

Topic	Detail
Chapter	Panchayati Raj
Institution	Rural local self-government
Amendment	73rd Constitutional Amendment Act, 1992
Came into force	24 April 1993
Constitutional Part	Part IX
Articles	Articles 243-243O
Schedule	11th Schedule
Functional items	29
DPSP link	Article 40
Foundation	Gram Sabha
Structure	Three-tier system
Village level	Gram Panchayat
Block level	Panchayat Samiti
District level	Zila Parishad
First implementation	Nagaur, Rajasthan
First implementation date	2 October 1959
Panchayat tenure	5 years
Minimum age	21 years
Elections conducted by	State Election Commission
Finance review	State Finance Commission

Important Committees At A Glance

Committee	Year	Main Point
Balwant Rai Mehta Committee	1957	Recommended democratic decentralisation and three-tier Panchayati Raj
Ashok Mehta Committee	1977	Reported decline and weakness of Panchayati Raj
G.V.K. Rao Committee	Noted in chapter	Administrative arrangements for rural development and poverty alleviation
L.M. Singhvi Committee	1986	Recommended constitutional recognition of PRIs and Gram Sabha as basis of direct democracy

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