PANCHAYATI RAJ

The term ‘Panchayati Raj’ in India signifies the system of rural local self-government. It is established in all states through state legislature Acts to promote grassroots democracy and is entrusted with rural development responsibilities. It was constitutionalized through the 73rd Constitutional Amendment Act of 1992. At the Central level, the Ministry of Panchayati Raj oversees matters relating to Panchayati Raj bodies.

Under the Indian federal system, local government falls under the State List (Fifth Entry) of the Seventh Schedule of the Constitution.

Balwantray Mehta Committee

In January 1957, the Government of India appointed a committee to evaluate the Community Development Programme (1952) and National Extension Service (1953). Chaired by Balwantray G. Mehta, the committee submitted its report in November 1957, recommending the establishment of ‘democratic decentralisation’, later known as Panchayati Raj. Key recommendations:

1. Establish a three-tier Panchayati Raj system – Gram Panchayat (village), Panchayat Samiti (block), and Zila Parishad (district), organically linked through indirect elections.

2. Gram Panchayat to have directly elected representatives; Panchayat Samiti and Zila Parishad to have indirectly elected members.

3. Entrust planning and development activities to these bodies.

4. Panchayat Samiti as the executive body; Zila Parishad as advisory, coordinating, and supervisory body.

5. District Collector as Chairman of the Zila Parishad.

6. Ensure genuine transfer of power and responsibility to Panchayati Raj bodies.

7. Provide adequate resources for effective functioning.

8. Develop a system for future devolution of authority.

These recommendations were accepted by the National Development Council (January 1958). States were allowed flexibility to adapt the pattern locally while maintaining fundamental principles.

Implementation History

• Rajasthan was the first state to implement Panchayati Raj on 2nd October 1959 in Nagaur district.

• Andhra Pradesh followed in 1959, with most states adopting the system by the mid-1960s.

• Variations existed in number of tiers, tenure, composition, functions, and finances.

  • Rajasthan: three-tier system

  • Tamil Nadu: two-tier system

  • West Bengal: four-tier system

• Planning and development power differed:

  • Rajasthan-Andhra Pradesh: Panchayat Samiti powerful (block-level planning)

  • Maharashtra-Gujarat: Zila Parishad powerful (district-level planning)

• Some states also created Nyaya Panchayats for petty civil and criminal cases.

Study Teams and Committees

Since 1960, several committees studied Panchayati Raj functioning:

1. 1960 – Committee on Rationalisation of Panchayat Statistics (V.R. Rao)

2. 1961 – Working Group on Panchayats & Cooperatives (S.D. Mishra)

3. 1961 – Study Team on Panchayati Raj Administration (V. Iswaran)

4. 1962 – Study Team on Nyaya Panchayats (G.R. Rajgopal)

5. 1963 – Study Team on Gram Sabha Position (R.R. Diwakar)

6. 1963 – Study Group on Budgeting & Accounting Procedure (M. Rama Krishnayya)

7. 1963 – Study Team on Panchayati Raj Finances (K. Santhanam)

8. 1965 – Committee on Panchayati Raj Elections (K. Santhanam)

9. 1965 – Study Team on Audit & Accounts (R.K. Khanna)

10. 1966 – Committee on Panchayati Raj Training Centres (G. Ramachandran)

11. 1969 – Study Team on Community Development & Panchayati Raj in Land Reforms (V. Ramanathan)

12. 1972 – Working Group for Fifth Five-Year Plan on Community Development & Panchayati Raj (N. Ramakrishnayya)

13. 1976 – Committee on Community Development & Panchayati Raj (Smt. Daya Choubey)

Ashok Mehta Committee

In December 1977, the Janata Government appointed a committee under Ashok Mehta to revive Panchayati Raj. Report submitted in August 1978, with 132 recommendations:

1. Replace three-tier system with two-tier: Zila Parishad (district) and Mandal Panchayat (15,000–20,000 population).

2. District as the first point of decentralization below the state.

3. Zila Parishad to act as executive body, responsible for district-level planning.

4. Political parties to participate officially at all Panchayat election levels.

5. Panchayati Raj bodies to have compulsory taxation powers for financial autonomy.

6. Implement regular social audit by district-level agencies and legislator committees.

7. State government should not supersede Panchayati Raj; if done, elections must be held within six months.

8. Nyaya Panchayats to remain separate from development Panchayats, presided over by qualified judges.

9. Chief Electoral Officer to organize Panchayati Raj elections in consultation with Chief Election Commissioner.

10. Development functions to be transferred to Zila Parishad, with all staff under its supervision.

11. Voluntary agencies to mobilize public support for Panchayati Raj.

12. Appoint a Minister for Panchayati Raj in the state cabinet.

13. Seats for SCs and STs reserved according to population.

Due to the collapse of the Janata Government, most recommendations were not implemented centrally. However, Karnataka, West Bengal, and Andhra Pradesh implemented select measures to revitalize Panchayati Raj.