Panchayat Samiti

The Panchayat Samiti is the intermediate tier of the three-tier Panchayati Raj system in India, functioning at the block (tehsil or taluka) level between the Gram Panchayat (village level) and the Zila Parishad (district level). It plays a crucial role in coordinating and implementing development programmes, ensuring people’s participation in local governance, and bridging the gap between rural communities and district administration. The institution embodies the principle of democratic decentralisation, as envisaged in the 73rd Constitutional Amendment Act (1992), which gave constitutional status to the Panchayati Raj system.

Historical Background

The origin of the Panchayat Samiti can be traced to the recommendations of the Balwantrai Mehta Committee (1957), which proposed a three-tier structure of local self-government for effective rural development. The committee identified the block or samiti as the most suitable unit for planning and coordination of development activities.
Following this, states like Rajasthan (1959) and Andhra Pradesh (1959) became the first to implement the three-tier Panchayati Raj system consisting of:

1. Gram Panchayat at the village level,
2. Panchayat Samiti at the block level, and
3. Zila Parishad at the district level.

This structure was later adopted across India, with variations according to state laws and administrative divisions.

Constitutional and Legal Framework

The 73rd Constitutional Amendment Act, 1992, inserted Part IX in the Indian Constitution and made provisions for establishing Panchayati Raj institutions at three levels:

• Article 243B mandates the constitution of Panchayats at the village, intermediate (block), and district levels.
• The Panchayat Samiti corresponds to the intermediate level, as defined under Article 243B(b).
• The Eleventh Schedule of the Constitution lists 29 subjects related to rural development that may be devolved to Panchayati Raj institutions, including Panchayat Samitis, by the state governments.

Each state government, under its State Panchayati Raj Act, specifies the powers, composition, and functions of its Panchayat Samitis in accordance with constitutional provisions.

Composition of the Panchayat Samiti

The structure of a Panchayat Samiti may vary from state to state, but it typically includes both elected and ex officio members to ensure representation and administrative coordination.
1. Elected Members:

• Members are directly elected by the people of the constituencies within the block.
• The number of members depends on the population and geographical size of the block.

2. Ex Officio Members:

• All Sarpanchs (chairpersons) of the Gram Panchayats in the block are ex officio members.
• Members of the Legislative Assembly (MLAs) and Members of Parliament (MPs) representing the block are also members.

3. Chairperson and Vice-Chairperson:

• The Chairperson (Pradhan or President) and Vice-Chairperson (Up-Pradhan or Vice-President) are elected by the members of the Panchayat Samiti from among themselves.

4. Executive Officer and Staff:

• The Block Development Officer (BDO) serves as the Executive Officer of the Panchayat Samiti.
• The BDO and subordinate staff provide technical and administrative support for implementing development schemes.

Functions of the Panchayat Samiti

The Panchayat Samiti serves as the linking tier between the Gram Panchayats and the Zila Parishad, performing both administrative and developmental functions. Its functions can be broadly categorised as follows:
1. Planning and Development Functions:

• Preparation and implementation of block-level development plans.
• Formulation of annual and five-year plans for rural development.
• Coordination of development schemes implemented by various Gram Panchayats.

2. Agricultural and Economic Development:

• Promotion of agriculture, horticulture, animal husbandry, fisheries, and minor irrigation.
• Implementation of schemes for soil conservation, watershed development, and farm mechanisation.

3. Social and Human Development:

• Overseeing programmes related to education, healthcare, nutrition, and sanitation.
• Promotion of literacy and vocational training through adult education centres and community schools.

4. Poverty Alleviation and Welfare Schemes:

• Implementation of central and state government schemes such as MGNREGA, PMGSY, NRLM, and other rural employment, housing, and welfare programmes.
• Identifying beneficiaries for social security and poverty alleviation initiatives.

5. Infrastructure and Public Works:

• Construction and maintenance of roads, bridges, drainage systems, and public buildings within the block.
• Development of markets, storage facilities, and community centres.

6. Coordination and Supervision:

• Coordinating activities of various departments operating at the block level (agriculture, health, education, public works, etc.).
• Supervising the functioning of Gram Panchayats within the block.

7. Regulatory and Administrative Functions:

• Monitoring the collection of local taxes, fees, and other revenues.
• Supervising the implementation of regulatory laws related to land, forests, and natural resources.

8. Disaster Management and Environmental Protection:

• Assisting in local disaster preparedness and rehabilitation efforts.
• Promoting environmental conservation, afforestation, and renewable energy projects.

Sources of Finance

The Panchayat Samiti derives its financial resources from multiple sources to carry out its functions effectively:

1. Grants and Allocations: Funds received from the state government and central government for implementing development schemes.
2. Own Revenue Sources: Taxes, tolls, and fees on markets, fairs, water usage, and building plans (depending on state legislation).
3. Shared Revenues: A portion of land revenue, excise, or other state-collected taxes assigned to the Samiti.
4. Loans and Donations: Borrowings or contributions from financial institutions and donor agencies for development projects.

However, financial dependence on higher levels of government often limits the autonomy of Panchayat Samitis, making fiscal decentralisation a continuing challenge.

Committees within the Panchayat Samiti

To ensure effective governance and sectoral management, the Panchayat Samiti forms standing committees for specific functions, such as:

• Agriculture and Irrigation Committee
• Health, Education, and Social Welfare Committee
• Finance and Planning Committee
• Works and Infrastructure Committee

These committees facilitate decentralised decision-making and community participation in local governance.

Relationship with Other Panchayati Raj Institutions

The Panchayat Samiti acts as a coordinating and intermediary body in the three-tier Panchayati Raj framework:

• It receives plans and proposals from Gram Panchayats and integrates them into the block plan.
• It forwards these consolidated plans to the Zila Parishad, which prepares the district plan.
• It supervises and guides the functioning of Gram Panchayats while remaining accountable to the Zila Parishad.

This hierarchical integration ensures coherence between local needs and district or state-level development objectives.

Role in Democratic Decentralisation

The Panchayat Samiti embodies the principle of grassroots democracy, providing a platform for local representation and participatory decision-making. It enables citizens to influence governance at the intermediate level, ensures local accountability, and reduces dependence on centralised administration.
Its role aligns with the Gandhian ideal of Gram Swaraj (village self-rule) and the constitutional vision of empowered local institutions under the 73rd Amendment.

Challenges and Limitations

Despite its vital role, the Panchayat Samiti faces several challenges in functioning effectively:

• Financial constraints and overreliance on grants.
• Inadequate staff and administrative capacity.
• Political interference and domination by higher-tier representatives.
• Overlapping jurisdiction with state departments and district agencies.
• Limited awareness and participation of local communities in governance processes.

Efforts are ongoing to address these challenges through capacity building, financial devolution, and strengthening accountability mechanisms.

Significance

The Panchayat Samiti holds great importance in India’s rural governance structure due to its strategic position and multi-sectoral responsibilities. Its significance lies in:

• Integrating local needs with regional planning.
• Ensuring coordination among Gram Panchayats.
• Acting as the engine of rural development programmes.
• Strengthening democracy at the grassroots level through elected representation and public participation.