Panchayati Raj Institutions

Panchayati Raj Institutions (PRI) represent the third tier of governance in India. They aim to decentralize power and ensure local self-governance at the village, intermediate, and district levels.

Constitutional Basis and Evolution

The 73rd Constitutional Amendment Act of 1992 provided a constitutional status to the Panchayati Raj system. It added Part IX and the Eleventh Schedule to the Constitution. The Eleventh Schedule contains 29 functional items that can be devolved to the Panchayats by state legislatures. Before the 1992 amendment, several committees shaped the structure of local governance:

• Balwant Rai Mehta Committee (1957): Recommended the establishment of a three-tier structure of Panchayati Raj.
• Ashok Mehta Committee (1977): Suggested a two-tier system and emphasized the importance of political parties in Panchayat elections.
• G.V.K. Rao Committee (1985): Recommended strengthening the district-level planning process.
• L.M. Singhvi Committee (1986): Proposed constitutional recognition for Panchayati Raj Institutions.

Structural Framework

The 73rd Amendment mandates a three-tier system of Panchayats:

• Gram Panchayat: The lowest level at the village or group of villages.
• Panchayat Samiti: The intermediate level at the block level.
• Zila Parishad: The top level at the district level.

States with a population below 20 lakhs are permitted to opt out of the intermediate tier.

Key Constitutional Provisions

• Article 243B: Mandates the constitution of Panchayats at the village, intermediate, and district levels.
• Article 243C: Deals with the composition of Panchayats. State legislatures determine the manner of election of chairpersons.
• Article 243D: Ensures reservation of seats for Scheduled Castes and Scheduled Tribes in proportion to their population. It also mandates at least one-third of seats for women, including those reserved for SCs and STs.
• Article 243E: Fixes the tenure of Panchayats at five years. If dissolved, elections must be held within six months.
• Article 243F: Specifies grounds for disqualification of members.
• Article 243G: Empowers state legislatures to devolve powers and responsibilities to Panchayats regarding economic development and social justice.
• Article 243H: Authorizes state legislatures to empower Panchayats to levy, collect, and appropriate taxes, duties, tolls, and fees.
• Article 243I: Provides for the constitution of a State Finance Commission every five years to review the financial position of Panchayats.
• Article 243K: Establishes a State Election Commission to conduct free and fair elections to Panchayats.
• Article 243ZA: Extends similar election commission provisions to Municipalities.

Gram Sabha and Its Role

The Gram Sabha serves as the foundation of the Panchayati Raj system. It consists of all registered voters residing in the area of a Gram Panchayat. It acts as the village-level legislative body, performing functions entrusted to it by state legislatures. Its primary duties include:

• Approving the annual budget and development plans.
• Identifying beneficiaries for government schemes.
• Auditing the implementation of programs.
• Promoting social harmony and community development.

Financial and Administrative Oversight

The State Finance Commission recommends the distribution of taxes and grants-in-aid between the state government and the Panchayats. The Comptroller and Auditor General of India provides technical guidance for the audit of Panchayat accounts. States also establish District Planning Committees to consolidate plans prepared by Panchayats and Municipalities, drafting a comprehensive development plan for the district.

Comparison of Committees

Important Facts and Trivia

• Rajasthan was the first state to establish Panchayati Raj, inaugurated by Jawaharlal Nehru on October 2, 1959, in Nagaur district.
• Andhra Pradesh was the second state to implement it. The Constitution specifies that laws passed by state legislatures regarding Panchayats must align with the 73rd Amendment.
• The reservation for women is a minimum threshold, and several states have increased this to 50 percent.

The Gram Nyayalayas Act of 2008 was enacted to provide access to justice at the grassroots level through mobile courts. Every year, April 24 is celebrated as National Panchayati Raj Day to mark the commencement of the 73rd Constitutional Amendment Act.