Zila Parishad

The Zila Parishad is the apex body of the three-tier Panchayati Raj system in India, functioning at the district level. It serves as the principal institution for planning, coordination, and implementation of developmental programmes across rural areas within a district. Positioned above the Panchayat Samiti (block level) and Gram Panchayat (village level), the Zila Parishad ensures the integration of local needs with district and state-level policies, representing the highest form of rural local self-government under the framework of democratic decentralisation.

Historical Background

The evolution of the Zila Parishad as an institution can be traced to India’s post-independence efforts to strengthen local self-governance. The Balwantrai Mehta Committee (1957) recommended the establishment of a three-tier Panchayati Raj structure — comprising:

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

This structure aimed to decentralise power and ensure people’s participation in rural administration. The Zila Parishad was conceived as the apex planning and supervisory body responsible for coordinating the activities of Panchayat Samitis within a district and aligning them with state and national development plans.

Constitutional and Legal Framework

The 73rd Constitutional Amendment Act, 1992, provided constitutional status to Panchayati Raj institutions (PRIs) by adding Part IX (Articles 243–243O) and the Eleventh Schedule to the Constitution.

• Article 243B mandates the establishment of Panchayats at the village, intermediate, and district levels in every state.
• The Zila Parishad corresponds to the district level (as per Article 243B(c)).
• The Eleventh Schedule lists 29 subjects—including agriculture, rural housing, education, health, and public works—that may be devolved to Panchayati Raj institutions by the state governments.

Each state enacts its own Panchayati Raj Act, specifying the composition, powers, and functions of Zila Parishads within the constitutional framework.

Composition of the Zila Parishad

The structure of the Zila Parishad varies across states, but its general composition includes elected, ex officio, and nominated members to ensure balanced representation.
1. Elected Members:

• Members are directly elected by the voters of the district from territorial constituencies (similar to wards).
• The number of constituencies depends on the district’s population and area.

2. Ex Officio Members:

• All Chairpersons of the Panchayat Samitis (block-level bodies) within the district are ex officio members.
• Members of Parliament (MPs) and Members of Legislative Assembly (MLAs) representing areas within the district are also members of the Zila Parishad.

3. Nominated Members:

• Some members with special experience or expertise in public administration, education, or rural development may be nominated by the state government (as per state laws).

4. Chairperson and Vice-Chairperson:

• The Chairperson (Adhyaksha) and Vice-Chairperson (Up-Adhyaksha) are elected by the members of the Zila Parishad from among themselves.
• The Chairperson presides over meetings and supervises administrative and financial activities.

5. Chief Executive Officer (CEO):

• A senior administrative officer, usually from the state’s administrative service, acts as the Chief Executive Officer (CEO) or District Development Officer (DDO).
• The CEO implements the decisions of the Zila Parishad and coordinates between government departments and Panchayati Raj institutions.

Functions of the Zila Parishad

The Zila Parishad performs a wide range of administrative, developmental, and supervisory functions. Its responsibilities can be grouped as follows:
1. Planning and Coordination Functions:

• Preparation of district development plans integrating plans from Panchayat Samitis and Gram Panchayats.
• Coordination and supervision of development programmes and government schemes implemented within the district.
• Harmonisation of the activities of different departments such as agriculture, health, education, and public works.

2. Developmental and Welfare Functions:

• Implementation of rural development projects, including those related to irrigation, minor industries, and poverty alleviation.
• Promotion of agricultural development, animal husbandry, fisheries, and forestry.
• Management of primary health centres, community health programmes, and rural sanitation.
• Overseeing elementary and adult education, women’s welfare, and child development schemes.

3. Supervisory Functions:

• Supervising the functioning of Panchayat Samitis and Gram Panchayats to ensure coordination and adherence to state policies.
• Reviewing implementation progress and ensuring proper utilisation of funds.

4. Regulatory and Administrative Functions:

• Maintenance of district records, statistics, and village directories.
• Implementation of laws related to land use, social justice, and natural resource management.
• Monitoring construction and maintenance of public infrastructure such as roads, bridges, and public buildings.

5. Financial Functions:

• Preparation and approval of annual budgets and development expenditure.
• Levying and collecting certain taxes, fees, and tolls (as authorised by state law).
• Disbursement of grants and financial aid to lower-level Panchayats.

Sources of Finance

The Zila Parishad’s financial resources are derived from multiple sources:

1. Own Revenue:
   • Taxes on markets, fairs, water supply, roads, and buildings.
   • Fees and fines for licences and permits.
2. Government Grants:
   • Grants-in-aid and allocations from the state and central governments, including funds for centrally sponsored schemes (e.g., MGNREGA, PMGSY, NRLM).
3. Shared Revenues:
   • A share of state taxes and royalties on natural resources (like mines and forests) within the district.
4. Loans and Donations:
   • Borrowings or contributions from financial institutions and development agencies for specific projects.

Despite these sources, financial dependence on higher levels of government remains a major challenge, limiting the fiscal autonomy of Zila Parishads.

Committees of the Zila Parishad

To manage its multifaceted functions, the Zila Parishad operates through several standing committees, each responsible for specific sectors:

• Finance, Planning, and Accounts Committee
• Education and Health Committee
• Agriculture and Irrigation Committee
• Social Welfare and Women’s Development Committee
• Public Works Committee

These committees facilitate decentralised decision-making and ensure specialised attention to various developmental activities.

Relationship with Lower Panchayati Raj Institutions

The Zila Parishad acts as the coordinating and supervisory body for all Panchayat Samitis and Gram Panchayats in the district.

• It consolidates the development plans prepared by Panchayat Samitis and integrates them into a district plan.
• It provides technical guidance and financial assistance to lower Panchayati Raj institutions.
• It serves as a link between the state government and the village-level institutions, ensuring alignment between local needs and broader developmental policies.

Role in Democratic Decentralisation

The Zila Parishad symbolises the highest level of grassroots democracy and participatory governance. Its primary democratic functions include:

• Representing the collective voice of rural citizens at the district level.
• Ensuring bottom-up planning through participation from villages and blocks.
• Promoting transparency and accountability in public administration.
• Encouraging inclusivity through representation of Scheduled Castes, Scheduled Tribes, and women (as per constitutional reservation provisions).

Challenges in Functioning

Despite its vital role, the Zila Parishad faces several operational challenges:

• Financial dependence on state governments and limited local revenue generation.
• Bureaucratic dominance, with administrative officers often holding greater power than elected representatives.
• Coordination issues among different departments and levels of Panchayati Raj institutions.
• Irregular meetings and inadequate participation of members.
• Lack of technical capacity for planning, budgeting, and project execution.

Efforts are ongoing to overcome these constraints through greater devolution of powers, capacity-building initiatives, and the use of digital governance tools to enhance efficiency and transparency.

Significance

The Zila Parishad plays a critical role in India’s system of decentralised governance and development. Its significance lies in:

• Acting as the policy-making and supervisory body for the entire district.
• Promoting integrated rural development by aligning local plans with district and state objectives.
• Providing a platform for coordination among multiple Panchayat Samitis.
• Strengthening the democratic fabric by ensuring local participation in governance at the highest rural level.