Evolution of Panchayat Raj in India

What to remember

• Balwantrai Mehta (1957) gave the three-tier model; the 73rd Amendment (in force 24 April 1993) gave Panchayats constitutional status under Part IX, Articles 243 to 243-O, and the Eleventh Schedule.
• Ashok Mehta (1977) suggested two tiers, G.V.K. Rao (1985) stressed district-level planning, and L.M. Singhvi (1986) asked for constitutional recognition. Each committee moved the system a step closer to the 1992 Amendment.
• PESA (1996) extends Panchayat provisions to Fifth Schedule (tribal) areas and makes the Gram Sabha very powerful there.

Roots of village self-government

Village councils have existed in India since ancient times. Their work was to settle disputes, manage common land and organise local needs. Under British rule, these bodies became weak. Lord Ripon's Resolution of 1882 is called the "Magna Carta" of local self-government, but it mainly helped towns. The 1919 and 1935 reforms gave provinces more control over local bodies.

Mahatma Gandhi wanted "Gram Swaraj", a village that manages its own affairs. The Constituent Assembly did not make Panchayats a compulsory part of the Constitution. Instead, Article 40 (a Directive Principle) says the State shall take steps to organise village panchayats and give them powers to work as units of self-government.

Community Development and the first committee

The Community Development Programme began on 2 October 1952 and the National Extension Service followed in 1953. These programmes aimed at all-round village development. They did not succeed well because people did not take part and the work was driven by officials.

To study this, the government appointed the Balwantrai Mehta Committee (1957). Its main points:

• Democratic decentralisation, now called Panchayat Raj.
• A three-tier structure: Village Panchayat, Panchayat Samiti (block level) and Zila Parishad (district level).
• The block is the unit of planning and development; the Panchayat Samiti is the strongest body.
• Indirect election for the higher tiers; the Zila Parishad is mainly advisory and coordinating.

Rajasthan was the first state to adopt the system (Nagaur, 2 October 1959). Andhra Pradesh was the second state, also in 1959.

Later committees

The Ashok Mehta Committee was appointed by the Janata Party government. Many of its ideas were used by Karnataka, West Bengal and Andhra Pradesh in their own laws. A Constitution (64th Amendment) Bill was passed by the Lok Sabha in 1989 but was rejected in the Rajya Sabha. A later bill became the 73rd Amendment.

73rd Constitutional Amendment Act, 1992

It came into force on 24 April 1993, now celebrated as National Panchayati Raj Day. It added Part IX (The Panchayats), Articles 243 to 243-O, and the Eleventh Schedule.

The Eleventh Schedule lists 29 subjects, such as agriculture, minor irrigation, animal husbandry, rural housing, drinking water, roads, poverty alleviation, education, health and sanitation, markets and fairs.

Some provisions are compulsory (three tiers, direct election of members, reservation, five-year term, State Election Commission, State Finance Commission). Others are voluntary (for example, giving specific powers, reservation for backward classes).

The minimum age for contesting a Panchayat election is 21 years. Article 243M exempts certain areas, such as Scheduled Areas and tribal areas of some states, from Part IX unless Parliament extends it.

74th Amendment (urban bodies)

It came into force on 1 June 1993 and added Part IX-A (Articles 243P to 243ZG) and the Twelfth Schedule with 18 subjects. It gives constitutional status to municipalities in the same way.

PESA, 1996

The Panchayats (Extension to the Scheduled Areas) Act, 1996 extends Part IX to Fifth Schedule (tribal) areas with changes. It followed the Dilip Singh Bhuria Committee report. Key points:

• The Gram Sabha is strong; it approves plans and programmes, and identifies beneficiaries.
• Gram Sabha must be consulted before acquiring land and resettling displaced persons.
• Powers over minor forest produce, minor water bodies, village markets and control over sale of liquor.
• Protection against land alienation of tribals.
• Seats of the Chairperson of Panchayats in Scheduled Areas are reserved for STs.

Features of the three-tier Panchayat system

• Gram Sabha is the body of all adults on the electoral roll of a village. It meets regularly, reviews accounts and picks beneficiaries of schemes.
• Direct election is used for members at the village level. The Chairperson of the village Panchayat is elected as the State law says, and the chairpersons of higher tiers are generally elected by members.
• Reservation covers SC, ST and women, including the offices of Chairperson in rotation. Reserved women seats include seats for SC and ST women.
• State Election Commission (Article 243K) conducts all Panchayat elections, so that they are free from the government's control.
• State Finance Commission (Article 243I) reviews the money position of Panchayats and recommends how taxes and grants are shared between the State and Panchayats.
• Audit of Panchayat accounts is done as the State law provides (Article 243J).
• Taxes (Article 243H): the State may allow Panchayats to levy and collect taxes, duties and fees, and may assign some taxes to them.
• Disqualification (Article 243F): a person disqualified under State law or under the law for State legislature is barred from being a member.

Why the earlier attempts failed

The 73rd Amendment tried to remove each of these gaps with a five-year term, a State Election Commission, a Finance Commission, reservation and a list of subjects.

Compulsory and voluntary provisions

Exam traps

• Balwantrai Mehta = three-tier; Ashok Mehta = two-tier.
• G.V.K. Rao = "grass without roots" and district planning; Singhvi = constitutional status.
• Article 40 is a Directive Principle; Part IX is the actual constitutional part.
• Eleventh Schedule (29 subjects, Panchayats) vs Twelfth Schedule (18 subjects, municipalities).
• 73rd Amendment = rural bodies (Part IX); 74th = urban bodies (Part IX-A).
• First state to adopt Panchayat Raj was Rajasthan, not Andhra Pradesh (AP was second).
• Gram Sabha is in Article 243A; State Election Commission is in Article 243K; Finance Commission is in Article 243I.
• The Community Development Programme (1952) came before the Balwantrai Mehta Committee (1957).

One-liners

• 1. Community Development Programme started on 2 October 1952.
• 2. The Balwantrai Mehta Committee was appointed in 1957 to study CDP and NES.
• 3. Rajasthan was the first state with Panchayat Raj, followed by Andhra Pradesh.
• 4. Ashok Mehta Committee proposed Mandal Panchayat and Zila Parishad.
• 5. G.V.K. Rao Committee talked about "grass without roots".
• 6. The L.M. Singhvi Committee recommended constitutional status for local bodies.
• 7. The 73rd Amendment came into force on 24 April 1993.
• 8. Part IX contains Articles 243 to 243-O.
• 9. The Eleventh Schedule lists 29 subjects.
• 10. Women get at least one-third reservation in Panchayats.
• 11. Panchayat term is five years; re-election within six months of dissolution.
• 12. PESA was enacted in 1996 for Fifth Schedule areas.

Practice questions

1. Which committee, appointed in 1957, recommended the three-tier Panchayat Raj system?

   1. Ashok Mehta Committee
   2. L.M. Singhvi Committee
   3. Balwantrai Mehta Committee
   4. G.V.K. Rao Committee
   Answer

   C. Balwantrai Mehta Committee

   The Balwantrai Mehta Committee (1957) proposed village panchayat, panchayat samiti and zila parishad.

2. Which committee suggested a two-tier system of Mandal Panchayat and Zila Parishad?

   1. Thungon Committee
   2. Singhvi Committee
   3. Balwantrai Mehta Committee
   4. Ashok Mehta Committee
   Answer

   D. Ashok Mehta Committee

   The Ashok Mehta Committee (1977) proposed two tiers with the district as the unit.

3. The remark 'grass without roots' is linked with the report of which committee?

   1. Ashok Mehta Committee
   2. G.V.K. Rao Committee
   3. Dilip Singh Bhuria Committee
   4. Balwantrai Mehta Committee
   Answer

   B. G.V.K. Rao Committee

   The G.V.K. Rao Committee (1985) said bureaucracy had made Panchayats like grass without roots.

4. Which committee of 1986 recommended constitutional recognition for local self-government bodies?

   1. L.M. Singhvi Committee
   2. Ashok Mehta Committee
   3. Balwantrai Mehta Committee
   4. G.V.K. Rao Committee
   Answer

   A. L.M. Singhvi Committee

   The L.M. Singhvi Committee asked for constitutional status and a stronger Gram Sabha.

5. The 73rd Constitutional Amendment Act came into force on

   1. 1 June 1993
   2. 24 April 1993
   3. 2 October 1992
   4. 26 January 1993
   Answer

   B. 24 April 1993

   It came into force on 24 April 1993, observed as National Panchayati Raj Day.

6. Panchayats are dealt with in which Part of the Constitution?

   1. Part IX
   2. Part VIII
   3. Part IX-A
   4. Part X
   Answer

   A. Part IX

   Part IX (Articles 243 to 243-O) deals with Panchayats; Part IX-A deals with municipalities.

7. How many subjects are listed in the Eleventh Schedule?

   1. 18
   2. 21
   3. 32
   4. 29
   Answer

   D. 29

   The Eleventh Schedule lists 29 subjects for Panchayats; the Twelfth lists 18 for municipalities.

8. Which Article of the Constitution provides for the Gram Sabha?

   1. Article 243K
   2. Article 243B
   3. Article 243A
   4. Article 243I
   Answer

   C. Article 243A

   Article 243A provides for the Gram Sabha as the village body of voters.

9. Which Article provides for the State Election Commission for Panchayat elections?

   1. Article 243E
   2. Article 243I
   3. Article 243K
   4. Article 243D
   Answer

   C. Article 243K

   Article 243K deals with superintendence of Panchayat elections by the State Election Commission.

10. Which Article provides for the State Finance Commission to review the finances of Panchayats?

    1. Article 243H
    2. Article 243I
    3. Article 243G
    4. Article 243K
    Answer

    B. Article 243I

    Article 243I requires the Governor to set up a Finance Commission every five years.

11. Which Directive Principle asks the State to organise village panchayats?

    1. Article 48
    2. Article 41
    3. Article 38
    4. Article 40
    Answer

    D. Article 40

    Article 40 directs the State to organise village panchayats as units of self-government.

12. Which state was the first to introduce the Panchayat Raj system in 1959?

    1. Rajasthan
    2. Andhra Pradesh
    3. Maharashtra
    4. Gujarat
    Answer

    A. Rajasthan

    Rajasthan (Nagaur) started the system on 2 October 1959; Andhra Pradesh followed.

13. The Community Development Programme was launched in

    1. 1964
    2. 1947
    3. 1952
    4. 1957
    Answer

    C. 1952

    The CDP began on 2 October 1952, followed by the National Extension Service in 1953.

14. The Panchayats (Extension to the Scheduled Areas) Act was enacted in

    1. 1996
    2. 2005
    3. 1992
    4. 1993
    Answer

    A. 1996

    PESA was passed in 1996 to extend Part IX to Fifth Schedule areas.

15. The Twelfth Schedule of the Constitution relates to

    1. Co-operative societies
    2. Tribal councils
    3. Panchayats
    4. Municipalities
    Answer

    D. Municipalities

    The Twelfth Schedule, added by the 74th Amendment, lists 18 functions of urban local bodies.

16. The 74th Constitutional Amendment added which Part to the Constitution?

    1. Part XIV
    2. Part IX-A
    3. Part XI
    4. Part IX
    Answer

    B. Part IX-A

    Part IX-A (Articles 243P to 243ZG) concerns municipalities.

17. What is the minimum reservation of seats for women in Panchayats under the Constitution?

    1. One-fourth
    2. One-half
    3. One-fifth
    4. One-third
    Answer

    D. One-third

    Article 243D requires at least one-third of seats for women.

18. If a Panchayat is dissolved, fresh elections must be completed within

    1. Two years
    2. Three months
    3. Six months
    4. One year
    Answer

    C. Six months

    Article 243E requires a new election within six months of dissolution.

19. What is the normal term of a Panchayat?

    1. Five years
    2. Three years
    3. Four years
    4. Six years
    Answer

    A. Five years

    Article 243E fixes a five-year term.

20. The minimum age to contest a Panchayat election is

    1. 18 years
    2. 21 years
    3. 30 years
    4. 25 years
    Answer

    B. 21 years

    Article 243F sets the minimum age at 21 years.

21. Which committee study of 1994 shaped the PESA Act for tribal areas?

    1. Ashok Mehta Committee
    2. Thungon Committee
    3. Rangarajan Committee
    4. Dilip Singh Bhuria Committee
    Answer

    D. Dilip Singh Bhuria Committee

    The Bhuria Committee's report led to PESA, 1996.

22. Under PESA, which body has the strongest powers in Scheduled Areas?

    1. Gram Sabha
    2. Zila Parishad
    3. State Election Commission
    4. Panchayat Samiti
    Answer

    A. Gram Sabha

    PESA makes the Gram Sabha central, for land, forest produce and local resources.

23. Why is the intermediate tier optional in some states?

    1. The Governor has not approved
    2. Its population is below a set limit of 20 lakh
    3. The state has no villages
    4. The state has no districts
    Answer

    B. Its population is below a set limit of 20 lakh

    Article 243B allows states with population below 20 lakh to skip the intermediate tier.

24. A state wants to give Panchayats powers over sanitation, roads and markets. Which Constitutional list guides this?

    1. Seventh Schedule List I
    2. Fifth Schedule
    3. Eleventh Schedule
    4. Tenth Schedule
    Answer

    C. Eleventh Schedule

    Article 243G and the Eleventh Schedule list the subjects that may be given to Panchayats.

25. The Balwantrai Mehta Committee called its plan 'democratic decentralisation'. What did it mainly propose?

    1. Creating one body for the whole state
    2. Handing all powers to the District Collector
    3. Ending elections in villages
    4. Giving real development powers to elected bodies at village, block and district levels
    Answer

    D. Giving real development powers to elected bodies at village, block and district levels

    It stressed elected bodies at three levels with the block as the key unit.

26. Why were elections to Panchayats often delayed before 1993?

    1. No constitutional duty to hold them regularly
    2. Villages had no voters
    3. The Centre banned them
    4. Panchayats had no members
    Answer

    A. No constitutional duty to hold them regularly

    The Amendment fixed a five-year term and a State Election Commission to prevent delays.

27. The Ashok Mehta Committee's choice of the district as the unit mainly reflected the need for

    1. Creating new districts
    2. Planning at a level with enough resources and staff
    3. Closing the village panchayat
    4. Removing the role of states
    Answer

    B. Planning at a level with enough resources and staff

    It saw the district as the basic unit for planning and development.

28. Which feature separates the Ashok Mehta from the Balwantrai Mehta model?

    1. Direct election of the Prime Minister
    2. Abolishing reservations
    3. One tier at block level only
    4. Two tiers instead of three
    Answer

    D. Two tiers instead of three

    Ashok Mehta proposed Mandal Panchayat and Zila Parishad; Balwantrai Mehta proposed three tiers.

29. Which of the following is a compulsory provision of the 73rd Amendment?

    1. Seats for MPs in Zila Parishads
    2. Reservation for backward classes
    3. Five-year term of Panchayats
    4. Power to levy taxes
    Answer

    C. Five-year term of Panchayats

    A five-year term is compulsory; the others are optional for states.

30. Consider the statements about the 73rd Amendment. 1. It added Part IX to the Constitution. 2. It added the Twelfth Schedule.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    A. 1 only

    Part IX was added by the 73rd; the Twelfth Schedule was added by the 74th.

31. Consider the statements about Panchayat Raj in India. 1. The Balwantrai Mehta Committee proposed a two-tier system. 2. Rajasthan was the first state to start it.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    B. 2 only

    Rajasthan started it in 1959; the Mehta Committee proposed three tiers.

32. Consider the statements about the Gram Sabha. 1. It consists of all persons on the electoral roll of the village. 2. It is provided in Article 243A.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    C. Both 1 and 2

    Both are correct under the 73rd Amendment.

33. Consider the statements about the Eleventh Schedule. 1. It lists 18 subjects. 2. It deals with the powers of municipalities.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    D. Neither 1 nor 2

    It lists 29 subjects for Panchayats; municipalities are under the Twelfth Schedule.

34. Consider the statements about the G.V.K. Rao Committee. 1. It stressed district-level planning. 2. It was appointed before the Balwantrai Mehta Committee.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    A. 1 only

    The Rao Committee (1985) came much later than the 1957 committee.

35. Consider the statements about PESA. 1. It weakens the role of the Gram Sabha. 2. It applies to Fifth Schedule areas.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    B. 2 only

    PESA extends Panchayat law to Fifth Schedule areas and strengthens the Gram Sabha.

36. Consider the statements about the State Election Commission. 1. It is provided for in Article 243K. 2. It is the same body as the Election Commission of India.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    A. 1 only

    The State Election Commission is a separate body that conducts local body elections.

37. Consider the statements. 1. The Ashok Mehta Committee was set up by the Janata government. 2. The Singhvi Committee asked for constitutional status for Panchayats.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    C. Both 1 and 2

    Both are correct; the 1977 committee was a Janata government appointment.

38. Consider the statements about reservation in Panchayats. 1. Seats for SC and ST are reserved in proportion to their population. 2. At least one-third of seats are reserved for women.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    C. Both 1 and 2

    Article 243D provides both.

39. Consider the statements about the Finance Commission for Panchayats. 1. It is set up every ten years. 2. The Governor sets it up.

    1. 1 only
    2. 2 only
    3. Both 1 and 2
    4. Neither 1 nor 2
    Answer

    B. 2 only

    It is set up by the Governor every five years.

40. Match the committee with its idea: Balwantrai Mehta

    1. Two-tier system
    2. District planning with a Development Commissioner
    3. Gram Sabha as base of democracy
    4. Three-tier system
    Answer

    D. Three-tier system

    The Mehta Committee is associated with the three-tier model.

41. Match the committee with its idea: G.V.K. Rao

    1. Tribal self-rule
    2. District planning with a Development Commissioner
    3. Three-tier system
    4. Two-tier system
    Answer

    B. District planning with a Development Commissioner

    The Rao Committee emphasised district-level planning and regular elections.

42. Match the Article with its subject: Article 243D

    1. Gram Sabha
    2. Finance Commission
    3. Audit of accounts
    4. Reservation of seats
    Answer

    D. Reservation of seats

    Article 243D provides reservation for SC, ST and women.

43. Match the Article with its subject: Article 243J

    1. Duration of Panchayats
    2. Reservation of seats
    3. Audit of accounts
    4. Taxes
    Answer

    C. Audit of accounts

    Article 243J deals with maintenance and audit of Panchayat accounts.

44. Match the Article with its subject: Article 243H

    1. Powers to impose taxes
    2. District planning
    3. Gram Sabha
    4. Disqualification
    Answer

    A. Powers to impose taxes

    Article 243H lets the state authorise Panchayats to levy and collect taxes.

45. Which Article deals with the duration of Panchayats?

    1. Article 243E
    2. Article 243M
    3. Article 243F
    4. Article 243A
    Answer

    A. Article 243E

    Article 243E fixes the term and the time limit for elections after dissolution.