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Panchayat Raj and Rural Development · Chapter 2

Panchayat Raj in Andhra Pradesh

What to remember

  • AP was the second state (after Rajasthan) to start Panchayat Raj, in 1959, and its present law is the Andhra Pradesh Panchayat Raj Act, 1994, made to follow the 73rd Amendment.
  • The structure has three tiers: Gram Panchayat (village), Mandal Parishad (mandal) and Zilla Parishad (district). The Gram Sabha is the base.
  • The State Election Commission runs the elections, and seats are reserved for SC, ST, backward classes and women.

Background before 1959

Before the state was formed in 1956, Andhra districts were governed under the Madras Village Panchayats Act of 1950, and the Telangana districts under the Hyderabad Gram Panchayats law. After the state was formed, the government wanted one common system.

The government accepted the Balwantrai Mehta report. It passed the Andhra Pradesh Panchayat Samithis and Zilla Parishads Act, 1959, which created Panchayat Samitis at block level and Zilla Parishads at district level. In 1959 AP became the second state to start the three-tier system, after Rajasthan. The Andhra Pradesh Gram Panchayats Act, 1964 later gave a complete law for village Panchayats.

Mandal system

In the mid-1980s the state replaced the block-level Samithi with the Mandal Parishad. The mandal became the unit between the village and the district. This was a big change, as mandals are smaller than blocks and closer to the people. The Zilla Parishad was renamed Zilla Praja Parishad in that period, and the Mandal Parishad is also called the Mandal Praja Parishad (MPP).

The Andhra Pradesh Panchayat Raj Act, 1994

After the 73rd Amendment, every state had to change its laws. AP passed the AP Panchayat Raj Act, 1994, which brought the earlier laws together in one Act. It:

  • Gave statutory form to the three tiers.
  • Provided for the Gram Sabha.
  • Introduced direct election of the Sarpanch.
  • Made reservation for SC, ST, backward classes and women.
  • Provided for the State Election Commission and State Finance Commission.

Three-tier structure

LevelBodyHeadExecutive officer
VillageGram PanchayatSarpanch (directly elected)Panchayat Secretary
MandalMandal Parishad (Mandal Praja Parishad)Mandal Parishad President (MPP)Mandal Parishad Development Officer (MPDO)
DistrictZilla Parishad (Zilla Praja Parishad)ChairpersonChief Executive Officer (CEO)

Members of the Gram Panchayat are called Ward Members. Members of the Mandal Parishad are elected from Mandal Parishad Territorial Constituencies (MPTCs). Members of the Zilla Parishad are elected from Zilla Parishad Territorial Constituencies (ZPTCs). The MPP and the Zilla Parishad Chairperson are elected by the elected members of their own body, so the election for these two posts is indirect. The Vice-President or Vice-Chairperson helps the head.

Gram Sabha

The Gram Sabha is the meeting of all adults who are on the voters' list of the village. It is the "Parliament of the village". It:

  • Reviews the annual budget, accounts and audit reports of the Gram Panchayat.
  • Discusses development plans.
  • Picks beneficiaries for housing, pensions and other schemes.
  • Is the right place for social audit.

Meetings are held at fixed times in a year, and the Sarpanch presides. The Gram Sabha has no power to pass taxes, but its views guide the Gram Panchayat.

Sarpanch and Upa-Sarpanch

The Sarpanch is the head of the Gram Panchayat and is elected directly by the voters. The Upa-Sarpanch (Deputy) is elected by the Ward Members from among themselves. The Sarpanch presides over meetings, supervises the work of the Secretary, and signs documents on behalf of the Panchayat. Both can be removed by a no-confidence motion as the law allows.

State Election Commission

The Governor appoints the State Election Commissioner. The Commission handles preparation of voters' lists and conduct of elections to all Panchayats and municipalities (Article 243K and 243ZA). The State Election Commission is different from the Election Commission of India, which runs elections to Parliament and State legislatures.

Reservations

GroupRule
SC and STSeats and offices in proportion to their population
Backward classesReservation as State law provides
WomenAt least one-third under the Constitution; AP law has gone beyond this minimum
OfficesSarpanch, MPP and Zilla Parishad Chairperson posts are reserved in rotation

Reservations are applied by rotation across constituencies. Women reserved for SC or ST are included within seats of these groups. No specific counts of seats are required to be remembered.

Other bodies and officials

  • Commissioner of Panchayat Raj heads the department at the State level; the Panchayat Raj and Rural Development Department is the nodal department.
  • District Collector has important powers of supervision at the district level.
  • District Planning Committee (Article 243ZD) combines plans of rural and urban bodies into one district plan.
  • District Rural Development Agency (DRDA) implements rural poverty and housing programmes.
  • State Finance Commission reviews the finances of Panchayats every five years.
  • Standing committees of Zilla Parishad and Mandal Parishad deal with subjects such as finance, planning, agriculture, education and health.

Sources of income of Panchayats

Own tax and non-tax income (house tax, water rates, lighting tax, fees, rent of property), grants from the State and Centre based on the Finance Commission recommendations, and funds from schemes. Under the Centre's Finance Commission, grants go directly to Gram Panchayats.

Functions of each tier

TierMain functions
Gram PanchayatDrinking water, street lights, roads and drains, sanitation and waste, village markets, burial grounds, registration of births and deaths, running of village schemes, collecting local taxes
Mandal ParishadCoordinating village plans, running schemes at the mandal level, primary schools and health centres, supporting agriculture and rural housing, supervising Gram Panchayats
Zilla ParishadPreparing district-level plans, advising government, supervising Mandal Parishads, allotting funds, running larger works such as roads and institutions

Term, meetings and removal

All three tiers have a term of five years. If a body is dissolved, a new one must be elected within six months. A Panchayat can be suspended or superseded only for reasons given in the law, and the affected body is given a chance to explain. Meetings are called by the head, with notice to members. A minimum number of members (quorum) must be present for valid decisions. Decisions are taken by majority and recorded in the minutes.

How the tiers are linked

The system is not a ladder of command. Each tier has its own work, but the higher tier guides and supports the lower one. The MPP is also a link to the Gram Panchayats of the mandal, because Sarpanchs of the mandal are invited to Mandal Parishad meetings.

Panchayat Raj and the Grama Sachivalayam

In recent years AP has set up village and ward secretariats to bring government services to the doorstep. These work alongside Gram Panchayats. The Panchayat Secretary is a key officer in this setting. This system is discussed in the next chapter.

Remember

The key idea is that power flows from the people. Voters elect Ward Members and the Sarpanch directly. They also elect members of the Mandal Parishad and the Zilla Parishad from the MPTCs and ZPTCs. These members then choose the heads of the two higher tiers. Each tier prepares its own plans, and the district plan is the sum of all these plans. Training of elected members in rules, budgets and records is an important part of making the system work well in practice, because many members are first-time office holders.

Important terms

  • Ward: a small unit of a village that elects one member.
  • MPTC and ZPTC: territorial constituencies for the Mandal and Zilla Parishads.
  • Rotation of reservation: the reserved seat is changed from one constituency to another in each term.
  • Social audit: public check of work and spending in the Gram Sabha.

Exam traps

  • Second state: Andhra Pradesh. First state: Rajasthan.
  • 1959 Act for Samithis and Zilla Parishads; 1964 Act for Gram Panchayats; 1994 Act for the whole three-tier system.
  • Sarpanch is directly elected; MPP and Zilla Parishad Chairperson are indirectly elected.
  • The Upa-Sarpanch is elected by ward members, not by the people.
  • The Panchayat Secretary is the executive officer of the Gram Panchayat, not the Sarpanch.
  • The State Election Commission is not the same as the Election Commission of India.
  • MPDO is the executive officer at the mandal level; the CEO is at the Zilla Parishad.
  • The Gram Sabha is all voters of a village; it is not the elected Ward Members.

One-liners

  • 1. AP started Panchayat Raj in 1959.
  • 2. The 1964 Act dealt with Gram Panchayats.
  • 3. The 1994 Act matches the 73rd Amendment.
  • 4. The mandal replaced the Samithi block.
  • 5. The Sarpanch is directly elected by voters.
  • 6. The Upa-Sarpanch is elected by Ward Members.
  • 7. The Zilla Parishad head is the Chairperson.
  • 8. The Zilla Parishad executive officer is the CEO.
  • 9. The MPDO assists the Mandal Parishad.
  • 10. The Governor appoints the State Election Commissioner.
  • 11. DRDA implements rural development programmes in the district.
  • 12. The Gram Sabha is the base of Panchayat Raj.

Practice questions

  1. Andhra Pradesh was which state to introduce the Panchayat Raj system?

    1. Fourth
    2. First
    3. Third
    4. Second
    Answer

    D. Second

    Rajasthan was first; Andhra Pradesh followed in 1959.

  2. Which AP law of 1959 created Panchayat Samithis and Zilla Parishads?

    1. AP Gram Panchayats Act
    2. AP Panchayat Samithis and Zilla Parishads Act
    3. AP Municipalities Act
    4. AP Panchayat Raj Act, 1994
    Answer

    B. AP Panchayat Samithis and Zilla Parishads Act

    The 1959 Act set up the block and district tiers.

  3. Which AP law of 1964 dealt with village Panchayats?

    1. AP Zilla Parishads Act
    2. AP Panchayat Raj Act
    3. AP Gram Panchayats Act
    4. AP Municipal Corporations Act
    Answer

    C. AP Gram Panchayats Act

    The 1964 Act gave a complete law for Gram Panchayats.

  4. The present comprehensive Panchayat law of Andhra Pradesh was passed in

    1. 1994
    2. 1964
    3. 2005
    4. 1959
    Answer

    A. 1994

    The AP Panchayat Raj Act, 1994 followed the 73rd Amendment.

  5. The 1994 AP Panchayat Raj Act was passed mainly to

    1. Abolish Zilla Parishads
    2. Conform with the 73rd Constitutional Amendment
    3. End the Gram Sabha
    4. Create municipalities
    Answer

    B. Conform with the 73rd Constitutional Amendment

    States had to align their laws with the Constitution after 1993.

  6. The three tiers of Panchayat Raj in AP, from bottom to top, are

    1. Ward, Block, Collectorate
    2. Gram Panchayat, Samithi, Municipality
    3. Gram Sabha, Taluk, Division
    4. Gram Panchayat, Mandal Parishad, Zilla Parishad
    Answer

    D. Gram Panchayat, Mandal Parishad, Zilla Parishad

    The structure is village, mandal and district.

  7. The head of the Gram Panchayat is the

    1. MPDO
    2. Secretary
    3. Sarpanch
    4. Upa-Sarpanch
    Answer

    C. Sarpanch

    The Sarpanch is the elected head of the Gram Panchayat.

  8. The Sarpanch in Andhra Pradesh is elected

    1. By the Zilla Parishad
    2. By the Collector
    3. Directly by the voters of the village
    4. By the Governor
    Answer

    C. Directly by the voters of the village

    The 1994 Act introduced direct election of the Sarpanch.

  9. The Upa-Sarpanch is elected by

    1. Ward Members from among themselves
    2. All voters of the village
    3. The Collector
    4. The Mandal Parishad President
    Answer

    A. Ward Members from among themselves

    The Deputy Sarpanch is chosen by the elected Ward Members.

  10. The executive officer of the Gram Panchayat is the

    1. MPDO
    2. Zilla Parishad CEO
    3. Sarpanch
    4. Panchayat Secretary
    Answer

    D. Panchayat Secretary

    The Secretary carries out the Panchayat's decisions.

  11. The executive officer of the Mandal Parishad is the

    1. District Judge
    2. MPDO
    3. Collector
    4. Panchayat Secretary
    Answer

    B. MPDO

    The Mandal Parishad Development Officer assists the Mandal Parishad.

  12. The executive officer of the Zilla Parishad is the

    1. MPDO
    2. Chief Executive Officer
    3. Commissioner of Police
    4. Panchayat Secretary
    Answer

    B. Chief Executive Officer

    The CEO is the principal executive officer of the Zilla Parishad.

  13. What is the abbreviation MPTC?

    1. Municipal Panchayat Tax Committee
    2. Mandal Planning and Training Centre
    3. Mandal Parishad Territorial Constituency
    4. Member of Parishad Tribal Council
    Answer

    C. Mandal Parishad Territorial Constituency

    Members of the Mandal Parishad are elected from MPTCs.

  14. Members of the Zilla Parishad are elected from

    1. MPTCs
    2. Municipal divisions
    3. Wards
    4. ZPTCs
    Answer

    D. ZPTCs

    Zilla Parishad Territorial Constituencies elect the district-level members.

  15. The head of the Mandal Parishad is called the

    1. Mandal Parishad President
    2. Sarpanch
    3. CEO
    4. District Collector
    Answer

    A. Mandal Parishad President

    The MPP presides over the Mandal Parishad.

  16. The head of the Zilla Parishad is the

    1. Sarpanch
    2. Collector
    3. Chairperson
    4. MPDO
    Answer

    C. Chairperson

    The Zilla Parishad is headed by an elected Chairperson.

  17. Who appoints the State Election Commissioner who conducts Panchayat elections?

    1. The Chief Justice
    2. The Governor
    3. The President
    4. The Chief Minister
    Answer

    B. The Governor

    The State Election Commissioner is appointed by the Governor.

  18. Which body conducts elections to Panchayats in AP?

    1. State Election Commission
    2. Election Commission of India
    3. Finance Commission
    4. Public Service Commission
    Answer

    A. State Election Commission

    Article 243K gives the task to the State Election Commission.

  19. The Gram Sabha consists of

    1. Only women of the village
    2. Only Ward Members
    3. Only the Sarpanch and Secretary
    4. All voters of the village
    Answer

    D. All voters of the village

    It is the body of all adults on the village voters' list.

  20. The Gram Sabha is called the Parliament of the village mainly because

    1. It passes laws for the state
    2. It elects the Collector
    3. It appoints the Governor
    4. All voters can take part and review the Panchayat's work
    Answer

    D. All voters can take part and review the Panchayat's work

    It is the open forum of the village for budget, accounts and schemes.

  21. Which agency implements rural poverty and housing programmes at district level?

    1. Zilla Praja Parishad only
    2. DRDA
    3. State Election Commission
    4. Revenue Court
    Answer

    B. DRDA

    The District Rural Development Agency implements such programmes.

  22. The Chairperson of the Zilla Parishad is chosen

    1. Indirectly, by elected members
    2. By a lottery
    3. Directly by all district voters
    4. By the Governor
    Answer

    A. Indirectly, by elected members

    ZPTC members elect their Chairperson.

  23. The Mandal Parishad President is chosen

    1. By the Sarpanch alone
    2. By the Collector
    3. Indirectly, by elected MPTC members
    4. By direct vote of mandal voters
    Answer

    C. Indirectly, by elected MPTC members

    MPTC members elect the MPP.

  24. Before the state was formed, Andhra-area villages were governed under the

    1. Madras Village Panchayats Act, 1950
    2. AP Panchayat Raj Act
    3. Mysore Village Act
    4. Bombay Panchayat Act
    Answer

    A. Madras Village Panchayats Act, 1950

    The Madras law applied to the Andhra districts.

  25. The mandal system in AP replaced which earlier unit?

    1. Municipality
    2. Panchayat Samithi
    3. Gram Sabha
    4. Zilla Parishad
    Answer

    B. Panchayat Samithi

    The mandal became the middle tier in place of the block-level samithi.

  26. Which authority combines rural and urban plans into a district plan?

    1. Gram Sabha
    2. State Finance Commission
    3. Mandal Parishad
    4. District Planning Committee
    Answer

    D. District Planning Committee

    Article 243ZD requires a District Planning Committee.

  27. Which body reviews the finances of Panchayats and recommends sharing of taxes and grants?

    1. District Planning Committee
    2. State Election Commission
    3. State Finance Commission
    4. Public Accounts Committee
    Answer

    C. State Finance Commission

    Article 243I provides for the State Finance Commission.

  28. A reservation rotated from one constituency to another in each term is best described as

    1. Rotation of reservation
    2. Permanent reservation
    3. Open reservation
    4. Cumulative reservation
    Answer

    A. Rotation of reservation

    Reserved seats move between constituencies so that all areas get a turn.

  29. A Gram Panchayat resolution is carried out by the

    1. Upa-Sarpanch alone
    2. Mandal President
    3. State Finance Commission
    4. Panchayat Secretary
    Answer

    D. Panchayat Secretary

    The Secretary is the executive officer.

  30. Consider the statements about AP Panchayat Raj. 1. The 1994 Act provides for direct election of the Sarpanch. 2. The Sarpanch is elected by Ward Members.

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

    A. 1 only

    The Sarpanch is directly elected; the Upa-Sarpanch is elected by Ward Members.

  31. Consider the statements. 1. The AP Gram Panchayats Act was passed in 1964. 2. AP was the first state to introduce Panchayat Raj.

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

    A. 1 only

    Rajasthan was the first state; the Gram Panchayats Act is of 1964.

  32. Consider the statements about the Gram Sabha in AP. 1. It consists of all voters of the village. 2. It reviews the Gram Panchayat's accounts.

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

    C. Both 1 and 2

    Both statements are correct.

  33. Consider the statements about the State Election Commission. 1. It conducts elections to Parliament. 2. The Governor appoints the State Election Commissioner.

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

    B. 2 only

    It conducts local body elections; Parliament elections are held by the Election Commission of India.

  34. Consider the statements about the Mandal Parishad. 1. It is the middle tier of the system. 2. Its executive officer is the Zilla Parishad CEO.

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

    A. 1 only

    The executive officer is the MPDO.

  35. Consider the statements about the Zilla Parishad. 1. Its Chairperson is directly elected by all voters of the district. 2. It is headed by a Chairperson.

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

    B. 2 only

    The Chairperson is elected by members.

  36. Consider the statements about reservation. 1. SC and ST seats are in proportion to population. 2. The Constitution requires at most one-third seats for women.

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

    A. 1 only

    The Constitution requires at least one-third seats for women.

  37. Consider the statements about the 1959 AP law. 1. It created Gram Sabha as the head of the district. 2. It created Zilla Parishads.

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

    B. 2 only

    The Gram Sabha is a village body; Zilla Parishads are the district tier.

  38. Consider the statements. 1. The Upa-Sarpanch acts in the absence of the Sarpanch. 2. The Panchayat Secretary is elected by voters.

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

    A. 1 only

    The Secretary is a government employee, not elected.

  39. Consider the statements about the District Planning Committee. 1. It is provided for in Article 243K. 2. It consolidates plans of Panchayats and municipalities.

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

    B. 2 only

    The relevant Article is 243ZD; Article 243K concerns the State Election Commission.

  40. Consider the statements about the DRDA. 1. It implements poverty alleviation programmes in the district. 2. It is a political party.

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

    A. 1 only

    The DRDA is an implementing agency.

  41. Consider the statements about the mandal system. 1. The Zilla Parishad is the lowest tier. 2. The mandal replaced the block-level Samithi as the middle tier.

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

    B. 2 only

    The Zilla Parishad is the top tier; the mandal is the middle tier.

  42. Match the AP law with its subject: AP Gram Panchayats Act

    1. Zilla Parishads only
    2. Municipal bodies
    3. Village Panchayats
    4. Cooperative societies
    Answer

    C. Village Panchayats

    The Act of 1964 deals with Gram Panchayats.

  43. Match the office with its mode of election: Upa-Sarpanch

    1. Nominated by Collector
    2. Direct vote of all voters
    3. Appointed by Governor
    4. Chosen by Ward Members
    Answer

    D. Chosen by Ward Members

    The Upa-Sarpanch is chosen by Ward Members.

  44. Match the tier with its head: Mandal Parishad

    1. Sarpanch
    2. CEO
    3. President
    4. Chairperson
    Answer

    C. President

    The Mandal Parishad is headed by a President, the Zilla Parishad by a Chairperson.

  45. Who presides over the meetings of the Gram Panchayat?

    1. Panchayat Secretary
    2. Zilla Parishad CEO
    3. MPDO
    4. Sarpanch
    Answer

    D. Sarpanch

    The Sarpanch, as elected head, presides over Panchayat meetings.

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