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Sachivalayam General Studies Add-ons (Part B Common) · Chapter 8

Panchayati Raj and Municipal Governance in Practice

What to remember

  • 73rd Amendment (1992, in force from 24 April 1993) added Part IX (Articles 243 to 243O) and the Eleventh Schedule for Panchayats; 74th Amendment added Part IX-A (Articles 243P to 243ZG) and the Twelfth Schedule for Municipalities.
  • Key rules are common: direct elections, five-year term, at least one-third seats for women, reservation for SCs and STs, a State Election Commission, and a State Finance Commission every five years.
  • In Andhra Pradesh, the Grama and Ward Sachivalayam system (from 2 October 2019) brings services to the doorstep of rural and urban people through staff and volunteers.

Evolution

LandmarkYearMain idea
Balwant Rai Mehta Committee1957Three-tier Panchayati Raj: Gram Panchayat, Panchayat Samiti, Zilla Parishad
Rajasthan (Nagaur)1959First State to start it (2 October 1959); Andhra Pradesh followed in the same year
Ashok Mehta Committee1977Two-tier system: Zilla Parishad and Mandal Panchayat
Constitution 73rd and 74th Amendments1992Constitutional status
AP Panchayat Raj Act1994State law under the 73rd Amendment

Panchayat Raj is a State subject (Entry 5, List II), so each State makes its own Act within the constitutional frame.

Panchayati Raj under the 73rd Amendment

  • Gram Sabha (Article 243A): all adult voters of a village. It reviews the work of the Panchayat, approves plans and beneficiaries, and examines accounts.
  • Three tiers: Gram Panchayat (village), Mandal Parishad (intermediate), Zilla Parishad (district). A State with a population below 20 lakh need not have the intermediate tier.
  • Elections: all members of the Panchayat are directly elected. The chairperson of a village Panchayat (Sarpanch) is directly elected in Andhra Pradesh. The Mandal and Zilla heads are elected by their members.
  • Reservation: seats and chairperson posts for SCs and STs in proportion to population; not less than one-third seats for women (Andhra Pradesh has made it 50% by law).
  • Term: five years. If the body is dissolved, a new election must be held within six months.
  • State Election Commission (Article 243K): conducts elections.
  • State Finance Commission (Article 243I): every five years, reviews the financial position and recommends sharing of money.
  • District Planning Committee (Article 243ZD): joins plans of rural and urban bodies into a district plan.
  • Eleventh Schedule: lists 29 subjects, such as agriculture, minor irrigation, drinking water, roads, rural housing, poverty alleviation, education, health and women and child development.

Municipal governance under the 74th Amendment

TypeArea it serves
Nagar PanchayatArea changing from rural to urban
Municipal CouncilSmaller urban area
Municipal CorporationLarger urban area
  • Twelfth Schedule: lists 18 functions such as urban planning, water supply, public health and sanitation, roads and slum improvement.
  • Ward Committees: compulsory in municipalities with a population of three lakh or more.
  • Metropolitan Planning Committee (Article 243ZE) is for large urban areas.
  • Seats are filled by direct election from wards; there is reservation for women, SCs and STs; term is five years.
  • The head is called the Mayor in a Corporation and the Chairperson in a Council.
  • The Commissioner is the chief executive officer, appointed by the State.

Sachivalayam system in Andhra Pradesh

  • Launched on 2 October 2019 as a village and ward office level system. In December 2025 the AP Cabinet renamed them Swarna Gramam (rural) and Swarna Ward (urban). The aim is to deliver government services and welfare benefits at the doorstep.
  • Grama Sachivalayam (rural) and Ward Sachivalayam (urban): each office has several functionaries from different departments, such as the Panchayat Secretary or Ward Administrative Secretary, the Village Revenue Assistant, the Women Police, the Digital Assistant, the Welfare Assistant, the Agriculture and Horticulture Assistant, the Engineering Assistant and the Health Secretary.
  • Digital Assistant: handles computers, online services, and the data of the office.
  • Grama and Ward Volunteers (2019-2024): each volunteer served a cluster of about 50 households and delivered pensions. The system was effectively ended in 2024; pensions are now delivered by Sachivalayam staff.
  • The offices work with the Gram Panchayat in villages and the Municipality in towns. A Sachivalayam is an administrative support system. It does not replace the elected Panchayat or Municipality.
  • Sachivalayam Services: certificates, applications for welfare schemes, grievance filing, bill payments and information services.

Rural vs urban local bodies

FeaturePanchayati RajMunicipal bodies
Amendment73rd74th
Part of ConstitutionPart IXPart IX-A
ScheduleEleventh (29 subjects)Twelfth (18 functions)
Basic unitsGram Panchayat, Mandal, ZillaNagar Panchayat, Council, Corporation
Planning bodyDistrict Planning Committee (common)Metropolitan Planning Committee for large areas
Election authorityState Election CommissionState Election Commission

Sources of income of a local body

  • Own taxes and fees: house tax, water charges, market fees, trade licence fees.
  • Grants: from the State, in line with the State Finance Commission, and from the Union Finance Commission.
  • Scheme funds: from central and State schemes spent through the body.
  • Loans: only for municipal bodies, within State rules.

Functions and officials in practice

LevelHeadExecutive
Gram PanchayatSarpanch (with Upa-Sarpanch)Panchayat Secretary
Mandal ParishadMandal Parishad President (MPP)Mandal Parishad Development Officer (MPDO)
Zilla ParishadZP ChairpersonChief Executive Officer (CEO)
Municipal CouncilChairpersonMunicipal Commissioner
Municipal CorporationMayorMunicipal Commissioner
  • A Mandal Parishad is made up of elected members from Mandal Parishad Territorial Constituencies (MPTC); a Zilla Parishad has members from Zilla Parishad Territorial Constituencies (ZPTC).
  • The Gram Panchayat prepares the village plan, maintains street lights, drains, drinking water and village roads, and collects local taxes.
  • Standing committees help local bodies in matters such as finance, works and education.
  • The Panchayat Secretary keeps records, collects tax, writes the minutes of the Gram Sabha and carries out its decisions.

Gram Sabha in practice

  • It meets at least on a fixed number of days a year, and special meetings take place on days such as 2 October, 26 January, 15 August and 1 May in many States.
  • Social audit of schemes such as MGNREGS is done in the Gram Sabha.
  • Quorum rules are set by the State law, so a meeting without the quorum is adjourned.
  • The Sarpanch presides. Important matters such as the beneficiary list for housing and pensions are placed before it.

Working together with the Sachivalayam

  • The Sachivalayam staff are state government employees who help the Panchayat or Municipality to deliver services. The elected body keeps its own powers.
  • Sachivalayam staff (earlier, volunteers) take applications, report problems and deliver benefits.
  • Regular meetings of the staff with the elected representatives improve the quality of service delivery.
  • Online dashboards and attendance records bring accountability.

Exam traps

  • 1. 73rd and 74th: do not swap rural and urban; 73rd is Panchayat, 74th is Municipality.
  • 2. Eleventh has 29 subjects; Twelfth has 18.
  • 3. Sarpanch vs Sachivalayam staff: the Sarpanch is elected; the Sachivalayam staff are appointed.
  • 4. Balwant Rai Mehta (1957) suggested three tiers, Ashok Mehta (1977) suggested two tiers.
  • 5. Term is five years; on dissolution, election within six months.
  • 6. State Election Commission conducts the local-body polls, not the Election Commission of India.
  • 7. Gram Sabha is all adult voters, not only the elected ward members.
  • 8. Ward Committees are required for populations of three lakh or more.

One-liners

  • 1. The 73rd Amendment came into force on 24 April 1993.
  • 2. National Panchayati Raj Day is celebrated on 24 April.
  • 3. The Eleventh Schedule lists 29 subjects.
  • 4. The Twelfth Schedule lists 18 functions.
  • 5. Article 243K deals with the State Election Commission.
  • 6. Article 243I deals with the State Finance Commission.
  • 7. Nagaur in Rajasthan was the first Panchayati Raj site.
  • 8. The Balwant Rai Mehta Committee was set up in 1957.
  • 9. The Sachivalayam system began on 2 October 2019.
  • 10. A Municipal Corporation serves a large urban area.
  • 11. Panchayat Raj is a State subject.
  • 12. The Gram Sabha is made up of all adult voters of the village.

Practice questions

  1. The 73rd Constitutional Amendment deals with

    1. Cooperatives
    2. Panchayati Raj
    3. Municipalities
    4. Elections
    Answer

    B. Panchayati Raj

    The 73rd Amendment added Part IX for Panchayats.

  2. The 74th Constitutional Amendment deals with

    1. Services
    2. Panchayats
    3. Finance Commission
    4. Municipalities
    Answer

    D. Municipalities

    The 74th Amendment added Part IX-A.

  3. The 73rd Amendment came into force on

    1. 24 April 1993
    2. 1 June 1993
    3. 26 January 1950
    4. 2 October 1959
    Answer

    A. 24 April 1993

    24 April is celebrated as Panchayati Raj Day.

  4. The Eleventh Schedule lists how many subjects?

    1. 18
    2. 20
    3. 29
    4. 33
    Answer

    C. 29

    The Eleventh Schedule has 29 subjects.

  5. The Twelfth Schedule lists how many functions?

    1. 29
    2. 18
    3. 21
    4. 12
    Answer

    B. 18

    The Twelfth Schedule has 18 functions.

  6. The Balwant Rai Mehta Committee was set up in

    1. 1977
    2. 1948
    3. 1957
    4. 1992
    Answer

    C. 1957

    It suggested a three-tier system.

  7. The Ashok Mehta Committee suggested a

    1. Two-tier system
    2. Single-tier system
    3. Three-tier system
    4. Four-tier system
    Answer

    A. Two-tier system

    Zilla Parishad and Mandal Panchayat.

  8. Panchayati Raj was first introduced at Nagaur in

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

    D. Rajasthan

    Nagaur began it on 2 October 1959.

  9. The Gram Sabha consists of

    1. Only elected ward members
    2. Only the Sarpanch
    3. All adult voters of the village
    4. Only women
    Answer

    C. All adult voters of the village

    Article 243A defines it.

  10. The term of a Panchayat or Municipality is

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

    B. Five years

    The term is five years.

  11. If a Panchayat is dissolved, fresh elections must be held within

    1. Six months
    2. One year
    3. Three months
    4. One month
    Answer

    A. Six months

    The Constitution requires elections within six months.

  12. Elections to local bodies in a State are conducted by the

    1. Governor
    2. Election Commission of India
    3. High Court
    4. State Election Commission
    Answer

    D. State Election Commission

    Article 243K provides for the State Election Commission.

  13. The State Finance Commission is constituted every

    1. Three years
    2. Five years
    3. Two years
    4. Ten years
    Answer

    B. Five years

    Article 243I requires one every five years.

  14. The minimum reservation of seats for women in local bodies under the Constitution is

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

    B. One-third

    At least one-third seats are reserved for women.

  15. Panchayati Raj is a subject in the

    1. Union List
    2. Concurrent List
    3. State List
    4. Residuary List
    Answer

    C. State List

    It is under Entry 5 of the State List.

  16. The District Planning Committee is provided under

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

    A. Article 243ZD

    Article 243ZD covers district planning.

  17. The executive head of a Municipal Corporation is the

    1. Governor
    2. Mayor
    3. Sarpanch
    4. Municipal Commissioner
    Answer

    D. Municipal Commissioner

    The Commissioner is the chief executive; the Mayor is the elected head.

  18. The elected head of a Municipal Corporation is the

    1. Upa-Sarpanch
    2. Mayor
    3. Collector
    4. Commissioner
    Answer

    B. Mayor

    The Mayor heads the Corporation.

  19. Ward Committees are required in municipalities with a population of

    1. Fifty thousand
    2. One lakh
    3. Three lakh or more
    4. Five lakh only
    Answer

    C. Three lakh or more

    The 74th Amendment sets three lakh.

  20. A Nagar Panchayat is formed for an area that is

    1. A tribal hill
    2. A metropolitan city
    3. A port
    4. Changing from rural to urban
    Answer

    D. Changing from rural to urban

    Nagar Panchayats are for transitional areas.

  21. The Grama and Ward Sachivalayam system in Andhra Pradesh started in

    1. 2019
    2. 1994
    3. 2005
    4. 2014
    Answer

    A. 2019

    It began on 2 October 2019.

  22. Grama and Ward Volunteers mainly

    1. Try court cases
    2. Collect income tax
    3. Conduct elections
    4. Deliver services and benefits to households
    Answer

    D. Deliver services and benefits to households

    Each volunteer serves a cluster of households.

  23. The Digital Assistant at the Sachivalayam is responsible mainly for

    1. Land survey
    2. Police patrol
    3. Computer-based services and data of the office
    4. Water supply works
    Answer

    C. Computer-based services and data of the office

    The Digital Assistant handles online work and records.

  24. The Panchayat Secretary in a village mainly

    1. Hears court cases
    2. Keeps records and carries out Gram Panchayat decisions
    3. Elects the Sarpanch
    4. Presides over the Gram Sabha
    Answer

    B. Keeps records and carries out Gram Panchayat decisions

    The Secretary is the executive official of the Panchayat.

  25. The Mandal Parishad is headed by the

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

    A. Mandal Parishad President

    The MPP is the elected head at the mandal level.

  26. The Mandal Parishad Development Officer is the

    1. Chairperson of the Sachivalayam
    2. Executive officer of the Mandal Parishad
    3. Head of the Zilla Parishad
    4. Election officer
    Answer

    B. Executive officer of the Mandal Parishad

    The MPDO is the executive official.

  27. A village discussion on the list of beneficiaries for housing would be held in the

    1. State Assembly
    2. High Court
    3. Gram Sabha
    4. Zilla Parishad
    Answer

    C. Gram Sabha

    The Gram Sabha approves beneficiary lists.

  28. A State has a population of 15 lakh. Under the 73rd Amendment, it

    1. Must have four tiers
    2. Cannot have Panchayats
    3. Must have only Zilla Parishad
    4. Need not have the intermediate tier
    Answer

    D. Need not have the intermediate tier

    States with population below 20 lakh may skip the intermediate tier.

  29. An urban area is growing from rural to urban. Which type of local body is appropriate?

    1. Nagar Panchayat
    2. Municipal Corporation
    3. Zilla Parishad
    4. Gram Sabha
    Answer

    A. Nagar Panchayat

    Nagar Panchayat suits an area in transition.

  30. Consider the statements. 1. The 73rd Amendment added Part IX. 2. The 74th Amendment added Part IX-A. Which is/are correct?

    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.

  31. Consider the statements. 1. The Sarpanch is a government employee. 2. The Panchayat Secretary is an appointed official. Which is/are correct?

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

    B. 2 only

    The Sarpanch is elected.

  32. Consider the statements about the Sachivalayam system. 1. It supports the Gram Panchayat in delivering services. 2. It replaces the Gram Panchayat. Which is/are correct?

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

    A. 1 only

    It is an administrative support and does not replace the elected body.

  33. Consider the statements. 1. The Balwant Rai Mehta Committee suggested a three-tier system. 2. The Ashok Mehta Committee suggested a two-tier system. Which is/are correct?

    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.

  34. Consider the statements. 1. The Election Commission of India conducts Gram Panchayat elections. 2. The State Election Commission conducts them. Which is/are correct?

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

    B. 2 only

    The State Election Commission conducts local-body elections.

  35. Consider the statements about the Eleventh Schedule. 1. It lists 29 subjects. 2. It applies to Municipalities. Which is/are correct?

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

    A. 1 only

    It applies to Panchayats; the Twelfth Schedule applies to Municipalities.

  36. Consider the statements. 1. The State Finance Commission reviews the finances of local bodies. 2. It is appointed every ten years. Which is/are correct?

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

    A. 1 only

    It is appointed every five years.

  37. Consider the statements about the Gram Sabha. 1. It can review the work of the Panchayat. 2. It consists only of elected members. Which is/are correct?

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

    A. 1 only

    All adult voters of the village are members.

  38. Consider the statements. 1. A Municipal Corporation is for a large urban area. 2. Its elected head is called the Mayor. Which is/are correct?

    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.

  39. Consider the statements about reservation in local bodies. 1. Seats are reserved for SCs and STs in proportion to population. 2. Women get at least one-third of seats. Which is/are correct?

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

    C. Both 1 and 2

    Both are constitutional provisions.

  40. Match the Article with the subject. A. 243A B. 243I C. 243K D. 243ZD 1. State Election Commission 2. Gram Sabha 3. District Planning Committee 4. State Finance Commission

    1. A-2, B-1, C-4, D-3
    2. A-4, B-2, C-1, D-3
    3. A-2, B-4, C-3, D-1
    4. A-2, B-4, C-1, D-3
    Answer

    D. A-2, B-4, C-1, D-3

    243A Gram Sabha, 243I Finance Commission, 243K SEC, 243ZD DPC.

  41. Match the level with the head. A. Gram Panchayat B. Mandal Parishad C. Zilla Parishad D. Municipal Corporation 1. Mayor 2. Sarpanch 3. Chairperson 4. President

    1. A-1, B-4, C-3, D-2
    2. A-4, B-2, C-3, D-1
    3. A-2, B-3, C-4, D-1
    4. A-2, B-4, C-3, D-1
    Answer

    D. A-2, B-4, C-3, D-1

    Sarpanch, MPP, ZP Chairperson and Mayor.

  42. Match the body with its Schedule or Part. A. Panchayats B. Municipalities C. 29 subjects D. 18 functions 1. Twelfth Schedule 2. Part IX 3. Eleventh Schedule 4. Part IX-A

    1. A-4, B-2, C-3, D-1
    2. A-2, B-4, C-1, D-3
    3. A-3, B-1, C-2, D-4
    4. A-2, B-4, C-3, D-1
    Answer

    D. A-2, B-4, C-3, D-1

    Part IX/Eleventh for Panchayats; Part IX-A/Twelfth for Municipalities.

  43. Which pair is correct about rural and urban local bodies?

    1. Panchayats - 42nd Amendment; Municipalities - 44th Amendment
    2. Panchayats - 73rd Amendment; Municipalities - 74th Amendment
    3. Panchayats - 74th Amendment; Municipalities - 73rd Amendment
    4. Panchayats - 86th Amendment; Municipalities - 91st Amendment
    Answer

    B. Panchayats - 73rd Amendment; Municipalities - 74th Amendment

    73rd is rural, 74th is urban.

  44. Which is a source of own income for a Gram Panchayat?

    1. Excise on liquor
    2. House tax
    3. Income tax
    4. Customs duty
    Answer

    B. House tax

    House tax is a local tax; the others go to the Union or State.

  45. The Zilla Parishad of a district is headed by the

    1. Mayor
    2. Sarpanch
    3. Mandal Parishad President
    4. Zilla Parishad Chairperson
    Answer

    D. Zilla Parishad Chairperson

    The ZP Chairperson is the elected head at the district level.

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