Panchayati Raj in Indian Constitution covering Articles 243-243O, 73rd Amendment, Gram Sabha, 3-tier Panchayat system, State Election Commission, Finance Commission, and important committees like Balwantrai Mehta, Ashok Mehta, G.V.K. Rao, and L.M. Singhvi. Essential Polity notes for UPSC and competitive exams.
Evolution of Panchayati Raj in India
Panchayati Raj System in India
The concept of Panchayati Raj represents the framework of rural local self-government in India.
It was introduced by various State Legislatures to strengthen grassroot democracy and promote rural development.
The system gained constitutional status through the 73rd Constitutional Amendment Act, 1992.
Evolution of Panchayati Raj
Balwant Rai Mehta Committee
In January 1957, the Government of India formed a committee under the chairmanship of Balwant Rai G. Mehta to review the Community Development Programme (1952) and the National Extension Service (1953).
The committee submitted its report in November 1957, recommending ‘democratic decentralisation’, which later became known as the Panchayati Raj system.
Key recommendations included:
(i) Creation of a three-tier system – Gram Panchayat at the village level, Panchayat Samiti at the block level, and Zila Parishad at the district level, linked through indirect elections.
(ii) Gram Panchayat to have directly elected representatives, while Panchayat Samiti and Zila Parishad to consist of indirectly elected members.
(iii) All planning and development functions to be entrusted to these bodies.
(iv) The Panchayat Samiti to act as the executive authority, whereas the Zila Parishad to play an advisory, coordinating, and supervisory role.
(v) The District Collector to serve as the chairman of the Zila Parishad.
(vi) Genuine transfer of powers and responsibilities to these democratic institutions.
(vii) Adequate financial resources to be provided for effective functioning.
(viii) Development of a mechanism for further devolution of authority in the future.
The National Development Council accepted these proposals in January 1958, leaving flexibility for states to adopt suitable models while adhering to the broad principles.
Implementation Across States
Rajasthan was the first state to adopt the Panchayati Raj system, inaugurated by the Prime Minister on October 2, 1959, in Nagaur district.
Andhra Pradesh followed in the same year (1959), and gradually, most states implemented the system.
By the mid-1960s, although nearly all states had adopted Panchayati Raj, their structures varied:
(i) Rajasthan adopted a three-tier structure.
(ii) Tamil Nadu implemented a two-tier system.
(iii) West Bengal established a four-tier framework.
Further differences included variations in composition, tenure, functions, finances, and hierarchy of the institutions.
Distinct regional patterns emerged:
(i) In the Rajasthan–Andhra Pradesh model, the Panchayat Samiti was more powerful since the block level was treated as the planning unit.
(ii) In the Maharashtra–Gujarat model, the Zila Parishad held greater authority as the district was considered the key planning unit.
Some states also set up Nyaya Panchayats, which functioned as judicial bodies for handling petty civil and criminal disputes.
Committees on Panchayati Raj System
Ashok Mehta Committee (1977–78)
In December 1977, the Janata Government formed this committee under the chairmanship of Ashok Mehta to review the weakening Panchayati Raj institutions.
It submitted its report in August 1978 and suggested 132 recommendations to rejuvenate the system.
Major Recommendations:
(i) Replace the three-tier structure with a two-tier framework: Zila Parishad at district level and Mandal Panchayat for villages (population 15,000–20,000).
(ii) The district should serve as the first unit of decentralisation below the state level.
(iii) Zila Parishad should be the executive authority for district-level planning.
(iv) Political parties must officially participate in Panchayat elections.
(v) Panchayats should possess compulsory taxation powers to strengthen finances.
(vi) A system of social audit at district level must ensure proper fund usage for weaker sections.
(vii) The state cannot arbitrarily supersede Panchayats; if done, fresh elections must occur within 6 months.
(viii) Nyaya Panchayats should be kept distinct from development bodies and headed by a qualified judge.
(ix) Panchayat elections must be conducted by the State Chief Electoral Officer in consultation with the Election Commission.
(x) All development functions should be transferred to Zila Parishad along with staff control.
(xi) Voluntary agencies should mobilize public support for Panchayati Raj.
(xii) A Minister for Panchayati Raj must be appointed in every state cabinet.
(xiii) Seats for SCs and STs should be reserved based on population.
(xiv) Constitutional recognition should be granted to Panchayati Raj institutions for stability and sanctity.
Though the Janata Government collapsed before implementing them, states like Karnataka, West Bengal, and Andhra Pradesh adopted some measures accordingly.
G.V.K. Rao Committee (1985)
Formed by the Planning Commission in 1985 under G.V.K. Rao to review rural development administration.
Observed that development had become bureaucratised, weakening Panchayati Raj, resulting in “grass without roots.”
Key Recommendations:
(i) Zila Parishad should be the pivotal unit for district-level planning and development.
(ii) Panchayati Raj institutions must actively participate in planning, implementation, and monitoring of development programmes.
(iii) Certain state-level planning functions should be devolved to districts.
(iv) A new post of District Development Commissioner should serve as CEO of Zila Parishad and head of development departments.
(v) Panchayat elections should be conducted regularly across all tiers.
Unlike earlier committees (e.g., Dantwala 1978, Hanumantha Rao 1984), this report reduced the Collector’s dominance and emphasized Panchayati Raj in development administration.
L.M. Singhvi Committee (1986)
Constituted in 1986 under L.M. Singhvi to conceptualize the revitalization of Panchayati Raj.
Recommendations:
(i) Panchayati Raj institutions must get constitutional recognition via a new chapter in the Constitution ensuring regular and fair elections.
(ii) Establish Nyaya Panchayats for village clusters.
(iii) Reorganize villages for viable Gram Panchayats and strengthen the Gram Sabha as direct democracy.
(iv) Provide adequate financial resources to village panchayats.
(v) Create judicial tribunals in states to resolve Panchayat-related disputes.
P.K. Thungon Committee (1988)
Formed in 1988 to review district-level political and administrative structures.
Recommendations:
(i) Grant constitutional recognition to Panchayati Raj.
(ii) Establish a three-tier system (village, block, district).
(iii) Make Zila Parishad the core planning and development authority.
(iv) Fix Panchayat tenure at five years.
(v) Supersession should not exceed six months.
(vi) Create a state-level planning & coordination committee chaired by the Planning Minister.
(vii) Prepare a comprehensive subject list for Panchayats in the Constitution.
(viii) Reserve seats for women, SCs, and STs based on population.
(ix) Form a State Finance Commission for fiscal devolution.
(x) District Collector should serve as CEO of Zila Parishad.
V.N. Gadgil Committee (1988)
Established in 1988 by the Congress Party under V.N. Gadgil to make Panchayati Raj more effective.
Recommendations:
(i) Provide constitutional status to Panchayati Raj institutions.
(ii) Implement a three-tier Panchayati Raj system (village, block, district).
(iii) Fix tenure of five years.
(iv) Ensure direct elections for all Panchayat members.
(v) Reserve seats for SCs, STs, and women.
(vi) Assign Panchayats responsibility for socio-economic planning with a specified constitutional list of subjects.
(vii) Empower them to levy and collect taxes.
(viii) Establish a State Finance Commission for resource allocation.
(ix) Establish a State Election Commission for conducting Panchayat elections.
These recommendations eventually formed the foundation of the 73rd Constitutional Amendment Bill to confer constitutional status to Panchayati Raj institutions.
Constitutionalisation of Panchayati Raj
Rajiv Gandhi Government (1989)
The Rajiv Gandhi Government sought to give constitutional status to Panchayati Raj by introducing the 64th Constitutional Amendment Bill in the Lok Sabha in July 1989.
The bill was passed in August 1989 by the Lok Sabha, but failed in the Rajya Sabha.
Opposition parties strongly opposed it, claiming it promoted centralisation within the federal framework.
V.P. Singh Government (1989–90)
The National Front Government under Prime Minister V.P. Singh pledged to revive Panchayati Raj institutions after assuming office in November 1989.
A two-day Chief Ministers’ Conference chaired by V.P. Singh was held in June 1990 to deliberate on strengthening Panchayati Raj bodies.
The conference approved proposals for a fresh constitutional amendment bill, which was introduced in September 1990 in the Lok Sabha.
However, due to the fall of the government, the bill lapsed without becoming law.
P.V. Narasimha Rao Government (1991–92)
The Congress Government under P.V. Narasimha Rao revived the issue and introduced a new constitutional amendment bill in September 1991.
This version was heavily revised to remove earlier controversial provisions.
