Panchayati raj (council of five officials) is thesystem oflocal self-government ofvillages in ruralIndia[1] as opposed to urban and suburbanmunicipalities.
It consists of the Panchayati Raj Institutions (PRIs) through which the self-government of villages is realized.[2] They are tasked with "economic development, strengthening social justice and implementation of Central and State Government Schemes including those 29 subjects listed in the Eleventh Schedule."[2]
Part IX of the Indian Constitution is the section of the Constitution relating to the Panchayats.[3][4] It stipulates that in states or Union Territories with more than two million inhabitants there are three levels of PRIs:
In states or Union Territories with less than two million inhabitants there are only two levels of PRIs. TheGram Panchayat consists of all registered voters living in the area of a Gram Panchayat and is the organization through which village inhabitants participate directly in local government. Elections for the members of the Panchayats at all levels take place every five years. By federal law, the Panchayats must include members ofScheduled Castes (SCs) and Scheduled Tribes (STs) in the same proportion as in the general population and at least one-third of all seats and chairperson posts must be reserved for women. Some states have increased the required minimum proportion for women to one-half.[2]
Jawaharlal Nehru inaugurated Panchayat atNagaur on 2 October 1959. The day was selected on the occasion ofMahatma Gandhi's birthday. Gandhi wanted Gram Swaraj through Panchayati Raj.[5][6] The system was modified in 1992 with the 73rd constitutional amendment.[7][8][9]
In India, the Panchayati Raj now functions as asystem ofgovernance in which gram panchayats are the basic units oflocal administration. Currently, the Panchayati Raj system exists in all states exceptNagaland,Meghalaya, andMizoram, and in all Union Territories exceptDelhi.[10]
Panchayati raj has its origins in India sinceVedic period (1700 BCE). Since Vedic times, the village (gram) in the country is considered as the basic unit for regional self-administration.[11]
Mahatma Gandhi advocated Panchayati Raj as the foundation of India's political system, as a decentralized form of government in which each village would be responsible for its own affairs.[12][13] The term for such a vision wasGram Swaraj ("village self-governance"). Instead, India developed a highly centralized form of government.[14] However, this has been moderated by the delegation of several administrative functions to the local level, empowering elected gram panchayats. There are significant differences between the traditional Panchayati Raj system, that was envisioned by Gandhi, and the system formalized in India in 1992.[8]
Jawaharlal Nehru inaugurated Panchayati atNagaur on 2 October 1959. The day was selected on the occasion ofMahatma Gandhi's birthday. Gandhi wanted Gram Swaraj through Panchayati Raj.[5] Rajasthan was the first state to implement it. Nehru inaugurated Panchayat Raj inAndhra Pradesh on 11 October 1959 on the occasion ofDussehra. The system was gradually established all over India.[6] The system was modified in 1992 with the 73rd constitutional amendment.[8][9]
TheBalwant Rai Mehta Committee, headed by theMember of ParliamentBalwantrai Mehta, was a committee appointed by the Government of India in January 1957 to examine the work of the Community Development Programme (1952) and the National Extension Service (1953), to suggest measures to improve their work. The committee's recommendation was implemented by NDC in January 1958, and this set the stage for the launching of Panchayati Raj Institutions throughout the country. The committee recommended the establishment of the scheme of ‘democratic decentralization’, which finally came to be known as Panchayati Raj. This led to the establishment of a three-tier Panchayati Raj system: Gram Panchayat at the village level, Panchayat Samiti at the block level, and Zila Parishad at the district level.
On 24 April 1993, the Constitutional (73rd amendment) Act of 1992 came into force in India to provide constitutional status to the Panchayati Raj institutions. This amendment was extended to Panchayats in the tribal areas of eight states, namely:Andhra Pradesh,Gujarat,Himachal Pradesh,Maharashtra,Madhya Pradesh,Odisha, andRajasthan beginning on 24 December 1996. This amendment contains provisions for the devolution of powers and responsibilities to the panchayats, both for the preparation of economic development plans and social justice, as well as for implementation in relation to 29 subjects listed in the eleventh schedule of the constitution, and the ability to levy and collect appropriate taxes, duties, tolls and fees.[15] The Act aims to provide a three-tier system of Panchayati Raj for all states having a population of over two million, to hold Panchayat elections regularly every five years, to provide seats reserved forscheduled castes,scheduled tribes and women, to appoint a State Finance Commission to make recommendations regarding the financial powers of the Panchayats, and to constitute a District Planning Committee.[16]
The4-tier panchayat system [bn] was inaugurated inWest Bengal on Mahatma Gandhi's birthday (2 October) in the year 1964 by the passage of the West Bengal Zilla Parishad Act in 1963. It consisted of
The 3 tier panchayat system was inaugurated in June 1973 by theWest Bengal Panchayat Act passed that year. It consists of
In different parts of India, the levels of panchayati raj institutions might have different names because of the various languages spoken and cultural differences. However, they usually represent the village,block, and district levels and similar in nature.[17]
Zilla Parishad, Zila Parishad, Zilla Panchayat, District Panchayat, etc.
Panchayat Samiti, Panchayat union, Mandal Parishad, Mandal Praja Parishad, Anchalik Panchayat, Janpad Panchayat, Kshetra Panchayat, Taluka Panchayat, etc.
Gram Panchayat, Gaon Panchayat, etc.
The members at all levels of Panchayati Raj are elected directly, and the chairpersons/presidents at theintermediate anddistrict levels are elected indirectly from among the elected members. At the village level, the chairperson/president is elected as determined by the state government. Some states use direct elections, while others use indirect elections (elected from among the members) to choose the chairperson of the gram panchayat.
For the purpose of representation, the village panchayat, block panchayat, and district panchayat are divided into constituencies/wards, each represented by an elected member. These members constitute the panchayat council. In some states, there are ex-officio members at the block or district level who are not elected members, such asMLAs,MPs, etc.[18]
The term of Panchayati Raj Institutions at all levels is 5 years, and elections to these are conducted by the respectiveState Election Commission.
Reservation of seats in Panchayati Raj Institutions is a mechanism to ensure representation of marginalized and underprivileged sections of society. These reservations typically include seats forScheduled Castes (SCs),Scheduled Tribes (STs), and women. The percentage of reserved seats varies from state to state based on demographic factors and social considerations.
Thesarpanch (head of five) is its elected head. The members of the gram panchayat are elected directly by the voting-age village population for a period of five years.[19] The Gram Panchayat President, also known as Sarpanch often presides over the Sabha meetings.
Elected standing committees operate in the panchayat, focusing on specific areas like finance, development, education, health, and welfare. Each committee, headed by a chairperson, comprises three to five members, ensuring representation and expertise in their respective domains.
Just as the tehsil goes by other names in various parts of India, notablymandal andtaluka, there are a number of variations in nomenclature for the block panchayat. For example, it is known asMandal Praja Parishad inAndhra Pradesh,Taluka Panchayat inGujarat,Uratchi Onriyam in Tamil Nadu andKarnataka, andPanchayat Samiti inMaharashtra. In general, the block panchayat has the same form as the gram panchayat but at a higher level.
Membership in the block panchayat is mostlyex-official; it is composed of: all of theSarpanchas (gram panchayat chairmen) in the Panchayat Samiti area, the MPs and MLAs of the area, the Sub-District Officer (SDO) of the sub-division, co-opt members (representatives of the SCs, STs and women), associate members (a farmer from the area, a representative of the cooperative societies and one from marketing services), and some elected members. However, inKerala, block panchayat members are directly elected, just like gram panchayat and district panchayat members.
The Panchayat Samiti is elected for a term of five years and is headed by a chairman and a deputy chairman.[21]
The Panchayats, throughout the years, have relied on federal and state grants to sustain themselves economically. The absence of mandatory elections for the Panchayat council and infrequent meetings of the Sarpanch have decreased the spread of information to villagers, leading to more state regulation.[22] Many Panchayats have been successful in achieving their goals, through cooperation between different bodies and the political mobilization of previously underrepresented groups in India. There is an obstacle of literacy that many Panchayats face for engagement of villagers, with most development schemes being on paper. However, homes linked to the Panchayati Raj System have seen an increase in participation for local matters.[23] The reservation policy for women on the Panchayat councils have also led to a substantial increase in female participation and have shaped the focus of development to include more domestic household issues.[24]
In 1992, the 73rd amendment was passed, transforming the role of women in Panchayati raj.[25] The 73rd amendment established reservation of one-third of seats for women in basic village councils. This reservation had led to a significant increase in women's participation in local governance. Women are now serving as elected representatives in various positions, including as sarpanch (village head) and panchayat members. Women also demonstrated their positive and enlightened thinking in the panchayat to respond to the government's expectations of women. The supportive actions from their families are encouraging women to attend every PRI (Panchayati Raj in India) meeting. Even though the bureaucracy was all male dominated, Gandhi hoped that Panchayati raj could be the framework for a free Indian political order. As a promoter of liberalism, he proposed gram swaraj, or self-contained and autonomous villages, to give women the most rights.[26] The 73rd amendment was also resisted because reservation of seats meant that high caste people had to accept marginal caste women into the political empowerment system. Indirectly, this leads to corruption when the government devotes funds to the grassroots panchayat where resources and funds are exploited by bureaucratic channels.[27]
In Panchayati raj system there is a practice of male relatives assuming the roles of elected women, often referred to as pradhan pati (boss husband) which undermines the intent of reserving seats for women in local governance. Such incidents have been reported in multiple states of India.[28]
In March 2025 a controversy emerged in Paraswara village,Chhattisgarh, when six men took oaths of office on behalf of their wives, who had been elected as panchayat members. This incident, captured on video and widely shared on social media, led to public outrage and the suspension of the village secretary responsible for administering the oaths.[29]
For instance, in Madhya Pradesh, there have been cases where husbands or male family members took oaths in place of elected women representatives, prompting the government to consider measures to prevent such occurrences.[30]
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