UNIT – IV

DISTRICT ADMINISTRATION

DISTRICT ADMINISTRATION SINCE INDEPENDENCE:

The District in India is the cutting edge of administration. The District

administration is headed by the District Collector/Deputy Commissioner,
drawn from IAS and he is responsible among others for the general control and
direc
tion of the police which is headed by the Superintendent of Police.

The District is split up into a number of sub divisions called 'Talukas' for the
purpose of Administrative convenience.
And to have a better supervision of the many Taluks, there has been a grouping of
the taluks, each group of taluks under a Division which is headed by an official
called 'Tehsildar'. These Tehsildars are state level officers and are called
subdivisional or revenue divisional officers.
The District Collector through the ZIila Parishads,Blocks(Panchayat
Samithis)/Taluks and Gram Panchayat administer development programmes and
supervises them.
However, massive non-transparency due to illiteracy among people these officials
are often found involved in wrong doings and erratic behaviour as well as
functioning as agents of the ruling state party or Union/centre's leading to revolts
and outbursts from time to time. This hinders(make it difficult) growth and
development majorly.

CHANGING ROLE OF THE DISTRICT COLLECTOR:

Ever since the creation of this office in 1772, the District Collector's office
continues to be the administrative head of District Administration. Basically,the
DC has three

major functions namely revenue, magisterial and developmental. Apart from

these major functions, a large number of miscellaneous functions are also entrusted
 to him by state and Central governments like conduct of elections ,dealing with
calamities, supervising local govt. institutions, etc..
Collector was mainly entrusted with revenue administration, however, since
Independence with the considerable change in the nature of the state from police
rule to development and welfare his role to has shown a shift in the direction of
development as he implements all the development programmes. The collector
has overall control of the police administration of a state and this he is
assisted by the Superintendent of the Police who is in charge of the whole
district police force. The Collector advises the government on various aspects of
law and order.
Since he is a Generalist, he coordinates the activities of overall departments under
Specialists like Engineers, doctors,etc. by holding meetings among them at
periodic intervals.
He is also to be the Friend, Philosopher and Guide of the Panchayati Raj
Institutions.
Appointment of the Deputy Commissioner
He belongs to the IAS and is appointed by the State government. He is a highly
trained officer in all aspects of administration and management of local affairs. A
number of officers work with with him in which some are exclusively deputed to
rural areas such as Tehsildars, Lekhpal Kanungos(village officers) etc. At the
district level law and order is looked after by the Superintendent of Police.
Powers, Duties and Responsibilities District Magistrate/Collector
The District Magistrate or the Collector is the chief executive and chief
administrative and revenue officer of a district. He makes necessary co-ordination
of the official agencies functioning within the district. The functions and
responsibilities of the District Magistrate Collector may be broadly classified as
follows:

1.Collector
2.District Magistrate
3.Deputy Commissioner
4.Chief Protocol Officer
5.Chief Development Officer
6.Returning Officer
Duties and responsibilities of a collector are as follows:
 Land assessment
 Land acquisition
 Collection of land revenue, maintenance of land records, land reforms,
consolidation of holdings etc
 Collection of income tax dues, excise duties, irrigation dues etc.
 Distribution of agricultural loans
 Disaster management during natural calamities such as floods, famines or
epidemics
 Crisis management during riots or external aggression
 Chairman of the District Bankers Coordination Committee
 Head of the District Industries Centre

 Following are the duties and responsibilities of a District Magistrate:

 Maintenance of law and order
 Supervision of the police and jails
 Supervision of subordinate Executive magistracy
 Hearing cases under the preventive section of the Criminal Procedure Code
 Supervision of jails and certification of execution of capital sentences
 To submit the annual criminal report to the government
The duties and responsibilities of a Deputy Commissioner are as follows:

 Report to divisional commissioner on all matters

 Act as ex-officio chairman of the District Development Authority in absence of
divisional commissioner
Following are the duties and responsibilities of a Chief Protocol Officer:
 Conducts the census work
 Look after the supply and proper distribution of daily necessity goods.
 Hears and takes adequate steps to redress the grievances (complients)of the local
people
 Supervises the activities of the young government officers in the district and
arrange for their training etc.
The duties and responsibilities of a Chief Development Officer are as follows:

 conduct all the development plans and projects of the district

 Put into effect the policy of democratic decentralization
 Act as the chief officer of the state government within the district
Following are the duties and responsibilities of a Returning Officer:

 Conduct all the election works in the district

 Supervise and coordinate election in the district
This is the changing role of the Collector from the ancient times and
British times to the contemporary times since Independence.

Even though the District Collector's office has undergone many changes since
its inception ,he still holds major importance in Centre-State relations and
development at the local levels.

MUNICIPALITIES IN
INDIA

The term ‘Urban Local Government’ in India signifies the governance of an

urban area by the people through their elected representatives. The
jurisdiction of an urban local government is limited to a specific urban area which
is demarcated for this purpose by the state government.
There are eight types of urban local governments in India—
municipal corporation, municipality, notified area committee, town area
committee, cantonment board, township, port trust and special purpose
agency.
The system of urban government was constitutionalised through the 74th
Constitutional Amendment Act of 1992. At the Central level, the subject of
‘urban local government’ is dealt with by the following three ministries:
(i)Ministry Home Affairs in the case of Union Territories
(ii) Ministry of Defence in the case of cantonment boards
(iii) Ministry of Home Affairs in the case of Union Territories
Evolution of Urban Bodies

Historical Perspective

The institutions of urban local government originated and developed in modern

India during the period of British rule. The major events in this context are as
follows:
(i) In 1687-88, the first municipal corporation in India was set up at Madras.
(ii) In 1726, the municipal corporations were set up in Bombay and Calcutta.
(iii) Lord Mayo’s Resolution of 1870 on financial decentralisation visualised the
development of local self-government of Urban Development, created as a separate
ministry in 1985

(iv) Lord Ripon’s Resolution of 1882 has been hailed as the ‘Magna Carta’ of local
self government.He is called as the father of local-self government in India.
(v) The Royal Commission on decentralisation was appointed in 1907 and it
submitted its report in 1909. Its chairman was Hobhouse.
(vi) Under the dyarchical scheme introduced in Provinces by the Government of
India Act of 1919.

74th Amendment Act of 1992

 The system of urban government was constitutionalised through the 74th

Constitutional Amendment Act of 1992.
 This Act has added a new Part IX-A to the Constitution of India. It is
entitled ‘The Municipalities’ and consists of provisions from Articles 243-P
to 243-ZG.
 In addition, the act has also added a new Twelfth Schedule to the
Constitution. This schedule contains eighteen functional items of
municipalities.
 The act gave constitutional status to the municipalities.
 It has brought them under the purview of justiciable part of the Constitution.

Three Types of Municipalities

The act provides for the constitution of the following three types of municipalities
in every state.
A municipal corporation for a larger urban area.
A municipal council for a smaller urban area.
A nagar panchayat for a transitional area, that is, an area in transition from a
rural area to an urban area.

Composition All the members of a municipality shall be elected directly by the

people of the municipal area. For this purpose, each municipal area shall be
divided into territorial constituencies to be known as wards.
Wards Committees
 There shall be constituted a wards committee, consisting of one or more
wards,within the territorial area of a municipality having population of three
lakh or more.
 The state legislature may make provision with respect to the composition
and the territorial area of a wards committee and the manner in which the
seats in a wards committee shall be filled.
Reservation of Seats
 The act provides for the reservation of seats for the scheduled castes and the
scheduled tribes in every municipality in proportion of their population to
the total population in the municipal area
 it provides for the reservation of not less than one-third of the total number
of seats for women.
Duration of Municipalities The act provides for a five-year term of office for
every municipality.
However, it can be dissolved before the completion of its term. Further, the fresh
elections to constitute a municipality shall be completed.
Disqualifications A person shall be disqualified for being chosen as or for being a
member of a municipality if he is so disqualified
(a) under any law for the time being in force for the purposes of elections to the
legislature of the state concerned; or
(b) under any law made by the state legislature.
Twelfth Schedule It contains the following 18 functional items placed within the
purview of municipalities:
1. Urban planning including town planning;
2. Regulation of land use and construction of buildings;
3. Planning for economic and social development;
4. Roads and bridges;
5. Water supply for domestic, industrial and commercial purposes;
6. Public health, sanitation, conservancy and solid waste management;
7. Fire services;
8. Urban forestry, protection of the environment and promotion of ecological
aspects;
9. Safeguarding the interests of weaker sections of society, including the
handicapped and mentally retarded;
10. Slum improvement and upgradation;
11. Urban poverty alleviation;
12. Provision of urban amenities and facilities such as parks, gardens, playgrounds;
13. Promotion of cultural, educational and aesthetic aspects;
14. Burials and burial grounds, cremations and cremation grounds and electric
crematoriums;
15. Cattle ponds, prevention of cruelty to animals;
16. Vital statistics including registration of births and deaths;
17. Public amenities including street lighting, parking lots, bus stops and public
conveniences;
18. Regulation of slaughter houses and tanneries.

Types of Urban Governments

The following eight types of urban local bodies are created in India for the
administration of urban
areas:
● Municipal Corporation
● Municipality
● Notified Area Committee
● Town Area Committee
● Cantonment Board

● Township
● Port Trust
● Special Purpose Agency

Municipal Coporation:
 Municipal corporations are created for the administration of big cities like
Delhi, Mumbai, Kolkata, Hyderabad, Bangalore and others.
 A city is administered by a Municipal Corporation if the population of that
city exceeds one billion.
  They are established in the states by the acts of the concerned state
legislatures, and in the union territories by the acts of the Parliament of
India.
A municipal corporation has three authorities, namely,
1. The council, Mayor
2. The standing committees
3. The commissioner

The Council is the deliberative and legislative wing of the corporation.

 It consists of the Councillors directly elected by the people, as well as a few
nominated persons having knowledge or experience of municipal
administration.
 The composition of the Council including the reservation of seats
for SCs, STs and women is governed by the 74th Constitutional Amendment
Act.
 The Council is headed by a Mayor
 The office of the Mayor combines a functional role of chairing the
Corporation meeting as well as ceremonial role associated with being
the First Citizen of the city.
 As per the amended Municipal Corporation Act of 1888, a Deputy
Mayor is appointed by the Mayor. Mayor is assisted by a Deputy
Mayor.
Role of the mayor.
 1) Governs the local civic body.( The civic body of an area is the
organisation responsible for maintaining citizen facilities like roads,
sanitation, etc)
 2) Fixed tenure varying in different towns.
 3) First citizen of city.
 4) Has two varied roles — Representation and upholding of the dignity of
the city during ceremonial times and a presiding over discussions of the
civic house with elected representatives in functional capacity.
 5) The Mayor’s role is confined to the corporation hall of presiding authority
at various meetings relating to corporation.
 6) The Mayor’s role extends much beyond the local city and country as the
presiding authority at corporation meetings during visits of a foreign
dignitary to the city as he is invited by the state government to receive and
represent the citizens to the guest of honour.
 7) At government, civic and other social functions he is given prominence.
 The standing committees:

 The standing committees are created to facilitate the working of the

council, which is too large in size.
 They deal with public works, education, health, taxation, finance and so on.
They take decisions in their fields.

The municipal commissioner:

 The municipal commissioner is responsible for the implementation of the
decisions taken by the council and its standing committees.
 He is the chief executive authority of the corporation.
 He is appointed by the state government and is generally a member of the
IAS.

Revenue:
 Municipal Corporations are largely dependent on the property tax
collected for their revenue.
 The other sources of revenue include water tax, professional tax,
drainage tax, etc and some fixed aid from the state government.
Mumbai Municipal Corporation or Brihanmumbai Municipal Corporation is
the richest Municipal Corporation in India. Its budget exceeds than that of
some of the smaller states of India.

Election, term and composition of the Municipal Corporation

Election: The members of the Corporation are elected in the same way as
members of the Legislative Assembly. Municipal areas are known
as Wards. Elections are held on the basis of Univeral Adult Franchise through
secretballot.
Term: A fixed tenure of five years has been provided in the Constitution.
Who conducts Municipal Corporation Elections
The elections to the Municipal Corporations are conducted under the
guidance, direction, superintendence and control of the State Election
Commission. The corporations fall under the State government jurisdiction,
therefore there are no uniform provisions for the election of the municipal
bodies. In some States, the elections are organised by the state governments,
while in some states, the Executive Officers arrange the same.
Functions of Municipal Corporations
The Twelfth Schedule to the Constitution lists the subjects that municipal
corporations are responsible for. Corporations may be entrusted to perform
functions and implement schemes including those in relation to the matters
listed in the Twelfth Schedule.

● Urban planning including town planning.

● Regulation of land-use and construction of buildings.
● Planning for economic and social development
● Water supply for domestic, industrial and commercial purposes.
● Public health, sanitation conservancy and solid waste management.
● Fire services.
● Urban forestry, protection of the environment and promotion of
ecological aspects.
● Safeguarding the interests of weaker sections of society, including the
handicapped and mentally retarded.
● Slum improvement and upgradation.
● Urban poverty alleviation.
● Provision of urban amenities and facilities such as parks, gardens,
playgrounds.
● Promotion of cultural, educational and aesthetic aspects.
● Burials and burial grounds; cremations, cremation grounds and electric
crematoriums.
● Cattle pounds; prevention of cruelty to animals.
● Vital statistics including registration of births and deaths.
● Public amenities including street lighting, parking lots, bus stops and
public convenience.
● Regulation of slaughter houses and tanneries

Who is the Chief Executive Officer (CEO) of the Municipal Corporation?

Answer: [A] Municipal Commissioner
 Notes: Municipal Commissioner is the Chief Executive Officer (CEO) of the
Municipal Corporation. Municipal Corporations are found in big cities.

The municipalities:
 The municipalities are established for the administration of towns and
smaller cities.
 They are also set up in the states by the acts of the concerned state
legislatures and in the union territory by the acts of the Parliament of India.
 They are also known by various other names like municipal council,
municipal committee, municipal board, city municipality
+
A municipality a has three authorities, namely,
1. the council
2. standing committees and
3. the chief executive officer.
The council:
 The council is the deliberative and legislative wing of the municipality.
 It consists of the councillors directly elected by the people.
 The council is headed by a president/chairman. He is assisted by a vice-
president/vice-chairman.
 He presides over the meetings of the council.
 Unlike the Mayor of a municipal corporation, he plays a significant role and
is the pivot of the municipal administration.
 Apart from presiding over the meetings of the Council, he enjoys executive
powers.

The standing committees are created to facil-itate the working of the council.
They deal with public works, taxation, health, finance and so on.

The chief executive officer/chief municipal officer is responsible for day-to-day

general administration of the municipality. He is appointed by the state
government.

Functions of Municipalities: Same as municipal corporation.

3. Notified Area Committee

 A notified area committee is created for the administration of two types of
areas—a fast developing town due to industrialisation, and a town which
 does not yet fulfil all the conditions necessary for the constitution of a
municipality.
 Since it is established by a notification in the government gazette, it is called
as notified area committee.
 Though it functions within the framework of the State Municipal Act, only
those provisions of the act apply to it which are notified in the government
gazette by which it is created.
 Its powers are almost equivalent to those of a municipality.
 But unlike the municipality, it is an entirely nominated body, that is, all the
members of a notified area committee including the chairman are nominated
by the state government.
 Thus, it is neither an elected body nor a statutory body.
4. Town Area Committee
 A town area committee is set up for the administration of a small town. It is
a semi-municipal authority and is entrusted with a limited number of civic
functions like drainage, roads, street lighting, and conservancy. It is created
by a separate act of a state legislature.
 Its composition, functions and other matters are governed by the act. It may
be wholly elected or wholly nominated by the state government or partly
elected and partly nominated.
5. Cantonment Board
 A cantonment board is established for municipal administration for civilian
population in the cantonment area. It is set up under the provisions of the
Cantonments Act of 2006—a legislation enacted by the Central government.
 a cantonment board is created as well as administered by the Central
government.
 A cantonment board consists of partly elected and partly nominated
members. The elected members hold office for a term of five years while the
nominated members (i.e., ex-officio members) continue so long as they hold
the office in that station.
 The military officer commanding the station is the exofficio president of the
board and presides over its meetings.
 The vice-president of the board is elected by the elected members from
amongst themselves for a term of five years.
6. Township
 This type of urban government is established by the large public enterprises
to provide civic amenities to its staff and workers who live in the housing
colonies built near the plant. Ex:BHEL
  The enterprise appoints a town administrator to look after the administration
of the township.
 He is assisted by some engineers and other technical and non-technical staff.
Thus, the township form of urban government has no elected members
7. Port Trust
 The port trusts are established in the port areas like Mumbai, Kolkata,
Chennai and so on for two purposes:
o to manage and protect the ports; and
o to provide civic amenities.
 A port trust is created by an Act of Parliament. It consists of both
elected and nominated members.
 Its chairman is an official. Its civic functions are more or less similar
to those of a municipality.
8. Special Purpose Agency
 In addition to these seven area-based urban bodies (or multipurpose
agencies), the states have set up certain agencies to undertake
designated activities or specific functions that ‘legitimately’ belong to
the domain of municipal corporations or municipalities or other local
urban governments.
 In other words, these are function-based and not area-based. They are
known as ‘single purpose’, ‘unipurpose’ or ‘special purpose’ agencies
or ‘functional local bodies’. Some such bodies are:
1. Town improvement trusts.
2. Urban development authorities.
3. Water supply and sewerage boards.
4. Housing boards.
5. Pollution control boards.
6. Electricity supply boards.
7. City transport boards.
These functional local bodies are established as statutory bodies by an act of state
legislature or as departments by an executive resolution.
Municipal Personnel
There are three types of municipal personnel systems in India. The personnel
working in the urban governments may belong to any one or all the three types.
These are
1. Separate Personnel System: Under this system, each local body appoints,
administers, and controls its own personnel. They are not transferable to other local
bodies.
2. Unified Personnel System: In this system, the state government appoints,
administers, and controls the municipal personnel. In other words, state-wide
services (cadres) are created for all the urban bodies in the state. They are
transferable between the local bodies in the state. This system is prevalent in
Andhra Pradesh, Tamil Nadu, Uttar Pradesh, Rajasthan, Madhya Pradesh and so
on.
3. Integrated Personnel System: Under this system, the personnel of the state
government and those of the local bodies form part of the same service.
In other words, the municipal personnel are the members of the state services.
They are transferable not only between the local bodies in the state but also
between local bodies and departments of state government.
Central Council of Local Government
The Central Council of Local Government was set up in 1954. It was constituted
under Article 263 of the Constitution of India by an order of the President of India.
The Council is an advisory body.
It consists of the Minister for Urban Development in the Government of India and
the ministers for local self government in states.
The Union minister acts as the Chairman of the Council.
The Council performs the following functions with regard to local government:
(i) Considering and recommending the policy matters
(ii) Making proposals for legislation
(iii) Examining the possibility of cooperation between the Centre and the states
(iv) Drawing up a common programme of action
(v) Recommending Central financial assistance
(vi) Reviewing the work done by the local bodies with the Central financial
assistance

PANCHAYATI RAJ SYSTEM IN INDIA

The term Panchayati Raj in India signifies the system of rural local self-
government. It has been established in all the states of India by the Acts of the
state legislatures to build democracy at the grass root level.
It is entrusted with rural development. It was constitutiona-lised through the
73rd Constitutional Amendment Act of 1992.
There were a number of committees appointed by the Government of India to
study the implementation of s elf-government at the rural level and also
recommend steps in achieving this goal.
The committees appointed are as follows:
  Balwant Rai Mehta Committee(1957)
 Ashok Mehta Committee(
 G V K Rao Committee
 L M Singhvi Committee

Balwant Rai Mehta Committee & Panchayati Raj

The committee was appointed in 1957, to examine and suggest measures for better
working of the Community Development Programme and the National Extension
Service. The committee suggested the establishment of a democratic decentralised
local government which came to be known as the Panchayati Raj.
Recommendations by the Committee:

 Three-tier Panchayati Raj system: Gram Panchayat, Panchayat Samiti and

Zila Parishad.
 Directly elected representatives to constitute the gram panchayat and
indirectly elected representatives to constitute the Panchayat Samiti and Zila
Parishad.
 Planning and development are the primary objectives of the Panchayati Raj
system.
 Panchayat Samiti should be the executive body and Zila Parishad will act as
the advisory and supervisory body.
 District Collector to be made the chairman of the Zila Parishad.
 It also requested for provisioning resources so as to help them discharge
their duties and responsibilities.
The Balwant Rai Mehta Committee further revitalised the development of
panchayats in the country, the report recommended that the Panchayati Raj
institutions can play a substantial role in community development
programmes throughout the country. The objective of the Panchayats thus
was the democratic decentralisation through the effective participation of
locals with the help of well-planned programmes. Even the then Prime Minister
of India, Pandit Jawaharlal Nehru, defended the panchayat system by saying, “. . .
authority and power must be given to the people in the villages …. Let us give
power to the panchayats.”

Ashok Mehta Committee & Panchayati Raj

The committee was appointed in 1977 to suggest measures to revive and
strengthen the declining Panchayati Raj system in India.
The key recommendations are:

 The three-tier system should be replaced with a two-tier system: Zila

Parishad (district level) and the Mandal Panchayat (a group of villages).
 District level as the first level of supervision after the state level.
 Zila Parishad should be the executive body and responsible for planning at
the district level.
 The institutions (Zila Parishad and the Mandal Panchayat) to have
compulsory taxation powers to mobilise their own financial resources.

73rd Constitutional Amendment Act of 1992

Significance of the Act
 This act has added a new Part-IX to the Constitution of India. It is
entitled as ‘The Panchayats’ and consists of provisions from Articles
243 to 243 O.
 In addition, the act has also added a new Eleventh Schedule to the
Constitution. This schedule contains 29 functional items of the panchayats.
It deals with Article 243-G.
 The act gives a constitutional status to the panchayati raj institutions. It
has brought them under the purview of the justiciable part of the
Constitution.

1. Gram Sabha:

Gram Sabha is the primary body of the Panchayati Raj system. It is a village
assembly consisting of all the registered voters within the area of the
panchayat. It will exercise powers and perform such functions as determined
by the state legislature. Candidates can refer to the functions of gram
panchayat and gram panchayat work, on the government official website
– https://grammanchitra.gov.in/.

2. Three-tier system: The Act provides for the establishment of the three-tier
system of Panchayati Raj in the states (village, intermediate and district
level). States with a population of less than 20 lakhs may not constitute the
intermediate level.
3. Election of members and chairperson: The members to all the levels of the
Panchayati Raj are elected directly and the chairpersons to the intermediate
 and the district level are elected indirectly from the elected members and at
the village level the Chairperson is elected as determined by the state
government.
4. Reservation of seats:

 For SC and ST: Reservation to be provided at all the three tiers in

accordance with their population percentage.
 For women: Not less than one-third of the total number of seats to be
reserved for women, further not less than one-third of the total number
of offices for chairperson at all levels of the panchayat to be reserved
for women.
 The state legislatures are also given the provision to decide on the
reservation of seats in any level of panchayat or office of chairperson
in favour of backward classes.
5. Duration of Panchayat: The Act provides for a five-year term of office to all
the levels of the panchayat. However, the panchayat can be dissolved before
the completion of its term. But fresh elections to constitute the new
panchayat shall be completed –

 before the expiry of its five-year duration.

 in case of dissolution, before the expiry of a period of six months from
the date of its dissolution.
6. Disqualification: A person shall be disqualified for being chosen as or for
being a member of panchayat if he is so disqualified –

 Under any law for the time being in force for the purpose of elections
to the legislature of the state concerned.
 Under any law made by the state legislature. However, no person shall
be disqualified on the ground that he is less than 25 years of age if he
has attained the age of 21 years.
 Further, all questions relating to disqualification shall be referred to an
authority determined by the state legislatures.
7. State election commission:
 The commission is responsible for superintendence, direction and
control of the preparation of electoral rolls and conducting elections
for the panchayat.
 The state legislature may make provisions with respect to all matters
relating to elections to the panchayats.
 8. Powers and Functions: The state legislature may endow the Panchayats with
such powers and authority as may be necessary to enable them to function as
institutions of self-government. Such a scheme may contain provisions
related to Gram Panchayat work with respect to:

 the preparation of plans for economic development and social justice.

 the implementation of schemes for economic development and social
justice as may be entrusted to them, including those in relation to the
29 matters listed in the Eleventh Schedule.
9. Finances: The state legislature may –

 Authorize a panchayat to levy, collect and appropriate taxes, duties,

tolls and fees.
 Assign to a panchayat taxes, duties, tolls and fees levied and collected
by the state government.
 Provide for making grants-in-aid to the panchayats from the
consolidated fund of the state.
 Provide for the constitution of funds for crediting all money of the
panchayats.

10.Finance Commission: The state finance commission reviews the financial

position of the panchayats and provides recommendations for the necessary
steps to be taken to supplement resources to the panchayat.

Eleventh Schedule It contains the following 29 functional items placed within the
purview of panchayats:
1. Agriculture, including agricultural extension
2. Land improvement, implementation of land reforms, land consolidation and soil
conservation
3. Minor irrigation, water management and watershed development
4. Animal husbandry, dairying and poultry
5. Fisheries
6. Social forestry and farm forestry
7. Minor forest produce
8. Small-scale industries, including food processing industries
9. Khadi, village and cottage industries
10. Rural housing
11. Drinking water
12. Fuel and fodder
13. Roads, culverts, bridges, ferries, waterways and other means of communication
14. Rural electrification, including distribution of electricity
15. Non-conventional energy sources
16. Poverty alleviation programme
17. Education, including primary and secondary schools
18. Technical training and vocational education
19. Adult and non-formal education
20. Libraries
21. Cultural activities
22. Markets and fairs
23. Health and sanitation including hospitals, primary health centres and
dispensaries
24. Family welfare
25. Women and child development
26. Social welfare, including welfare of the handicapped and mentally retarded
27. Welfare of the weaker sections, and in particular, of the scheduled castes and
the scheduled tribes.
28. Public distribution system

29. Maintenance of community assets.

Panchayati Raj Institutions

In India, the Panchayati Raj now functions as a system of governance in

which gram panchayats are the basic units of local administration.
The system has three levels: Gram Panchayat (village level),
Mandal Parishad or Block Samiti or Panchayat Samiti (block level),
and Zila Parishad (district level).
It was formalized in 1992 by the 73rd amendment to the Indian Constitution.
Currently, the Panchayati Raj system exists in all states except Nagaland,
Meghalaya, and Mizoram, and in all Union Territories except Delhi.

The Panchayats receive funds from three sources:

● Local body grants, as recommended by the Central Finance Commission

● Funds for implementation of centrally sponsored schemes
● Funds released by the state governments on the recommendations of
the State Finance Commissions
 Village level panchayat
 The Gram Panchayat is divided into wards and each ward is represented
by a Ward Member or Commissioner, also referred to as a Panch or
Panchayat Member, who is directly elected by the villagers.
 The Panchayat is chaired by the president of the village, known as
a Sarpanch.
 The term of the elected representatives is five years.
 The Secretary of the Panchayat is a non-elected representative,
appointed by the state government, to oversee Panchayat activities.
Key functions of Gram Sabha
  To help implementation of the development programmes and schemes of the
Panchayat.
 To identify beneficiaries for different programmes and schemes.
However, if the Gram Sabha fails to identify such beneficiaries within a
reasonable time, the Gram Panchayat shall identify the beneficiaries.
 To solicit support — in cash or kind or both and voluntary labour — from
the public for community welfare programmes.
 To support the programmes of mass education and family welfare.
 To promote unity and harmony among all sections of the society in the
village.
 To seek clarification from the Mukhiya, Up-Mukhiya and other members of
the Gram Panchayat about any particular activity, scheme, income and
expenditure.
 To discuss and recommend appropriate action with regard to reports of the
Vigilance Committee.
 Other related matters brought to the notice of the Gram Sabha.
 To consider levy of taxes, rates, rents & fees & enhancement of rates
thereof.
 To consider all such matters as may be referred by the Gram Panchayat for
its decision.

Role of Sarpanch in Gram Sabha

 Sarpanch is legally bound to organize Gram Sabha meetings.

 It is an obligatory duty of Sarpanch to organize a minimum of two
Gram Sabha meetings every year on the dates prescribed by the
Government.

 Sarpanch should take steps to ensure larger participation of people at

Gram Sabha meetings.
 Sarpanch should take all measures to ensure participation of people from all
sections of society mainly, Scheduled Caste, Scheduled Tribes, Women, and
he should encourage them to express their grievances and give suggestions
in the Gram Sabha, which are discussed in detail in the next meeting.

 Sarpanch should preside over the Gram Sabha meetings, except that of
Social Audit Gram Sabha.
 Sarpanch should sign the register meant for recording the minutes of Gram
Sabha meeting.
  As the chairperson of the Gram Sabha meeting, the Sarpanch can
answer the questions raised at the Gram Sabha by the members.
 The sarpanch has to ensure that the suggestions made in the Gram
Sabha meeting, are discussed on priority basis in Gram Panchayat
meetings.
 Sarpanch should play a pro-active role for initiating proper action on the
Gram Sabha.

Role of Panchayat Secretary in Gram Sabha

The role of Panchayat Secretary is vital at Gram Sabha. The duties of Panchayat
Secretary can broadly be categorized into three stages:

 Pre-Gram Sabha
 During Gram Sabha, and
 Post Gram Sabha

Pre-Gram Sabha duties

The pre Gram Sabha duties of Panchayat Secretary include:

 Finalisation of agenda for Gram Sabha in consultation with the Sarpanch.

 Issuing notice of Gram Sabha meeting.
 Publicising widely the Gram Sabha meeting details, such as the date, time
and venue.
 Preparing the Action Taken Report on the resolutions of the previous Gram
Sabha meeting.
 Preparation of notes on the agenda items to be placed before the current
Gram Sabha meeting.
 Providing proper seating, drinking water facilities and sanitation facilities
for people attending the Gram Sabha meeting.

Duties during Gram Sabha

The duties of Panchayat Secretary during the conduct of Gram Sabha include:

 Recording the details of members attending the meeting of Gram Sabha.

 Presenting the Action Taken Report on resolutions of previous Gram Sabha
meeting.
 Ensuring the smooth conduct of the meeting of Gram Sabha as per its
Agenda.
 Assisting the Sarpanch in recording the minutes of Gram Sabha.
  Recording of votes casted in favour/against of any resolution placed before
Gram Sabha

Post Gram Sabha duties

These include

 To coordinate with the Sarpanch and ward members for considering the
resolutions of Gram Sabha in Gram Panchayat meetings.
 To send report on the Gram Sabha meeting to the higher officials concerned.

Panchayat Samiti (block panchayat)

A Panchayat Samiti (block panchayat) is a local government body at the
tehsil level. This body works for the villages of the tehsil that together are
called a "development block".
The Panchayat Samiti is the link between the Gram Panchayat and the district
administration. Just as the tehsil goes by other names in various parts of India,
notably mandal and taluka, there are a number of variations in nomenclature
for the block panchayat.
For example, it is known as Mandal Praja Parishad in Andhra Pradesh,
Taluka Panchayat in Gujarat and Karnataka, and Panchayat Samiti in
Maharashtra. In general, the block panchayat has the same form as the gram
panchayat but at a higher level.
As the Block Samiti is the second level of the local self-government, it
supervises the working of the Village Panchayats which come under that
particular block.

Composition

Membership in the block panchayat is mostly ex-official; it is composed of:

 all of the Sarpanchas (gram panchayat chairmen) in the Panchayat Samiti
area, the MPs and MLAs of the area,
the sub-district officer (SDO) of the subdivision,
co-opt members (representatives of the SC/ST and women),
associate members (a farmer from the area, a representative of the cooperative
societies and one from marketing services),
and some elected members.

The Panchayat Samiti is elected for a term of five years and is headed by
a chairman and a deputy chairman.
A chairperson and a vice-chairperson are elected by members. The
everyday work of the Block Samiti is looked after by the chairperson
who is also known as Block Pramukh. In case the chairperson is not
available, the vice-chairperson looks after all the work of the
chairperson.

Departments

The common departments in the Samiti are as follows:

● General Administration
● Finance
● Public Works
● Agriculture
● Health
● Education
● Social Welfare
● Information Technology
● Water Supply Department
● Animal Husbandry and others

 There is an officer for every department. A government-appointed Block

Development Officer (BDO) is the executive officer to the Samiti and the
chief of its administration.
  All plans of Block Samiti are implemented with the help of the Block
development Officer (BDO) who is responsible for the whole block.

Functions

● Implementation of schemes for the development of agriculture and

infrastructure
● Establishment of primary health centres and primary schools
● Supply of drinking water, drainage and construction/repair of roads
● Development of a cottage and small-scale industries, and the opening
of cooperative societies
● Establishment of youth organisations

District level panchayat

 The governing of the advance system at the district level in Panchayat Raj is
also popularly known as Zila Parishad.
 IT is the third tier of the Panchayati Raj system and functions at the district
levels in all states. A Zila Parishad is an elected body.
 The members of the State Legislature and the members of the Parliament of
India are members of the Zila Parishad.
 The Zila parishad is the top most tier of the panchayat raj system and acts as
the link between the state government and the village-level Gram Panchayat.
 Zila Parishad are Panchayats at Apex or District Level in Panchayat Raj
Institutions
 The chairmen of all the Panchayat Samitis under the district are the ex
officio members of Zila Parishad. The parishad is headed by a president and
a vice-president.
 The chief of administration is an officer of the IAS cadre.
 The chief executive officer (CEO), who is a civil
servant under IAS or State Administrative Service cadre, heads the
administrative machinery of the Zila Parishad. He is also nominated by the
government. He may also be district magistrate in some states. The CEO
supervises the divisions of the parishad and executes its development
schemes.
 Composition

The membership varies from 40 to 60 and usually comprises:

● Deputy Commissioner of the District

● Presidents of all Panchayat Samitis in the district
● heads of all Government Departments in the district
● members of Parliament and Members of Legislative Assemblies in the
district
● a representative of each cooperative society
● some women and Scheduled Caste members, if not adequately
represented
● co-opted members having extraordinary experience and achievements in
public service.

Functions

1. The Zila Parishad is an official body that coordinates the activities of the
Panchayats in all its developmental activities,such as minor irrigation
works, vocational and industrial schools, village industries, sanitation and
public health among others.
2. It advises the State Government on all matters relating to the Gram
Panchayats and Panchayat Samitis under its supervision and the needs of the
rural population living therein.
3. It also supervises the work of the Panchayats. It also dose the scrutiny of the
budget estimates of Panchayat Samitis in some states like Assam,Bihar and
Punjab.
4. It functions mostly through various Standing Committees, which oversee
and coordinate the common programmes of the villages under its
jurisdiction.

Reservation for women in Panchayati Raj Institutions in India

 On August 27, 2009, the Union Cabinet of the Government of India approved
50% reservation for women in Panchayati Raj Institutions (PRI). The Indian states
Andhra Pradesh, Bihar, Chhattisgarh, Himachal Pradesh, Jharkhand, Kerala,
Karnataka, Madhya Pradesh, Maharashtra, Odisha, Rajasthan, Sikkim, Tamil
Nadu, Tripura, West Bengal and Uttarakhand[7] have implemented 50%
reservation for women in PRIs.[8][9] The majority of candidates in these Panchayats
are women. Currently 100% of elected members in Kodassery Panchayat in
Kerala are women .

GRASSROOT LEVEL DEMOCRACY

The form of grassroots democracy and domination in India and the role of
Panchayati Raj Institutions (PRIs) in the progression of rural areas is great.
India has been a welfare state ever since after Independence and the chief
objective of all governmental endeavours has been the wellbeing of its
populace. Basic principles of government are elimination of poverty,
ignorance, diseases and inequality of opportunities and providing a better and
higher quality of life. India's democratic structure has three levels of
governance which are national, state, and local.
In simple term, Grassroot democracy is a people/community driven
contribution in elections, governance and decision making. Grassroot
democracy can be seen as a propensity towards designing political
processes where as much decision making authority as practical is shifted
to the lowest level of organization. Therefore, a local government is a
government at the grassroots level of administration meant for meeting
peculiar grassroots need of the people (Agagu, 1997). Appadorai (1975)
also opined that the local government system as government is by the
popularly elected bodies charged with administrative and executive duties in
matters concerning the populations of a particular district or place.
Local government was further defined by Lawal (2000) as that tier of
government closest to the people, "which is vested with certain powers to
exercise control over the affairs of people in its domain". Local government is
a system of public administration at a local level, charged with the
responsibility of bringing the people at the grassroots closer to the
government. Grassroots organisations can have numerous structures;
depending on the type of organisation and what the members want. These can
be non-structured and non-hierarchical organisations that are run by all
members, or by whichever member wishes to do something.
The grassroots level is called the Panchayati Raj System. If democracy
means people's participation in running their affairs, then it is nowhere
more direct, clear and significant than at the local level, where the
contact between the people and their representatives, between the rulers
and the ruled is more constant, vigilant and manageable. Lord Bryce
believed: "The best school of democracy and the best guarantee for its success
is the practice of local self - government". Decentralization is a main
mechanism through which democracy becomes truly representative and
respon
sive (Dhaliwal, 2004).
The 73rd amendment to the Indian Constitution (1992) clearly prescribes that the
Panchayats should be institutions of self-government through which powers are
devolved to the people as to the participation in the process of planning for
economic development and social justice, and implementation of schemes and
programmes for these purposes. To strengthen and enhance the efficiency of
local governance, PRIs were structured and designed as three tier system. The
base of this pyramidal structure is the gram sabha (or village assembly),
composed of all citizens eligible to vote, and so the foundation of grassroots
democracy. Whatever the case, the grass roots level institutions are vital
instruments in the process of development to lower levels and these processes are
quicker as and when common people identify themselves as active partners.
There are so many facets to the issue of grassroots governance and development
in India and it is very important because of more than 65 percent of India's
population comes from rural areas and its fortune and future are determined by
thesePRIs.

Questions:

 Write down the difference between Municipal Corporation and Municipal

Council?(2M)
 Describe District administration head role and importance?(2M)
 What are the functions of Mayor?(2m)
 What is the composition of a gram panchayat?(2m)

 explain about the importance of grassroot level democracy?(2m)

 Discuss the role elected and appointed officials at village level?(5m)

ANS)Write about sarpanch, ward members, secretary

 Discuss the importance and functions of District’s Administration head?

Ans)write about District collector.

 Outline the common structural frame work of panchayat Raj Institutions?

(5m)

 Describe the working of the local self –Government in urban areas of India?
(5m)
Ans)write about 74 th Amendment act and write about municipal
corporation, municipality and notified area committee.

 Describe the working of the local self –Government in rural areas of India?
(5m)
Ans)write about 73 th Amendment act and write about Gramma
panchayati ,Panchayat samiti and Zilla Parishad.

 Discuss the powers and functions of Municipal Corporation?(5m)

 Explain the organizational hierarchy of Zilla Panchayats.?(5m)