Panchayat Samiti — Structure, Functions and Role in Panchayati Raj

The three-tier Panchayati Raj system is the structure of local self-government in rural India, established by the 73rd Constitutional Amendment Act, 1992. The three tiers are:

1. Village Level — Gram Panchayat (Village Panchayat): • The lowest tier, covering one or more villages. • Headed by a Sarpanch (village head) elected by the villagers. • Handles local issues: sanitation, roads, water supply, streetlights.

2. Block Level — Panchayat Samiti (Middle Tier): • Covers a block or tehsil, comprising several Gram Panchayats. • Headed by a Pradhan or Chairman elected from the Samiti members. • Coordinates development works across the block.

3. District Level — Zila Parishad: • The highest tier, covering an entire district. • Headed by an Adhyaksha (President) or Chairman. • Oversees development at the district level, allocates funds to Panchayat Samitis.

Constitutional Basis: • The 73rd Constitutional Amendment (1992) added Part IX and Schedule 11 to the Constitution, giving constitutional status to Panchayati Raj institutions. • Article 243 to 243-O deal with Panchayati Raj. • The amendment mandated reservations for SC, ST, and women (at least one-third of seats).

Panchayat Samiti is the intermediate tier covering a development block (tehsil), which typically includes 20–60 villages and a population of 20,000–60,000 people (varies by state).

Composition of Panchayat Samiti: • Elected Members (Panches/Samiti Members): Directly elected by voters within the block. One member typically represents one Gram Panchayat or a ward. • Ex-Officio Members: Sarpanches (heads) of all Gram Panchayats in the block are usually ex-officio members. • Co-opted Members: Representatives of SC, ST, and women may be co-opted as per state rules. • Associate Members: MLAs and MPs representing the area are associate members (without voting rights in most states).

Head of Panchayat Samiti: • The Panchayat Samiti is headed by a Pradhan (Chairman), elected from among the elected members. • A Vice-Chairman (Up-Pradhan) is also elected. • The Block Development Officer (BDO) is the chief executive officer — a government official who implements government schemes at the block level.

Names in Different States: • Panchayat Samiti: West Bengal, Bihar, Rajasthan, Madhya Pradesh. • Mandal Parishad: Andhra Pradesh, Telangana. • Taluka Panchayat: Gujarat, Karnataka. • Kshetra Panchayat: Uttar Pradesh. • Anchal Samiti: Jharkhand.

Panchayat Samiti performs a wide range of development functions at the block level. Key functions include:

1. Rural Development: • Planning and implementing rural development schemes within the block. • Construction and maintenance of block-level roads, bridges, and rural infrastructure. • Implementing government schemes like MGNREGS (Mahatma Gandhi National Rural Employment Guarantee Scheme) at the block level.

2. Agriculture and Irrigation: • Promoting better farming practices, use of improved seeds and fertilisers. • Maintaining minor irrigation works — tanks, canals, wells. • Organising agricultural fairs and training for farmers. • Distributing agricultural inputs to farmers.

3. Education: • Establishing and maintaining primary and middle schools within the block. • Supervising school attendance and quality of education. • Organising adult literacy programmes. • Implementing Mid-Day Meal Scheme in government schools.

4. Health and Sanitation: • Running Primary Health Centres (PHCs) and health sub-centres. • Organising vaccination and immunisation drives. • Promoting family planning and maternal and child health services. • Ensuring clean drinking water supply and maintaining sanitation in rural areas.

5. Social Welfare: • Running programmes for women's development, child welfare, and aged persons. • Implementing welfare schemes for SC and ST communities. • Operating Anganwadi centres under ICDS (Integrated Child Development Services).

6. Coordination: • Acting as a link between Gram Panchayats below and Zila Parishad above. • Supervising the work of Gram Panchayats and guiding them in implementation of schemes. • Preparing block-level development plans and submitting budgets to Zila Parishad.

Panchayat Samiti generates and receives funds from multiple sources:

Sources of Income: • Government Grants: Major source — grants from state government and central government for specific schemes. • Assigned Revenues: A share of taxes like land revenue, entertainment tax collected by the state government. • Own Taxes: Fees and levies on fairs, markets, and minor services within the block. • Loans: For capital works from state finance corporations or government.

Key Financial Role: • Allocates funds received from Zila Parishad to Gram Panchayats for specific works. • Prepares block-level budget and sends it to Zila Parishad for approval. • Supervises expenditure by Gram Panchayats to prevent misuse.

State Finance Commissions: • The 73rd Amendment mandated that each state set up a State Finance Commission every five years to determine the distribution of taxes and funds between the state government and local bodies including Panchayat Samitis.

Significance:

1. Decentralisation: Panchayat Samiti is a key institution of democratic decentralisation, bringing government closer to the people.
2. Coordination: It efficiently links village-level bodies (Gram Panchayats) with the district-level body (Zila Parishad).
3. Rural Development: It is the primary implementing agency for most central and state government rural development schemes at the grassroots level.
4. Inclusive Governance: Reservations for SC, ST, and women in Panchayat Samiti ensure marginalised groups participate in governance.
5. Planning: It prepares block-level development plans reflecting local needs.

Limitations:

1. Financial Dependence: Most Panchayat Samitis depend heavily on state government grants; own revenue generation is limited.
2. Political Interference: Bureaucratic and political interference from higher levels can reduce effectiveness.
3. Lack of Trained Staff: Insufficient trained personnel at the block level hampers implementation.
4. Overlapping Functions: Duplication with state government departments can cause confusion.
5. Inconsistency Across States: Different states implement the Panchayati Raj system differently, leading to wide variation in the powers and resources of Panchayat Samitis.