Imperial Journal of Interdisciplinary Research (IJIR)
Vol-2, Issue-8, 2016
ISSN: 2454-1362, http://www.onlinejournal.in
History and Administrative Structure of
Rajsthan Panchaytiraj
Dr. Sarwan Kumar1 & Pukhraj Yadav2
1
Asst Professor Govt College Ateli
2
Assistant Professor Govt College Ateli
INTRODUCTION
Before proceeding further for with the formation of
Panchayats in the present form a reference to the
"Community Development Programme" and
"National Extension Service" is necessary here
because they have very rich contribution in
Panchayats shaping.The Government of Rajasthan
started Community Development Programme in
1952 as a part of planned development, object of
the Programme was to create an urge among the
rural people for better life and to show. The way of
satisfying this urge predominantly by means of self
help. The object was to be attained by revitalizing
the existing village institutions and creating new
ones wherever necessary. Therefore cooperation of
village Panchayats was sought to fulfill the object.
On the recommendation of Grow More Food
Enquiry Committee, which submitted its reports in
1952, a scheme of National Extension Service was
started in India in 1953. Through this scheme five
year plan sought to initiate a process of
transforming the social and economical life of the
villages. In Rajasthan, like other states, the
National Extension Service worked hand in hand
with the Community Development Programme. In
order to facilitate administration of community
development programme and National Extension
Service, the Government of Rajasthan created
Block Panchayats. The evaluation reports
submitted in connection with community
Development Programme and National Extension
Service from time to time pointed out various
weakness and shortcomings, in this functioning, As
mentioned earlier, the committee on plan projects,
popularly known as Mehta Committee, examined
the working of Community Development
Programme and National Extension Service and
suggested 'Democratic Decentralisation' in order to
make these programme successful. The National
Development Council agreed to the point and asked
each State Government to have democratic
decentralization.
The recommendations of National Development
Council were accepted by the Government of
Rajasthan in 1958. A Bill was passed on 2nd
September 1959 by the Rajasthan State Legislative
Assembly to provide for the constitution of
Imperial Journal of Interdisciplinary Research (IJIR)
Panchayat Samiti and Zila Parishad. The Bill
received the assent of the President of India on the
9th September.2 The Act also amended extensively
the Rajasthan Panchayat Act, 1953. The Rajasthan
Panchayat Samiti and Zila Parishad Act, 1959 took
effect from 2nd October, 1959. The term
'Panchayati Raj' was not used by Mehta
Committee. The Committee had recommended for
the democratic decentralisation. It is said that when
the Prime Minister of India i.e. Jawahar Lal Nehru
was inaugurating the Institutions of democratic
decentralisation at Nagaur in 1959. He rediculed
this long, alien title and urged some simple Indian
nomenclature. Some person in the Ministry of
Community Development promptly coined the
phrase 'Panchayati Raj'. The name Panchayati Raj
was thus overnight foisted on Mehta Committee's
scheme. Introduction of Panchayati Raj in
Rajasthan lead to the creation of three tier system,
Panchayat at village level, Panchayat Samiti at the
Block level and Zila Parishad at District level. The
Panchayats are the primary and basic unit under the
scheme and they are the agency for executing and
implementing developmental programmes at the
Panchayat level. The Act makes provision of
holding the meeting of all the adult people in the
Panchayat circle twice a year. This was aimed to
involve the entire people in development process,
make them plan conscious, help pave decision
making process and two way communication
between Panchayat and people. Panchayat Samiti
has been considered as a viable unit in Rajasthan. It
have been entrusted with the responsibility of the
administration and execution of development work
within their area. At the district level, Zila Parishad
had been created. This agency replaces the district
board as well as the district development
committee. But the Act did not provide executive
functions to the Zila Parishad. Otherwise it would
have become replica of the defunct district board. It
is, by and large, a supervisory, advisory and
coordinating body. It works as liaisoning body.
Panchayati Raj Institutions have been set up in our
country as a result of the recommendations of the
Balwant Rai Mehta Committee report in 1959.
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Imperial Journal of Interdisciplinary Research (IJIR)
Vol-2, Issue-8, 2016
ISSN: 2454-1362, http://www.onlinejournal.in
Rajasthan was the first state to take to democratic
decentralisation or Panchayati Raj, as it has come
to be termed, when it was inaugurated on 2nd
October, 1959 by Jawahar Lal Nehru, the then
Prime Minister of India. It was established under a
special Act of the Legislature (Rajasthan Panchayat
Samiti's and Zila Parishad's Act, 1959) according to
which the broad objectives of the scheme were. To
enable the people to participate fully and actively in
all development programmes. The Government
hopes that this would develop the Initiative of the
local people and that sound leadership which is
highly indispensable to the successful working of
democratic institutions will arise and be developed
at all the levels in the district.4
It was recognized that each state could have the
discretion to devise a system, best suited to the
local conditions. As a result of Panchayati Raj has
been incorporated as in the constitution, as a state
subject.
In Rajasthan, we have adopted the
recommendations of Balwant Rai Mehta
Committee report accordingly. In actual practice,
the Rajasthan model of Panchayati Raj closely
conformed to the model suggested by the Balwant
Rai Mehta Study Team, that is, Panchayat Samiti
at the Block Level as the key functional institution,
Zila Parishad at the district level in an advisory role
and Panchayat at the village level as the executive
agent of Panchayat Samiti. In our state Zila
Parishads have largely supervisory and coordinating
role i.e. they have to supervise and coordinate the
functions of Panchayat Samitis. The second tier i.e.
the Panchayat Samiti is the pivot of the panchayat
structure in Rajasthan. All the development functions
are mainly implemented and supervised by the
Panchayat Samiti while Panchayat have to implement
the schemes.
SURVEY OF LITERATURE: -
The Institute of Social Sciences (1995):-
studied the Panchayat Acts of 11 states i.e. Andhra
Pradesh, Gujarat, Karnataka, Punjab, Haryana,
Rajasthan, West Bengal, Madhya Pradesh etc. and
pointed out that the overall scenario of Panchayati Raj
in the country is dismal. Besides, the functions
assigned to Panchayati Raj Institutions do not cover
all the aspects of rural life and the Panchayats do not
have their per
National Institute of Rural Development (1995):-
Hyderabad, presents the pattern of devolution of
powers and functions to the Panchayati Raj
Institutions in five States of India and suggest a
general frame work at the national level, which can be
taken as a guideline by the other states of India to
Imperial Journal of Interdisciplinary Research (IJIR)
devolve powers and functions to their Panchayati Raj
Institutions.
YOJNA (monthly magazines):-This magazine gives
us those articles which are very important for the
research work. Annual Administrative Reports,
progress Report of the Panchayat Raj Department and
proceeding of Rajasthan Legislative Assembly etc.
Objectives of Research
The following are the objectives of research as
under: -
1. To study the awareness of the Panchayati
Raj functionaries about the new
panchayati raj system;
2. To know the Panchayati Raj Institutions in
Pre and Post Independence period and
evolution in that period.
3. To study the adequacy of the power and
resources provided by the state
government to the Panchayati Raj
Institutions.
ANALYSIS OF STUDY
PANCHAYATS: -
The State Government may, by notification in
the official Gazettes, declare any local area, comprising
a village or a group of villages not included in a
municipality or a cantonment board constituted under
any law for the time being in force to be Panchayat
circle and for every local area declared as such there
shall be a Panchayat. Panchayats constitute the
base of the Pyramid of Panchayati Raj. At present
Panchayats are the only directly constituted
representative institutions and provide the bases for
indirect constitution of the higher bodies. The
performance of Panchayats, therefore, has a vital
bearing on the functioning of higher tiers of Panchayati
Raj.
Village Panchayats in Rajasthan have
been entrusted with large number of functions to
perform under the Rajasthan village Panchayat Act,
1953 the functions of village Panchayats were
divided under the heads obligatory and
discretionary. Zahurul Hussan Shahib, while
dealing with powers and duties of Panchayats
wrote the duties of Panchayats are divided into two
categories - those obligatory which the Panchayats
must perform and those discretionary which the
Panchayats may perform.6 The division of
functions in the two sections was deemed
undesirable later on. As a result the distinction
between obligatory and discretionary functions was
amended by the Rajasthan Act 25 of 1960 and a
comprehensive list of functions was incorporated in
Schdule III of the Act.Now amended Act
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Imperial Journal of Interdisciplinary Research (IJIR)
Vol-2, Issue-8, 2016
ISSN: 2454-1362, http://www.onlinejournal.in
mentioned the functions and powers of Panchayats
under section 50 Schedule 1st of Panchayati Raj
Act, 1994.
The pivot body of panchayat is Gram Sabha.
The detailed constitution and function of Gram Sabha
have been inserted in Rajasthan Panchayati Raj Act,
1994 under section 8E.7 This word defined by the 73rd
Amendment Act, 1992 means a body consisting of
persons registered in electoral rolls relating to a village
comprised within the area of panchayat at the village
level. It generally comprises of one to three villages.
The Gram Sabha is an assembly of the entire adult
population of the panchayat circle. Until mid 2001, the
Gram Sabha met twice a year, once in the first and
other in the last quarter of the financial year. The State
Government has ordered in 2001 that henceforth the
meeting of Gram Sabha would be held four times a
year viz. 26th January, 20th May, 15th August and 2nd
October. On 3rd May 2002, the State Government was
again reduced the number of meetings to two. Meetings
can also be requisitioned in writing by more than one
tenth of total number of members of Gram Sabha or if
required by the Panchayat Samiti, Zila Parishad or the
State Government, such a meeting should be held
within 15 days of such a requisition.
POWERS AND FUNCTIONS OF SARPANCH
AND UPSARPANCH:-
The Sarpanch shall be responsible for
convening the meeting of the Gram Sabha as well as
the Panchayat and preside over the meeting. He shall
be responsible for the maintenance of the records of
the Panchayat and have the general responsibility for
the financial and executive administration of the
Panchayat. The Sarpanch exercises the
administrative supervision's and control over the
work of the staff of the Panchayat. He also furnishes
the state government such reports, returns and record
as and when called for such record. Administrative
structure of panchayati raj institutions in Rajasthan is
expressed in Annexure-IV The Upsarpanch
performs the duties of the Sarpanch in the absence
of the Sarpanch. He also exercises such other
powers of Sarpanch as the Sarpanch may delegate
to him by order in writing.
The Sarpanch, Upsarpanch or Panch may
resign his office by writing to Vikas Adhikari.
Every resignation shall take effect on the expiry of
15 days from the date of its receipt by the authority
unless withdrawn within this period of 15 days.
ASSIGNMENT FUNCTIONS: -
The Government may assign the following
functions to the Panchayat: -
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(a) Transfer to any panchayat the
management and maintenance of a forest
situated in the panchayat area;
(b) Make over to panchayat the management
of waste lands, pasture lands or vacant
lands belonging to the government
situated within the panchayat area,
(c) Entrust such other functions as may be
prescribed.
APPOINTMENT OF SECRETARY OR GROUP
PANCHAYAT SECRETARY:-
Every panchayat will have a secretary or a
group panchayat secretary for a group of
panchayats with the approval of panchayat samiti,
Panchayat may appoint other staff for carrying out
the duties of panchayat. The secretary or group
panchayat secretary works under the control of
sarpanch of village panchayat. It shall be the duty
of secretary.
(1) To keep the records and registers of
panchayat in his custody;
(2) To issue receipts under his signature for
sum of money received on behalf of the
panchayat.
(3) To be responsible for the safe custody of
panchayat fund;
(4) To be responsible for maintaining the
accounts of the panchayat fund;
(5) To prepare all statements and reports
required by or under this Act.
(6) To make all such payments as may be
sanctioned by the Panchayat.
(7) To perform such other functions and
duties as may be prescribed or delegated
under this Act.
PANCHAYAT SAMITI: -
For every block, there is a Panchayat
Samiti which has the power to acquire, by purchase,
gift or otherwise, to hold administer and transfer
property, and to enter into any contract. The
Panchayat Samiti shall consist of the directly elected
members from territorial constituencies. The State
Government determines the number of territorial
constituencies for each panchayat samiti area. There
shall be reservation of seats for Scheduled Casts,
Scheduled Tribe's and the Backward Classes in
proportion to the population of these groups in the
area one third of the seats are reserved for the
women. The position of the Pradhan shall be
reserved for scheduled castes, Scheduled Tribe's and
backward classes as also for women. There is an
indirect election for both Pradhan and Up Pradhan.
The elected members of the Panchayat Samiti will
elect two members from amongst themselves as
Pradhan and Up Pradhan. The term of Pradhan is
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Vol-2, Issue-8, 2016
ISSN: 2454-1362, http://www.onlinejournal.in
five years. However, he can be removed by an vote
of no confidence.
Powers and Functions of Pradhans:-
(1) Convene, preside at and conduct meetings
of the panchayat samiti;
(2) Have access to all its records;
(3) Discharge all duties imposed and exercise
all the powers conferred on him under this
Act and the rules made there under and
perform such functions as are entrusted to
him by the government from time to time.
(4) Encourage the growth of initiative and
enthusiasm in the Panchayats and to
provide to them guidance in the plans and
production programmes undertaken by
them and help the growth of cooperation
and voluntary organizations there is;
(5) Exercise supervision and control over
Vikas Adhikari for securing
implementation of the resolutions and
decisions of the panchayat samiti or of the
standing committee.
(6) Exercise over all supervision over the
financial and executive administration of
the Panchayat Samiti.
(7) Have emergency power to accord sanction
up to a total sum of Rs.25,000/- (Twenty
Five Thousand rupees) in a year in
consultation with the Vikas Adhikaries for
the purpose of providing immediate relief
to those who are affected by the natural
calamities in the Panchayat samiti area.
Power and Functions of Up Pradhan:-
The Up Pradhan of panchayat samiti shall:
- -
(a) In the absence of Pradhan preside at the
meeting of panchayat samiti.
(b) Exercise such powers and perform such
duties of the Pradhan as the Pradhan may
delegate to him by an order in writing.
Panchayat Samiti meets at least once in a
month for transaction of business. The members of
state legislative Assembly of the state representing
constituencies which comprises wholly or partly the
area of panchayat samiti and one fifth of the
sarpanches of the panchayat within the area of such
panchayat samiti shall be permanent invitees to the
meetings of panchayat but they shall not have any
right to vote in such meetings.
The State Government appoints Vikas
Adhikaries, Extension Officers as well as Accountants
and Junior Accountants for each Panchayat Samiti's.
All the above mentioned functionaries are either
Imperial Journal of Interdisciplinary Research (IJIR)
person's excadred in a state service or persons holding
posts under the state government. They are regarded
as being on deputation to Panchayat Samiti and liable
to transfer by the state government.
POWERS AND FUNCTIONS OF VIKAS
ADHIKARI:-
(a) Issue notice, under instructions from the
Pradhan and the Chairman standing
committee for meeting of the panchayat
samiti and standing committees;
(b) Attend meetings and record and maintain
the minutes of the Panchayat Samiti;
(c) Participate in the deliberations of
panchayat samiti meetings.
(d) Draw and disburse money out of the
Panchayat Samiti Fund.
ZILLA PARISHAD: -
For every district there shall be a Zilla
Parishad. A Zilla Parishad shall consist of directly
elected members from territorial constituencies.
The State Government will determine the number
of territorial constituencies for each Zilla Parishad
area and divide such area into single member
territorial constituencies. There is a reservation of
seats for Scheduled Caste, Schedule Tribes and
Backward Classes. One third of the total numbers
of seats are reserved for the women. The office of
the Pramukh is also reserved for Schedule Caste,
Schedule Tribes, Backward Classes and also
women.
The duration of Zilla Parishad is for five
years. The Pramukh and Up Pramukh of Zilla
Parishad are elected indirectly.
POWERS AND FUNCTIONS OF PRAMUKH:
(i) Perform all the duties imposed and exercise
all the powers conferred on the Pramukh
under the Act and the rule made there
under;
(ii) Convene and preside over, and conduct
meetings of zilla parishad;
(iii) Exercise administrative supervision and
control over the chief executive officer
and through him all officers and
employees whose services may be placed
at the disposal of the zilla parishad.
(iv) Exercise such other powers, perform such
other functions and discharge such other
duties as the zilla parishad may, by
resolution, direct or as the government
may, by rules made in this behalf,
prescribe;
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ISSN: 2454-1362, http://www.onlinejournal.in
(v) Exercise overall supervision over the financial
and executive administration of the zilla
parishad and place before the zilla parishad all
questions connected therewith which shall
appear to him to require its order and for this
purpose may call for records of the zilla
parishad;
(vi) Have power to accord sanction up to a total
sum of rupees one Lakh (Rs.1 Lakh) in a
year, in consultation with the Chief
Executive Officer for the purpose of
providing immediate relief to those who are
effected by natural calamities in the district;
(vii) Encourage the growth of initiative and
enthusiasm in the Panchayats and to provide
them guidance in the plan and production
programmes undertaken by them and help
the growth of cooperatives and voluntary
organizations therein;
(viii) In order to unable him to assess the
activities of the panchayat Samiti in the
district and study their programmes and
problems may from time to time.
(a) Visits the blocks in the district; and
(b) Inspect the works undertaken and
the records, maintenance by the
Panchayat Samiti in the district as
well as the working there of in
general with a view to guiding and
tendering advice to the Panchayat
Samities, there Pradhans, there
Vikas Adhikaries and there
members so as to develop healthy
relations among them as well as
between the Panchayat Samities
and Panchayats in each block and
increase the production programme
in accordance with the broad
policies laid down in the behalf. A
report of such inspections and
activities shall be made by the
Pramukh to the Zilla Parishad with
Particular reference to any defects
that he may have noticed.
(ix) At the end of the every year, send a report
as to the work of the chief executive
officer during that year to the Director,
Panchayati Raj and Rural Development
who shall append the comments with the
confidential report of the C.E.O.
POWERS OF UP PRAMUKH:-
In the absence of the Pramukh, Up
Pramukh will preside over the meeting of zilla
parishad, and perform the duties of the Pramukh.
Imperial Journal of Interdisciplinary Research (IJIR)
He exercises such powers and performs such duties
of the Pramukh as the Pramukh may delegate to
him by order in writing.
The Pramukh may resign his office by
writing to the Divisional Commissioner and the Up
Pramukh or a member of Zilla Parishad may resign
his office by writing under his hand addressed to
the Pramukh.
Every Zilla Parishad shall hold meetings at
least once in every three months. Whenever, one third
of the members of Zilla Parishad demands a meeting.
The Pramukh has to convene the meeting. The quorum
for a meeting shall be one third of the total number of
members. If a quorum is not present the presiding
authority should wait for thirty minutes and if within
such period there is no quorum, the presiding authority
should adjourn the meeting to the following day. All
members of the Lok Sabha as well as State Legislative
Assembly representing constituencies, which comprise
wholly or partly the area of Zilla Parishad, members of
Rajya Sabha registered as electors within the area of
Zilla Parishad and all the Pradhan of the Panchayat
Samiti within the Zilla Parishad area are permanent
invitees to the meetings of Zilla Parishad. However,
they will not have right to vote in such meetings.
STANDING COMMITTEES: -
Every Zilla Parishad shall constitute four
standing committees, one for each of the groups of
subjects specified below: -
(1) Administration finance and taxation;
(2) Production programmes including those
related to agriculture, animal husbandry,
minor irrigation, cooperation, cottage
industries and other allied subjects;
(3) Education including social education;
(4) Social services and social justice including
rural water supply, health and sanitation,
gram dan, communication, welfare of
weaker sections and allied subjects.
The Zilla Parishad may also constitute a fifth
standing committee for any of the subjects not
specified in any group of subjects mentioned above.
OFFICIALS OF ZILLA PARISHAD: -
An officer of Indian Administrative Service
or the Rajasthan Administrative Service shall be the
Chief Executive Officer of the Zilla Parishad who shall
be appointed by the State Government. Likewise, the
government may also appoint an additional chief
executive officer for a Zilla Parishad. In addition, the
state government appoints a Chief Accounts Officer
and a Chief Planning Officer for the Zilla Parishad.
POWERS AND FUNCTIONS OF THE C.E.O.
The Chief Executive Officer shall
(1) Carry out the policies, decisions and
directions of the Zilla Parishad, and take
necessary measures for the speedy
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execution of all works and development
schemes of the Zilla Parishad;
(2) Discharge the duties imposed upon him by
or under the Act or the Rules and
Regulation made there under;
(3) Control the officers and servants of Zilla
Parishad subject to the general
superintendence and control of the Zilla
Parishad.
(4) Have custody of all papers and documents
relating to the Zilla Parishad.
(5) Draw and disburse money out of the Zilla
Parishad funds;
(6) The C.E.O. shall under instructions of
Pramukh issue notice for and attend every
meeting of the Zilla Parishad and Standing Panchayati Raj Institutions in Rajasthan
Committees.
(7) The Chief Executive officer may enter on
and inspect. 1.
(a) Any immovable property or any
work in under the control of any 2.
panchayat or panchayat samiti.
(b) Any school, hospital, dispensary, 3.
vaccination station, poultry farm
or other institution maintained by 4.
or under the control of any
panchayat or panchayat Samiti 5.
and any records, registers or
other document kept in such 6.
institutions.
7.
(c) The office of any panchayat or 8.
panchayat samiti and any
records, registers or other
documents kept therein. 9.
POWERS OF THE STATE GOVERNMENT
OVER PANCHAYATI RAJ INSTITUTION: - 10.
Panchayati Raj Institutions are creation of 11.
the State Government. The state government has
the following power over the Panchayati Raj 12.
Institutions in the state:
1. State Government shall be the chief 13.
superintending and controlling authority in
respect of all matters relating to the 14.
administration of Panchayati Raja
Institutions. It has the power of canceling 15.
or suspending the resolution of Panchayati 16.
Raj Institutions. 17.
18.
2. The State Government may dissolve a 19.
Panchayati Raj Institution if it is satisfied 20.
that a Panchayati Raj Institution is not
competent to perform or persistently
makes default in the performance of the
duties imposed on it by the Act or abused
its powers.
Imperial Journal of Interdisciplinary Research (IJIR)
3. Shall appoint officers and staff; and
4. Shall inspect and enquiry by the
government
5. Including suitable tables bring out the
major benefits accruing to people through
the plan, such as number of people who
will be brought above the poverty line;
number of man days of employment that
will be generated, augmentation in social
facility, major gains in the economic
sectors etc.
Present Administrative Structure of
REFERENCES
Report of the Community Development
Programme, 1952.
Report of the Rajasthan Legislative
Assembly, 1959.
Report of the Balwant Rai Mehta
Committee, 1959.
Iqbal Narain, "Supervision and control
over Panchayati Raj Institutions 1973.
Rajasthan Panchayati Raj Act, 1994,
under Section 9 of the Act., 1994, P.76
Zahurul Hassan Sahib, "Organisation of
Rural Self Government in Rajasthan, P.18.
Rajasthan Panchayati Raj Act 1994, P.67.
G.S. Narwani, Panchayat Prashan Kya or
Kaise Jaipur, University Book House,
2001, P.18.
G.S. Narwani, Panchayat Prashan Kya or
Kaise, Jaipur, University Book House,
2001, P.12
Rajasthan Panchayati Raj Act, 1994.
The Rajasthan Panchayati Raj (Extension
of Scheduled Area) Act. 1994.
Rajasthan Panchayati Raj Act, 1994 under
Section 32.
Section 78 of the Rajasthan Panchayati
Raj Act, 1994 P.54
Section 33 of the Rajasthan Panchayati
Raj Act, 1994 P.33
Ibid, Section 34, P.34.
Ibid, Section 81, P.56.
Ibid, Section 35, P.35.
Ibid, Section 57, P.47.
Ibid, Section 84, P.56.
Times of India News Paper, 12 July 2001.
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