Panchayats & Municipalities

The story behind it

Gandhi wanted India built up from self-reliant villages. Ambedkar disagreed sharply: he called the village “a sink of localism, a den of ignorance, narrow-mindedness and communalism”, and the draft Constitution left villages out entirely. Article 40 was added as a compromise, as a Directive Principle only.

The working system came from committees, not the text. The Balwant Rai Mehta Committee (1957), set up to review the Community Development Programme, recommended a three-tier structure. Rajasthan started it first, at Nagaur on 2 October 1959, and Andhra Pradesh followed (UPSC 1998). The Ashok Mehta Committee (1978) proposed two tiers and open participation of political parties. The L.M. Singhvi Committee (1986) recommended constitutional status. The 64th Amendment Bill (1989) failed in the Rajya Sabha; the 73rd and 74th Amendments were passed in 1992. India’s urban local government is older still: the first Municipal Corporation was set up in Madras in 1688 (UPSC 2009).

How UPSC asks it

1. UPSC 2017 Local self-government can be best explained as an exercise in
   1. Federalism
   2. Democratic decentralisation
   3. Administrative delegation
   4. Direct democracy
   Show answer

   (b) Democratic decentralisation. Power is transferred to elected local bodies close to the people: democratic decentralisation.
2. UPSC 2015 The fundamental object of the Panchayati Raj system is to ensure which among the following?
   1. People's participation in development
   2. Political accountability
   3. Democratic decentralisation
   4. Financial mobilisation
   1. 1, 2 and 3 only
   2. 2 and 4 only
   3. 1 and 3 only
   4. 1, 2, 3 and 4
   Show answer

   (c) 1 and 3 only. The core idea is democratic decentralisation with people’s participation in development; accountability and finance are by-products, not the fundamental object.
3. UPSC 2009 In India, the first Municipal Corporation was set up in which one among the following?
   1. Calcutta
   2. Madras
   3. Bombay
   4. Delhi
   Show answer

   (b) Madras. Madras, 1688. Bombay and Calcutta got corporations in 1726.
4. UPSC 2004 Assertion (A): The Central Rural Sanitation Programme was launched in 1986 to improve the quality of life of rural people in India. Reason (R): Rural sanitation is a subject in the Concurrent List in the Constitution of India.
   1. Both A and R are individually true and R is the correct explanation of A
   2. Both A and R are individually true but R is not the correct explanation of A
   3. A is true but R is false
   4. A is false but R is true
   Show answer

   (c) A is true but R is false. The programme began in 1986. Public health and sanitation are in the State List (Entry 6), not the Concurrent List.
5. UPSC 2000 Match List-I (Local Bodies) with List-II (States as in 1999): A. Zila Parishads at the sub-divisional level B. Mandal Praja Parishad C. Tribal Councils D. Absence of Village Panchayats —
   1. Andhra Pradesh
   2. Assam
   3. Mizoram
   4. Meghalaya
   1. A-2, B-1, C-4, D-3
   2. A-1, B-2, C-4, D-3
   3. A-3, B-2, C-1, D-4
   4. A-2, B-1, C-3, D-4
   Show answer

   (a) A-2, B-1, C-4, D-3. Assam had sub-divisional Zila Parishads; Andhra Pradesh had Mandal Praja Parishads; Meghalaya has tribal councils; Mizoram had no village panchayats.
6. UPSC 1998 Panchayat Raj was first introduced in India in October, 1959 in:
   1. Rajasthan
   2. Tamil Nadu
   3. Kerala
   4. Karnataka
   Show answer

   (a) Rajasthan. Rajasthan, at Nagaur, on 2 October 1959.

The story behind it

The Amendment came into force on 24 April 1993, now National Panchayati Raj Day. The one-third quota for women was a floor, not a ceiling: more than 20 States have since raised it to 50% by their own laws.

The courts have enforced the deadlines. In Kishansing Tomar (2006) the Supreme Court held that State Election Commissions must hold elections on time and cannot delay them by citing delimitation or other reasons. Backward-class quotas in local bodies need a “triple test” (K. Krishna Murthy, 2010; Vikas Kishanrao Gawali, 2021): a dedicated commission to study backwardness, quotas based on its data, and total reservation within 50%.

How UPSC asks it

1. UPSC 2026 Which of the following statements with respect to the Revamped Rashtriya Gram Swaraj Abhiyan (RGSA) is/are correct?
   1. The period of its implementation is 1st April, 2021 to 31st March, 2026.
   2. The key objective of the Revamped RGSA is to develop the governance capabilities of the Panchayati Raj Institutions to deliver on the Sustainable Development Goals.
   3. The share of the Central funding for the Revamped RGSA is 100% for all States and Union Territories.
   Select the answer using the code given below:
   1. 1 and 2
   2. 2 only
   3. 1 and 3
   4. 2 and 3
   Show answer

   (b) 2 only. The Revamped RGSA runs from 1 April 2022 to 31 March 2026. Its aim is to build PRI governance capacity to localise the SDGs. Funding is 60:40 for States (90:10 for north-eastern and hill States and J&K) and 100% only for Union Territories.
2. UPSC 2025 Consider the following statements: I. Panchayats at the intermediate level exist in all States. II. To be eligible to be a Member of a Panchayat at the intermediate level, a person should attain the age of thirty years. III. The Chief Minister of a State constitutes a commission to review the financial position of Panchayats at the intermediate levels and to make recommendations regarding the distribution of net proceeds of taxes and duties, leviable by the State, between the State and Panchayats at the intermediate level. Which of the statements given above are not correct?
   1. I and II only
   2. II and III only
   3. I and III only
   4. I, II and III
   Show answer

   (d) I, II and III. All three are wrong: States under 20 lakh population may skip the intermediate tier; the minimum age is 21; the State Finance Commission is constituted by the Governor.
3. UPSC 2016 Consider the following statements:
   1. The minimum age prescribed for any person to be a member of Panchayat is 25 years.
   2. A Panchayat reconstituted after premature dissolution continues only for the remainder period.
   1. 1 only
   2. 2 only
   3. Both 1 and 2
   4. Neither 1 nor 2
   Show answer

   (b) 2 only. The minimum age is 21. A reconstituted panchayat serves only the remainder of the term (Article 243E).
4. UPSC 2011 The Constitution (Seventy-Third Amendment) Act, 1992, which aims at promoting the Panchayati Raj Institutions in the country, provides for which of the following?
   1. Constitution of District Planning Committees.
   2. State Election Commissions to conduct all panchayat elections.
   3. Establishment of State Finance Commissions.
   1. 1 only
   2. 1 and 2 only
   3. 2 and 3 only
   4. 1, 2 and 3
   Show answer

   (c) 2 and 3 only. District Planning Committees come from the 74th Amendment (Article 243ZD). SECs and SFCs are in the 73rd.
5. UPSC 2009 If a Panchayat is dissolved, elections are to be held within:
   1. 1 month
   2. 3 months
   3. 6 months
   4. 1 year
   Show answer

   (c) 6 months. Article 243E(3): within six months of dissolution.
6. UPSC 1999 In the new Panchayati Raj Bill enacted in 1993, there are several fresh provisions deviating from the past. Which one of the following is not one such provision?
   1. A number of added responsibilities in the area of agriculture, rural development, primary education and social forestry among others
   2. Elections being made mandatory for all posts at the time they are due
   3. A statutory representation for women in the panchayats, up to a third of the strength
   4. Regular remuneration to the panchayat members, so as to ensure their punctuality and accountability
   Show answer

   (d) Regular remuneration to the panchayat members, so as to ensure their punctuality and accountability. The 73rd Amendment says nothing about paying members; that is left to States.
7. UPSC 1997 Which one of the following was not proposed by the 73rd Constitutional Amendment in the area of Panchayati Raj?
   1. Thirty percent seats in all elected rural local bodies will be reserved for women candidates at all levels
   2. The States will constitute their Finance Commissions to allocate resources to Panchayati Raj institutions
   3. The Panchayati Raj functionaries will be disqualified to hold their offices if they have more than two children
   4. The elections will be held in six months time if Panchayati Raj bodies are superseded or dissolved by the State government
   Show answer

   (c) The Panchayati Raj functionaries will be disqualified to hold their offices if they have more than two children. The two-child norm is a State-level rule in some States; it is not in the 73rd Amendment.
8. UPSC 1996 What is the system of governance in the Panchayati Raj set up?
   1. Single tier structure of local self government at the village level
   2. Two tier system of local self government at village and block levels
   3. Three tier structure of local self government at the village, block and district levels
   4. Four tier system of local self government at the village, block, district and in the state levels
   Show answer

   (c) Three tier structure of local self government at the village, block and district levels. Village, intermediate (block) and district levels.

The story behind it

PESA followed the Dileep Singh Bhuria Committee (1995). It reversed the usual direction of power: in Scheduled Areas, the Gram Sabha, not the State, is meant to be the centre. Under PESA the Gram Sabha must be consulted before land is acquired, approves development plans, identifies beneficiaries, and controls minor forest produce, minor water bodies, money-lending and the sale of liquor (UPSC 2012, 2013). It applies in the ten States with Fifth Schedule areas.

The weakness is the same as in Part IX: PESA works only through State laws and rules. Some States took years to frame PESA rules; others have still not given the Gram Sabha the full powers. The Forest Rights Act, 2006 extended the same Gram Sabha-first approach to forests (Chapter 18).

How UPSC asks it

1. UPSC 2013 The Government enacted the Panchayat Extension to Scheduled Areas (PESA) Act in 1996. Which one of the following is not identified as its objective?
   1. To provide self-governance
   2. To recognize traditional rights
   3. To create autonomous regions in tribal areas
   4. To free tribal people from exploitation
   Show answer

   (c) To create autonomous regions in tribal areas. Autonomous regions are a Sixth Schedule feature. PESA aims at self-governance through Gram Sabhas within the existing structure.
2. UPSC 2012 In the areas covered under the Panchayat (Extension to the Scheduled Areas) Act, 1996, what is the role/power of Gram Sabha?
   1. Gram Sabha has the power to prevent alienation of land in the Scheduled Areas.
   2. Gram Sabha has the ownership of minor forest produce.
   3. Recommendation of Gram Sabha is required for granting prospecting licence or mining lease for any mineral in the Scheduled Areas.
   1. 1 only
   2. 1 and 2 only
   3. 2 and 3 only
   4. 1, 2 and 3
   Show answer

   (b) 1 and 2 only. Its recommendation is mandatory only for minor minerals, not ‘any mineral’. 1 and 2 are correct.

The story behind it

The 74th Amendment came into force on 1 June 1993. Its Twelfth Schedule lists 18 functions, from urban planning to fire services. As with panchayats, the Constitution offers the list but leaves the transfer to States, and few States have handed over all 18. Elections are often delayed: many big cities have gone years without an elected council. The Second Administrative Reforms Commission and successive Finance Commissions have pointed to the same gaps: few functions, little own revenue and weak mayors.

How UPSC asks it

1. UPSC 2011 Consider the following statements: In India, a Metropolitan Planning Committee 1. is constituted under the provisions of the Constitution of India. 2. prepares the draft development plans for the metropolitan area. 3. has the sole responsibility for implementing Government sponsored schemes in the metropolitan area.
   1. 1 and 2 only
   2. 2 only
   3. 1 and 3 only
   4. 1, 2 and 3
   Show answer

   (a) 1 and 2 only. Article 243ZE provides for it and it prepares draft plans. It does not implement schemes.
2. UPSC 2005 Consider the following statements:
   1. Part IX of the Constitution of India provides for Panchayats and was inserted by the Constitution (Amendment) Act, 1992.
   2. Part IX A of the Constitution of India contains provisions for Municipalities and the Article 243Q envisages two types of Municipalities: a Municipal Council and a Municipal Corporation for every State.
   1. Only 1
   2. Only 2
   3. Both 1 and 2
   4. Neither 1 nor 2
   Show answer

   (a) Only 1. Article 243Q provides for three types: Nagar Panchayat, Municipal Council and Municipal Corporation.
3. UPSC 2001 In which one of the following areas does the State Government not have control over its local bodies?
   1. Citizens' grievances
   2. Financial matters
   3. Legislation
   4. Personnel matters
   Show answer

   (a) Citizens' grievances. States control local bodies through laws, finances and staff. Redressing citizens’ day-to-day grievances is the local body’s own job.
4. UPSC 2000 A college student desires to get elected to the Municipal Council of his city. The validity of his nomination would depend on the important condition, among others, that:
   1. he obtains permission from the principal of his college
   2. he is a member of a political party
   3. his name figures in the voters' list
   4. he files a declaration owing allegiance to the Constitution of India
   Show answer

   (c) his name figures in the voters' list. A candidate must be a registered voter of the area (and meet the age requirement).

Reading the text: bodies outside Part IXA

Part IXA covers only Nagar Panchayats, Municipal Councils and Municipal Corporations. The other urban bodies are created by ordinary laws or executive orders, so the constitutional rules on elections, reservation and terms do not apply to them.

• Cantonment Boards are set up under the Cantonments Act, 2006 and work under the Ministry of Defence. Part of the board is elected and part is nominated; the station commander is president. Since 2023 the government has begun moving the civil areas of several cantonments into nearby municipalities.
• Industrial townships are the only one with a constitutional base, in the proviso to Article 243Q(1).
• Notified area committees, town area committees, port trusts and special purpose agencies, such as development authorities and water boards, are statutory bodies. They often take over functions listed in the Twelfth Schedule, which is one reason elected municipalities remain weak.

The story behind it

“Co-operative societies” is a State subject (Entry 32, State List). Part IXB, made by Parliament, told State legislatures how to run them, but the 97th Amendment was never ratified by half the States, as Article 368(2) requires for changes that affect State powers. In Union of India v Rajendra N. Shah (July 2021) the Supreme Court struck down Part IXB as far as it applies to co-operatives within one State. It survives only for multi-State co-operative societies, which are a Union subject. The same month, the Union government created a separate Ministry of Cooperation.