Chapter IV

PANCHAYATI RAJ IN ANDHRA

 This Chapter analyzes the Panchayati Raj system in Andhra Pradesh.

Andhra Pradesh was formed as separate state on linguistic basis on 1st

November, 1956, by merging nine Telugu speaking districts of old

Hyderabad state and with the eleven Telugu speaking districts of the Madras

state. The State is spread over three regions, namely, Coastal Andhra,

Rayalaseema and Telangana. Though each of the regions was characterized

by distinct historical, geographical and economic background, the

application of the system of Panchayati Raj (PR) remained common all over

the State.

4.1 Evolution of Panchayati Raj in Andhra Pradesh

Before the formation of present Andhra Pradesh, in 1953, the pattern

of local self-government was modeled on the one already operating in

Madras and Hyderabad States under different Acts such as Madras District

Boards Act, 1920, Madras Village Panchayats Act, 1950, Hyderabad District

Board Act, 1951 and Hyderabad Village Panchayats Act, 1951, etc. In 1953,

three types of rural local self-government institutions were existing in the

State, namely, District Boards, Taluk Boards and Village Panchayats.

Andhra Pradesh has a long history of Panchayati Raj governance

dating as far back as 1959. The Panchayati Raj System came into being in

the State as a result of the report of the study team headed by Balawant Rai

G. Mehta. Basing on the Balawant Rai G Mehta Committee Report, the

State had adopted a three-tier Panchayati Raj structure, consisting of Gram

Panchayati at bottom-tier, Panchayat Samithi at middle-tier and Zilla

Parishad at top-tier. As such, Andhra Pradesh Panchayat Samities and Zilla

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Parishads Act, 1959 was passed and by the end of 1959, these statutory

elected institutions had been established in all the districts.

In 1964, the Andhra Pradesh Gram Panchayati Raj Act, superseded

the two Gram Panchayat Acts of Andhra and Telangana. There was also a

provision for the Gram Sabha consisting of all the persons, included in the

electoral roll for the Gram Panchayat. Each village, a population of ten

thousand or above, had Panchayat. Where the population was less, the

villages were conveniently grouped.

The Constitution (73rd Amendment) Act, 1992 has been passed by the

parliament with a view mainly to strengthen and revitalize the Panchayati

Raj bodies so that they can sub serve the needs of the teeming millions that

live in rural areas. Prior to the Constitution Amendment, the Government

has appointed an Expert committee on Panchayati Raj bodies headed by Sri.

B.P. Vittal, I.A.S. to examine and submit a report on the reorganization of

the Panchayati Raj set up and also on the re - organization of revenue set

up below the district level. The Expert committee has submitted two

separate reports to the Government. The Government has thereupon

appointed a Cabinet sub-committee with Sri. D.K. Samarasimha Reddy,

Minister for Panchayati Raj as Chairperson to examine and make suitable

recommendations on the expert committee part on Panchayati Raj

institutions. The Cabinet sub-committee has considered the report of Expert

committee as also the provisions of the constitution amendment and

submitted its report to the Government.

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 During the Telugu Desam Government under the Chief Ministership of.

N.T. Rama Rao, Andhra Pradesh Government brought about reforms in

Panchayati Raj as well as revenue administration by introducing Mandal

system, in order to achieve democratic decentralization and to bring

administration to the door step of the people. As such the earlier Andhra

Pradesh Panchayat Samithis and Zilla Parishads Act, 1959 was replaced by

the Andhra Pradesh Mandal Praja Parishads, Zilla Praja Parishads and Zilla

Pranalika Abhirudhi Sameeksha Mandals Act, 1986 (Act No. 31 of 1986).

According the three tier system comprises of Gram Panchayat, Mandal Praja

Parishads and Zilla Praja Parishads, came into force by replacing Gram

Panchayats, Block Panchayats and Zilla Parishads.

4.2 The Present Panchayati Raj System

The present pattern of Panchayati Raj in the State is functioning

under the Andhra Pradesh Panchayati Raj Act, 1994, which was enacted on

21st April of the same year in the light of the 73rd Constitutional Amendment

Act, 1993. The Andhra Pradesh Panchayati Raj Act 1994 has incorporated

all the requirements of the 73rd Amendment to the Constitution. It is a

comprehensive legislation covering all the three - tiers of Panchayati Raj. In

addition to reservation for the SCs, STs and women provision is also made

for the members of the backward communities. According to the provisions

of the Act, ‘A Gram Panchayat shall consist of such number of elected

members inclusive of its Sarpanch as may be notified from time to time, by

the Commissioner in accordance with the following table’.

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 SI. Gram Panchayat with a population at the time of Number of
No last Census members
1 Up to 300 5
2 Exceeding 300 but not exceeding 500 7
3 Exceeding 500 but not exceeding 1500 9
4 Exceeding 1500 but not exceeding 3000 11
5 Exceeding 3000 but not exceeding 5000 13
6 Exceeding 5000 but not exceeding 10000 15
7 Exceeding 10000 but not exceeding 15000 17
8 Exceeding 15,000 Between 19
and 21

At the present intermediate level, there are 1095 Mandal Parishads,

each of which has a population ranging from 35,000 to 55,000. At the apex

of the ‘Panchayati Raj’ structure, there are 22 Zilla Parishads, each covering

50 Mandals on an average and with an average population of 22 lakhs.

4.2.1 Zilla Parishads

The final tier of the Panchayat Raj system is the district council (Zilla

Parishad) composed of members elected from Zilla Parishad Territorial

Constituencies (which are congruent to the mandal area). The ZP elects a

president indirectly from amongst its members. Members of the Zilla Praja

Parishad include - a member elected from territorial constituency, which is

obviously a Mandal; a member of the legislative assembly of the State

representing constituency, which forms part or whole of the district

concerned; a member of the counsil of the State, who is a registered voter in

the district; and two members each belonging to minorities and co-opted by

the elected members of the Zilla Parishad.

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4.2.2 Mandal Parishad
Above the GP is the Mandal Parishad (sub-district committee)

comprising the area of around 20 GPs. The residents of Mandal Parishad

Territorial Constituencies (MPTC roughly corresponding to the Gram) elect

members to a Mandal Parishad (MP). The MP members in turn elect a

Mandal Parishad President (MPP) from amongst themselves. In contrast to

GP elections, political party competition is allowed at the MP level. In every

Mandal head quarter, a Primary Health Centre, Veterinary Hospital, High

School, Junior College, Police Station, Library and Market Yard be

established, to provide all facilities to the people in one place.

Members of the Mandal Parishad include - members elected from

territorial constituencies; members of legislative assembly representing a

constituency, which comprise either whole or part of the Mandal concerned;

a member of the council of State who is a registered voter in a Mandal

(ex-officio); two members each belonging to minorities and co-opted by the

elected members; and Sarpanches of Gram Panchayats as permanent

invitees.

4.2.3 Gram Panchayat

The Gram Panchayats in Andhra Pradesh stand at the base of the

three tier structure of local governance with the Zilla Parishad at the district

level and the Mandal Parishad at the intermediate level. Andhra Pradesh

comprises 23 districts including one urban district, namely, Hyderabad,

covering 1091 mandals. Along with 22 Zilla Parishads, 1095 Mandal

Parishads, there are 21, 895 Gram Panchayats in Andhra Pradesh covering

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a population of 5,63,11,788 (2011 Census). District-Wise particulars of

Gram Panchayats (2006-07) are given in the Table -4.1. It is evident from

the table that maximum numbers of Gram Panchayats are in Chittoor

district (1399 Gram Panchayats), while minimum number of Gram

Panchayats are in Ranga Reddy district (705 Gram Panchayats).

The Costal Andhra Pradesh region of the State is made of nine

districts. It has a total of 8,909 Gram Panchayats in this region covering

40.69 per cent of the total Gram Panchayats in the State. In this region,

Srikakulam district has the highest number of Gram Panchayats (1106),

followed by Prakasam (1041), Guntur (1022), East Godavari (1011),

Visakhapatnam (976), Krishna (973), Nellore (961), Vizianagaram (931) and

West Godavari (888).

Rayalaseema is made of four districts and this region has 4,131 Gram

Panchayats (18.87 per cent). In this region, Chittoor district has highest

number of Gram Panchayats (1399), followed by Anantapur (1005), Kumool

(898) and Kadapa (829).

Telangana region has ten districts and this region has 6,802 Gram

Panchayats (31.07 per cent). In this region, maximum number of Gram

Panchayats are in Mahabubnagar district (1348), followed by Karimnagar

(1194), Nalgonda (1178), Medak (1061), Warangal (1014), Adilabad (866),

Khammam (770), Nizamabad (719) and Ranga Reddy (705).

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 Table-4.1

DISTRICT WISE NUMBER OF GRAM PANCHAYATS IN ANDHRA

PRADESH (2006-07)

SI.
District Number of Gram Panchayats % to the total
No.
Coastal Andhra region
1. Srikakulam 1106 5.05
2. Vizianagaram 931 4.25
3. Visakhapatnam 976 4.46
4. East Godavari 1011 4.62
5. West Godavari 888 4.06
6. Krishna 973 4.44
7. Guntur 1022 4.67
8. Prakasam 1041 4.75
9. Nellore 961 4.39
Total 8909 40.69
Rayalaseem region
10. Chittoor 1399 6.39
11. Kadapa 829 3.79
12. Anantapur 1005 4.59
13. Kurnool 898 4.10
Total 4131 18.87
Telangana region
14. Mahabubnagar 1348 6.16
15. Ranga Reddy 705 3.22
16. Hyderabad - -

17. Medak 1061 4.85

18. Nizamabad 719 3.28
19. Adilabad 866 3.96
20. Karimnagar 1194 5.45
21. Warangal 1014 4.63
22. Khammam 770 3.52
23. Nalgonda 1178 5.38
Total 6802 31.07
Andhra Pradesh 21895 100.00

Source: Statistical Abstract of Andhra Pradesh 2009, Directorate

of Economics and Statistics, Government of Andhra
Pradesh, Hyderabad.

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4.2.3.1 Gram Sabha

According to the Andhra Pradesh Panchayati Raj Act, 1994, every

Gram Panchayat consists of two wings known as ‘Gram Sabha’ and

Panchayat. The Gram Panchayat shall give due consideration to the

suggestions, if any, of the Gram Sabha. Gram Sabha consists of all persons

whose names are included in the electoral rolls. The Gram Sabhas met

atleast twice a year to consider the annual statement of accounts and audit,

the report of the administration for the previous year, the programme of

works for the ahead, and the proposals for fresh taxation or for

enhancement of existing taxes. The Sarpanch (President), or in his absence,

the Up-Sarpanch (Vice-President) of the Gram Panchayat has to preside over

the meeting.

The functions of the Gram Sabha are to examine annual statement of

accounts and audit reports; to report on the administration of the preceding

year; to examine progress of works for the year on new programmes; to

prepare proposals for fresh taxation or for enhancement of existing tax

rates; to examine selections of schemes, beneficiaries and locations; and any

such other matter as may be prescribed.

4.2.3o2 Gram Panchayat as Political unit

The President and Vice-Presidents of the Gram Panchayats in Andhra

Pradesh are known as Sarpanch and Upa-Sarpanch respectively. Sarpanch

is the political executive of Gram Panchayat and is assisted by Upa-

Sarpanch. For the purpose of electing members the Gram Panchayats in

Andhra Pradesh are divided into so many wards. One member is elected

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from each ward. The number of members depends on population of the

Village and the number of members in Village Panchayat varies from 4 to 30

in different states. The members of the Panchayat including Sarpanch are

directly elected by the registered voters in the ward by the method of secret

ballot for a period of five years.

Further, the State has provided reservations at all the three tiers of

the Panchayati Raj for SCs and STs in proportion to their population and

one third reservations for women. Reservation for Backward classes (BCs) is

a discretionary provision. Andhra Pradesh has provided reservation of

seats for EC’s. l/3rd of seats are reserved for women, l/3rd for BCs, not

less than 22.5 per cent for the SCs and 6 per cent for the STs.

Section 40 of the Panchayati Raj Act provides for the formation of the

functional committees at the Gram Panchayats. Functional Committees can

be formed for Water Supply, Sanitation, Family Planning, Education and

Communication and for any other purpose of the Act. The functional

committees have been constituted but remain mostly non-functional.

4.2.3.3 Gram Panchayat as an Administrative Unit

In the wake of 73rd Constitutional Amendment in order to strengthen

the village governances and to give reputed status to Gram Panchayat,

Andhra Pradesh Government has created Panchayat Secretary post at Gram

Panchayat level. The Panchayat Secretary will be under the administrative

control of the Gram Panchayat. The Gram Panchayats are administratively

supported by the Panchayat Secretaries. The Secretaries are from five

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different grades of administration placed at different Gram Panchayats

depending on the size of the Gram Panchayat and the magnitude of its

function. The Secretary functions under the administrative control of the

GP, in keeping with the spirit of the Constitutional Amendment. A key

function of the Secretary is the management of the GP funds. The

Secretary, along with the Sarpanch, has cheque - signing power. The GP

accounts are also maintained by the Secretary and all deposits and

disbursals from the GP funds are done by him.

4.2.3.4 Functional devolution to GPs

The functions of the Gram Panchayats in Andhra Pradesh are broadly

divided into two, namely, obligatory functions and optional/discretionary

functions.. Section 45 and Section 46 of the Andhra Pradesh Panchayat Raj

Act, 1994 specify the obligatory and discretionary functions of the GP

respectively. The obligatory functions broadly include (a) communications -

construction, repair and maintenance of roads and bridges, (b). sanitation -

cleaning of drains, streets, maintenance of pubic latrines and street lights,

(c). public health - taking up of preventive and remedial measures for

various diseases, and (d). water supply - digging and deepening of wells.

The discretionary functions include providing education, health and

recreation facilities.

Only 16 out of the 29 functions specified in the Eleventh Schedule of

the Constitution have been transferred to the Gram Panchayats in Andhra

Pradesh. The list of functions devolved to the Gram Panchayats are -

agriculture including agricultural extension; minor irrigation tanks; social

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and farm forestry; khadi and village industries; drinking water; roads,

culverts, bridges, ferries and waterways; non-conventional energy;

education including primary and secondary schools; technical training and

vocational education; adult and non-formal education; libraries; cultural

activities; women and child development; social welfare including welfare of

handicapped and mentally retarded; public distribution scheme and

maintenance of community assets.

4.2.3.5 Financial Devolution to the Gram Panchayats

According to Section 74 of the Andhra Pradesh Panchayati Raj Act,

‘Gram Panchayat Fund’ would be constituted by every Gram Panchayat in

Andhra Pradesh with all monies received by the Gram Panchayat. The GP

fund would be used to spend on all obligatory functions and any other

discretionary functions that the GP assumes as well as own staff salaries

(Section 75).

Revenues to the Gram Panchayats in Andhra Pradesh would come

from four major heads, namely, own sources, assigned cess and surcharge

collected, grants and donations and contributions. Revenue from own

sources include mandatory taxes, optional taxes, fees and fines, rents and

leases and other remunerative enterprises. Grants include grants coming

from state government and central government for specific schemes.

Voluntary funds donated by the people constitute donations and

contributions. A Gram Panchayat has three compulsory taxes, namely,

house tax, kolagarum (a tax on the village produce sold by weight) and

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advertisement taxes and two optional taxes, namely, vehicle tax and tax on

agricultural lands.

Among the various receipts, some funds are specially embarked for

expenditure on specific objects and which cannot be diverted for expenditure

on any subject other than for which they are collected. They include water

tax levied under Section 245 of AP Public Health Act, 1939, tax on

agricultural lands levied under section 60, special tax levied under section

71 of the Act, loan funds, special grants received from government, Zilla

Parishad and Mandal Parishad sanctioned for specific purposes, receipts

derived from sale of capital assets, income from endowments and trusts and

deposits.

The Gram Panchayat has an annual. budget which is approved

without any need for outside sanction. But the estimates need to be precise

to the extent possible and provisions need to be made for obligatoiy charges.

According to G.O.Ms.No.69, dated 29.2.2000 of the Government of Andhra

Pradesh, no Gram Panchayat can have a deficit budget or incur any item of

expenditure which is not included in the budget. All allotments made in the

budget lapses at the end of the year. In addition, a working balance of not

less than 5 per cent of estimate receipts has to be maintained.

4.2.3.5.1 Own sources

The own sources of revenue comprises of taxes, fees, fines and

commercial / remunerative enterprises. House tax and Katarusumu are

obligatoiy taxes where as vehicle tax , special tax on agriculture, water tax ,

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drainage tax, lighting tax, pilgrim tax, toll tax , etc; are come under

discretionary / optional taxes.

4.2.3.5.2 Transfers from state Government

The state government levy and collects revenue in the form of

profession tax, entertainment tax, land cess and registration surcharge etc,

but the proceeds are transferred to Gram Panchayats as per the guidelines

given in the Act.

4.2.3.5.3 Grants - in - Aid

I

A major percentage of Gram Panchayat expenditure activity is taken

up with the help of Grant- in - Aid received from both the center and the

state Governments in India. Hence, the revenue from the Grant-in- Aid is a

very important source and it is infect deciding the developmental activities

in the Gram Panchayats.

The State government along with the union government are providing

various Grants, both conditional and unconditional type , to the Panchayats

in order to fill the deficit in the Panchayats finances. The grants are of two

types i.e., plan grants and non plan grants.

4.2.3.6 Gram Panchayat and the District Collector

The district collector is the chief executive authority of the Gram

Panchayat. District Panchayat officer assists the collector in administrative

matters and supervises the functioning of Gram Panchayat. The collector is

empowered to suspend the resolution of Gram Panchayats, which damages

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the low and order, suspend or dissolve the Panchayat under crucial

circumstances. He has the power to fix boundary limits to Gram Panchayats

and to establish a new Panchayat. In addition to the above, Gram

Panchayats have to get permission of the collector in levying special tax on

land, special land cess etc.

4.2.4 State Finance Commission

The 73rd amendment to the constitution made provision for the

creation of a state finance commission for eveiy state. The basic purpose of

state finance commission is to be assisting the Panchayati Raj bodies to

become financially viable and to see that sufficient revenues are transferred

to local bodies to make them perform their functions better in way.

State finance commission was constituted in Andhra Pradesh on June

24, 1994. The commission consists of a chairman and four other members

appointed by the governor on the recommendations of the government. The

term of the office specified in the order of the government.

★ ★ *

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References

1. Andhra Pradesh Panchayati Raj Act, 1994.

2. Bhargava, B.S., (2002), “Panchayati Raj in Andhra Pradesh”, in

Palanithurai eds., ‘Dynamics of New Panchayati Raj System in India’,
Vol.II, Concept Publishing Company, New Delhi, p.186.

3. George Mathew (1995), ‘Status of Panchayati Raj in the States of

India, 1994’, Concept Publishing Company, New Delhi.

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