Government of India
Ministry of Panchayati Raj
From: A.N.P. Sinha,
The Chief Secretaries,
Subject: Dedicated Manpower for the Gram Panchayats (GPs).
Kindly recall our advisory dated 23.10.2009 (Annexure-I) wherein, inter alia, it
suggested to provide a minimum core staff to the GPs viz. Panchayat Development
Officer (PDO)/Secretary, Technical Assistant (TA) and Accountant since the existing
manpower generally is not commensurate with the nature and magnitude of their
Core staff position as reported to MoPR is at Annexure-II. It is seen that in many
cases, even a full time GP Secretary is not provided. Since the size and responsibilities
of GPs vary widely, reasonable norms based on the area, population, terrain etc. of the
GP and functions devolved could be laid down by the States. We recommend at least a
PDO, a TA and an Accountant for a GP or a cluster of GPs with 5000 population.
Since MGNREGA mandates the Panchayats as the principal planning and
implementation authorities, a joint circular was issued by MoPR and MoRD dated
12.11.2010 (Annexure-III) for providing one PDO and one Junior Engineer(JE) for the
following categories of GPs : -
(a) GPs in LWE Districts.
(b) GPs with population more that 5000.
(c) GPs in districts with expenditure under MGNREGA more than Rs. 100cr.
(d) GPs in States that have devolved at least 5 subjects along with funds and
(e) GPs with PURA Project.
Under this framework, the Central Government proposed to support the States
financially (90% to begin with, to be brought down progressively by 10% every year)
out of MGNREGS administrative cost, subject to the States following Model
Recruitment and Service Rules (MRSR) that provide for (a) initial recruitment on tenure
basis; (b) a transparent and fair selection process through SPSC/SSB; (c) absorption into
appropriate regular cadres, etc.
Based on the views/ comments received from the States on the above framework,
MoRD has issued a circular dated 7.6.2011 (Annexure-IV) making certain modifications
the joint circular dated 12.11.20110, as follows:-
(i) Cost sharing between the Centre and the State would continue to begin in the ratio
of 90:10 but would be reduced by 10% every year for 5 years and would continue at
50:50 for another 5 years.
(ii) As regards the method of Selection and Recruitment, Rule 7 stands modified and
now the States may follow their own Rules so long these are transparent and fair.
(iii) Monthly consolidated remuneration for the PDO and JE has been enhanced to Rs.
12000 and Rs. 10000/- per month respectively. Moreover, States could pay still
higher amounts, but securing additional expenses from other sources.
(iv) Qualification for the PDOs now includes the subject of Commerce also. For the post
of JE, Diploma holders could also be considered in case Degree holders are not
(v) Certain critical conditions such as (a) these personnel maintaining GP accounts in
MAS format using PRIASOFT, preparing integrated decentralized plans using
PlanPlus(b) providing a functional office building for the GPs, are reiterated.
This provides a much-needed opportunity to place core staff at the GPs for
effective planning & implementation of MGNREGA in particular. Proposals in the
requisite format to MoRD, with a copy to MoPR, may therefore be sent on top priority.
It may be noted that many GPs are not covered by the norms referred to in para 3
above. The States may, therefore, like to use BRGF, 13
FC, States own reasons,
MGNREGA funds etc. to cover the remaining GPs. An illustrative calculation is at
Plan is likely to entrust much more responsibilities to the Panchayats
and therefore urgent action is needed right now.
Placing PDOs in GPs is of critical importance since the increasing
complexity and magnitude of the responsibilities of the GPs and applications under
e-Panchayat(Annex.VI) cannot be satisfactorily handled by the conventional GP
Secretary. Karnataka has appointed PDOs and it has made a quantum improvement in
the functioning & confidence of the GPs.
Enclosures: As above.
Copy to: Principal Secretary, Panchayati Raj Deptt., All States/UTs for needful.
Government of India
Ministry of Panchayati Raj
Krishi Bhavan, New Delhi-110001.
From : A.N.P.Sinha,
To: Chief Secretary,
Subject: Guidelines on Manpower for the Panchayati Raj Institutions (PRIs).
The 73rd Amendment to the Constitution in 1993 has ushered in an important chapter
in the process of democratic decentralization in the country. The PRIs have consequently
become a permanent tier of self government at the local level with, inter alia, specific role in
planning and implementation of programmes for economic development, service delivery and
social justice, particularly in relation to 29 matters listed in the 11
Schedule. The 11
stipulates substantial empowerment and use of the PRIs as the primary means of delivery.
However, even after 15 years of the Amendment, the PRIs are generally yet to come
up as the effective units of self-governance due to several reasons, a key reason being
inadequate capacity of the PRIs, which has two facets, namely, their organizational capacity
and capability of the officials and elected representatives. All the same, their responsibility
are increasing progressively due to their role in the planning and implementation of NREGA,
BRGF, MDM, SSA, NRHM, TFC and so on.
The issue of capacity of the PRIs was deliberated upon in the 1st Round Table of
Ministers in-charge of Panchayati Raj held at Kolkata on 24th-25th July, 2004 where the
following resolutions were adopted:-
Devolution of functionaries to the PRIs should be patterned on the mapping of
activities related to the devolved functions.
Where deputation of State Government officials is required to assist the PRIs in
planning or implementing the devolved activity, the officials concerned must be
primarily responsible to, and be under the disciplinary supervision and control of the
With a view to building a cadre of officials and technocrats specialized in the
devolved functions of the PRIs, States/UTs may consider instituting a Panchayati Raj
Administrative and Technical Service, with the States/UTs discontinuing further
recruitment of staff to State services for such devolved functions.
Reconceiving the role of District Rural Development Agencies (DRDAs) as an
important instrument for PRIs development through the progressive merger of the
DRDAs with the District Panchayats. The technical expertise and other facilities of
the DRDAs should become available to all tiers of the PRIs under the overall
responsibility and disciplinary control of the elected authority.
The 2nd Administrative Reforms Commission (ARC), in its 6th Report titled ‘Local
Governance – an inspiring journey into the future’, has made the following recommendations
on this issue:-
Panchayats should have power to recruit personnel and to regulate their service
conditions subject to such laws and standards as laid down by the State Government.
Evolution of this system should not be prolonged beyond three years. Until then, the
Panchayats may draw upon, for defined periods, staff from departments/agencies of
the State Government, on deputation.
(ii) In all States, a detailed review of the staffing pattern and systems, with a zero-based
approach to PRI staffing may be undertaken over the next one year in order to
implement the policy of PRI ownership of staff. The Zila Parishads, particularly,
should be associated with this exercise.
Further, in a good paper on ‘Administrative Decentralization for Effective
Functioning’ of the PRIs, some specific measures have been suggested as listed at Annex-I.
Logically, for the subjects listed in the 11
Schedule and others that have been
devolved, the Panchayats should have the power to (i) recruit personnel, (ii) regulate their
service conditions, and (iii) exercise control over them, subject to such laws and standards as
may be laid. However, due to several factors such as (i) service conditions of the existing
employees, (ii) lack of enabling administrative and legislative environment for transferring
the State Govt. employees to the Panchayat Cadre, (iii) resistance from the existing
employees etc., there would be problems in implementing this arrangement. Therefore, the
following transitional and permanent arrangements with a definite time line are suggested.
(i) A quasi Gram Panchayat (GP) Cadre of field level functionaries, whose work is vital to
the GP and whose work touches the lives of people at large, should be created. This would
include: Panchayat Secretary, Accountant, Technical Assistant, Computer Operator,
Teachers, ANMs, Anganwadi Workers, Agricultural Assistants, Livestock Assistant, Motor
Pump Mechanic, Electricity department Linemen etc.
If the area of operation of these functionaries is a GP, they should be fully answerable
to the GP though recruited by the District Panchayat. Eligibility, service conditions and
recruitment procedure for this group could be specified by the State Government without
diluting the authority of GPs.
The existing staff on these posts should be allowed to continue till they superannuate
or are promoted. The resultant vacancies should be filled by GP cadre alone.
The District Panchayat Cadre (DP Cadre) could comprise of officials that have
jurisdiction over areas larger than a GP. Employees of the DP cadre would supervise the
work of the functionaries at the GP level. Examples of this would be: Extension Officers,
junior engineers etc. Some employees listed above for the GP cadre could also fall in this
cadre. The DP cadre could be constituted by a judicious mix of direct recruitments and
promotion from the GP Cadre. Only those found to be meeting expected standards measured
in quantifiable terms should be considered for promotion. Perhaps entering the DP cadre from
GP cadre could get more than one promotion within the DP Cadre, before he/she can move to
the next level.
State Cadre: Ideally, even Class I & II officers should belong to DP Cadre. However,
during the transition period, this cadre could be a State Cadre and people from this cadre
should be posted on deputation to the District/Intermediate Panchayats.
The levels/nomenclature would evidentantly be state specific.
a) Panchayat Secretary (GP Cadre) Village Development Officer (DP Cadre)
Extension Officer (Panchayat) (DP Cadre)
BDO (State Cadre)
promotions as per the State policy.
b) Anganwadi Worker (GP Cadre)
Mukhya Sevika (DP Cadre)
Cadre) CDPO (State Cadre)
c) Agriculture Asstt. (GP Cadre)
Extension Officer (Agr.) (DP Cadre)
Agriculture Officer (DP Cadre)
As evident, the Panchayat should normally have four categories of staff :
Core staff for its internal processes: Secretary, Accountant, Technical Assistant and
Computer Operator. Given the ever increasing responsibilities and complexity of the
task in the GP, it would be desirable to create a post of Panchayat Development
Officer with a degree in Business Administration Rural Management or a similar
Scheme Specific Staff: for example, NREGA provides (a) for GP- Gram Rozgar
Sewak; (b) for Block Panchayats- one Programme Officer, a pool of few Technical
Assistants to service GPs; Computer Assistants and Accountant, and (c) for District
Panchayats Works Manager with Technical assistant, IT Manager with Computer
Assistant, Accounts Manager with Accounts Assistant, Coordinator for social audit
and grievance redressal.
(iii) Functional Staff: such as Teachers, ASHA, Angan-wadi workers.
Contractual skilled workers: such as Motor Mechanic, Hand Pump Mechanic,
It is well recognised that the size of Panchayats varies widely from State to State and,
therefore, the core and other staff strength, mode of selection, appointment etc., may not be
uniform. Reasonable norms based on the area/population/terrain of the Panchayat and
functions devolved need to be laid down.
9. The required personnel be provided in the first instance by transferring the relevant
departmental personnel and making them fully accountable to PRIs. This should be followed
by creating local cadres, permitting lateral shift of staff, providing flexibility to the PRIs to
outsource technical personnel from the empanelled providers, strengthening supervisory
powers of the PRIs over the local staff and increasing the proportion of women staff
members. For natural resource development, a pool of technical staff shared by a cluster of
GPs may be provided.
As regards the creation of a Panchayat cadre, the Maharashtra model is worth
considering. A brief note on the same is at Annex II.
Administrative reforms of this nature would require an extensive study of the existing
cadres, staffing patterns, strength of each cadre, Recruitment Rules etc. Based on the current
status and keeping in mind the broad principles enunciated above, a road map for gradual
transition to the desired state could be worked out. The Recruitment Rules for these cadres
would require amendments so as to be able to reach the final destination without resulting
disadvantage to the existing personnel. This Ministry would support States engage reputed
consultancy organizations and commission studies with, inter-alia, following ToRs:
(i) Compile information of all cadres, their strengths, vacant positions, anticipated
future vacancies with time lines, Recruitment Rules etc.
(ii) Make recommendations on rationalization/ convergence of various cadres
(iii) Suggest changes required in Administrative Orders/ rules etc for implementing the
accepted recommendations and the draft of the amendments.
(iv) Suggest other implementable measures that would result in transition to the desired
state along with time lines.
(v) Give Job description for each post and develop skill development matrices for
training of persons to discharge their duties efficiently.
(vi) Make appropriate recommendations for performance measurement at each level in
the GP and DP Cadres.
Resources for deploying core staff of the Panchayats could be found out of the State
resources, BRGF, NREGA, Finance Commission Awards etc. as per a well considered
phasing. Other staff could be financed under the existing Plan/non-Plan arrangements.
Progress made in the matter may be furnished to us from time to time. Your
suggestions in the matter would help us refine these guidelines.
Copy to: Principal Secretaries, Panchayati Raj/Rural Development/Finance Deptts., all
Administrative decentralization for the effective functioning of PRIs
• Doing away with the system of deputations.
• Converging of cadres and lateral movement of staff.
• Moving towards a system of decentralized recruitment and local cadres.
• Freeing PRI office bearers and members from the web of restrictive administrative
• Re-establishing the primacy of the CEO in the administrative hierarchy of the District.
• Ensuring smooth coordination between Departments.
• Ensuring responsibility to the elected body.
• Ensuring that performance appraisal is done by the appropriate PRI.
• Bringing in additional safeguards into performance appraisal.
• Re-writing technical scrutiny rules to make them more transparent and simple.
• De-monopolising the availability of technical guidance.
• Giving powers to the Gram Panchayats to monitor attendance of essential staff.
• Posting full time accounts staff to Gram Panchayats.
• Allowing Gram Panchayats to outsource services.
• Upgrading the post of Secretary to the Gram Panchayat.
• Finding people of appropriate levels to man the upgraded posts.
• Getting more women to work as Panchayat Secretaries.
• Undertaking a sustained, forward looking and well structured training campaign for
equipping Panchayat Secretaries with relevant skills.
Staffing of Panchayats – Maharashtra Zilla Parishads
In Maharashtra, Class-I and Class-II officers are State Cadres. Class I & II officers
from various deptts. Viz. Education, Health, PWD, Minor irrigation, Drinking Water supply,
Social welfare, Finance and Accounts, RDD (BDO’s, Addl. CEOs, PD DRDA etc.) are
posted on deputation to the Zilla Parishads. The CEO is an IAS Officer (senior time scale).
Both the District collector and CEO report to the Divisional Commissioner. CEO does not
report to Collector.
However, Class-II and Class-IV employees are Parishad employees and not State
Government employees. They belong to the following 3 categories: District Subordinate
Services, District Technical Services, District Services.
There are separate service rules for each of these categories, which include
recruitment, leave, provident fund, disciplinary proceedings etc. In these 3 categories, there
are 59 cadres (earlier there were 80+, now rationalized) as enclosed. Employees of these
cadres are recruited for a district and are controlled by the Zilla Parishads concerned. These
employees are not transferable out of that district.
In the Recruitment Rules of the State Government cadres (Class II), almost always,
certain percentage of vacancies are filled through promotion from the District cadres. Thus an
employee recruited in a District cadre would, after reaching the maximum of the possible
grade in the District cadre, would be entitled to be promoted in the State cadre. The channels
for promotion are well defined in the respective rules.
For example: A Gram Sevak Extension officer (Agriculture) (District Cadre)
Agriculture Officer (District Cadre) Sub Divisional Agriculture Officer (Class II post -
Alternatively, Gram Sevak Village Development Officer (District Cadre), Extension
Officer (Panchayat) (District Cadre).
Annex I (part)
1. Section Officer
30. Agriculture Officer
31. Extension Officer (Agri)
3. Extension Officer (Statistics)
32. Junior Engineer (Civil)
4. Steno-typist (LG)
33. Asstt to Jr. Engineer
5. Steno-typist (HG)
34. Chief Draftsman
7. Senior Assistant
36. Junior Draftsman
8. Junior Assistant (Acctts)
38. Mistry (Grade-I)
10. Asstt. Acctts Officer
39. Mistry (Grade-ll)
11. Deputy Acctt.
40. Senior Mechanic
12. Senior Asstt ( Acctts)
41. Junior Mechanic
13.Junior Asstt ( Acctts)
14. Extension Officer
44. Asstt Livestock Development Officer
15. Village Development Officer
45. Livestock Supervisor
16. Gram Sevak
46. Extension Officer (Education)- Grade II
17. Medical Officer
47. Extension Officer (Education) - Grade III
18. Medical Officer (Class III)
48. Asstt Teacher (Secondary)- Upper grade
49. Asstt Teacher (Secondary)- lower Grade
20. Lab Technician
50. Junior College teacher
21. Leprosy Technician
51. Kendra Pramukh (Education)
22. Extension Officer (Health)
52. Primary School Teacher
23. Health Assitt (Male)
53. Head Master
24. Health Worker (Male)
54. Deputy Head Master
25. Health Worker ( Female)
55. lab Asstt
26. Health Asstt ( female)
56. Asstt Child Devlopment Officer
27. Health Supervisor
57. Supervisor ( Child Development)
Manpower at GP level
Secretary or equivalent
Details of other Staff (nos. Sanctioned, Filled)
Clerk/Bill Collector (5381, 5381).
Information not available
Tax Collector/Road Maharea (692, 547) and Peon cum Chowkidar (615, 615)
information not available
Clerks (298, 298), Peons(189, 189), Gram Sevak.(121, 103).
Tailoring Teacher (2922, 2393) and NREGA Sahayak (1081, 1081)..
Panchayat Development Officer (5628, 4378).
Jr. Suptdnt (632, 632), Head Clerck(615, 615), Accountant (999, 999), UD Clerk (2447, 2447),
LD Clerk(3276, 3276), Peon(1506, 1486), Fulltime Sweeper(923, 918), Part-time
Sweeper(1205, 1025), Asstt. Engineers(592,592), Overseer(999,999), Clerk (999,999). etc.
Part time Peon(23040), Part time Sweeper(23040), Kanji House Moharir (16835)
VDO(3524,2930), Peon/lightman/waterman (53986,53986)
Gram Sahayak(163,163), Office Helper (163,163), Jr. Eng.(27,27)
Makkal Nala Paniyalargar (12618,12618), OHT Operators (41389, 41389), Sweepers
(11906,11906), Village Librarians(7679,7679)
Information not available
Includes 7000 Gram Vikas Adhikari deputed to GPs.
Executive Assistant(3351,2904), Nirman Sahayak(3351,2310), Sahayak(6885,5342), Gram
Panchayat Karmi(9519, 7351).