Mening of Local Self Government

38

Chap t er- 2 MEANI NG,NAT URE AN D SCO PE OF LOCA L GOVERNM ENT S I ndi a has t he di st i nct i on of bei ng a uni qu e f ed er al cou nt ry . Or di nari l y , ed fer ai l sm i nvol vesa t wo t i er syst em – cen t r al /uni on gover nmen t at ht e fi r stl evel an d t he st at e/ pr ovi nci algover nmen t at t he se co nd l evel . But t he n Idi an con st i t ut i on pr ovi des or f a t hr ee er ti f ed eral st ru ct ur e a s b el ow :Uni onGov en rment att he op t St at e G ov en rmen ti n t he M i ddl e

Loca l Gover nmen ti . e.Pan ch ayat s an d Muni ci pal i t i es at Gr ass Root Assuch,i nI ndi a,LocalGov er nme nti st het hi r ds t r at um oft he Gove r nmen t ,t he fi r stt wo bei ng t he cen t r alan d st at e G ov er nmen t s. I ndi a i s k now n t o b e h te w orl d’ s a l r gest dem ocracy. I n con st i t ut i on al sen se, dem ocr acys ih te sys t em ofGover nmen t ,i n t he ad mi ni st r at i on ofwhi ch , ever y ad ul t i c t i ze n oft he cou nt ry en j oyssom e di r ect or i ndi r ect sha r e. eepi K ng i n vi ew t he r ealpi s r i t an d hi gh i deasof dem oc r ac y ,

Local ov er G nment f or ms an i ndi spensabl e par t of

gover nan ce an d ad mi ni st r at i oni n I ndi a. TheLocalGov er nment ’ sj ur i sdi ct i on i sl i mi t ed t o a speci ficar ea

an d i t s f unct i on s r el at e t o t he pr ovi si on of vi ci c am en i t i es t o t he pop ul at i on bei ng w i t hi n i t s u j ri sd i ct i on . A Loca l Govern men tf unct i on s

39

wi t hi nt he pr ovi si ons of t he s t at ut e whi ch has cr eat ed i t .I ti s su bordi nat e t o t he st at e or r p ovi nci algover nmen t w hi ch exer ci ses

con t r ol an d su per vsi ion ove r i t . B ut t he act i vi t i es of h t e Lo cal Gov er nment a r e notl ess numer ous. Loc alGov en rment has bee n undert ak i ng n ew act i vi t i es h w i ch ei t herr egu l at edt he con ductoft he ci t i ze ns or r a e i n t he nat ur e of er svce i su ch as pr ovi si on of a mss t r ansp ort , co nst ru ct i on of ou hsesf ort he poo r , su ppl y of ect el ri ci t y , heal t h cen t er s,park s,pl aygrou nds et c.I n f ac t , Loca l Govern men ti s t od ay much mor e i mport an t n i t he dai l y l i f e ofa ci t i ze n t han t he st at e or cen t r al govern men t . The i mpor t ance of Local gover nme nt can har dl y be over em ph asi z ed when we co nsi der he t r an ge , t he char act er and t he i mpactupon t he dai l y l i f e oft he ci t i zenoft he f unct i on s whi ch l oca l au t hori t i es ca r ry ou t . Local Gover nmen t pr ovi des u p bl i c a men i t i es

an d se r vi ce s whi ch ar e nec ess aryf or t he con ve ni en ce , h eal t hf ul l i vi ng an d wel f ar e oft he i ndi vi dualan d t he com muni t y . Br eak i ng dow n ofmuni ci pal servi ces ea mns h te en t i r e d i sl oca t i on ofsoci alan d econ om i c l i f e o ft he com muni t y .I ft hese servi ces er w e su dden l y t o 1

cease, we sh ou l d r el ap se ni t o ch ao s. TheLocalGov er nme nti ns t i t ut i onsar ebased on t hepr i nci pl e

of vi di si on of ab lou r . Theyarend i i sp en sab l e becau set he agg r egat e 2

dut i es of gover nmen t an d l ocal au t hori t i es can t hus b e T sh h ared. e 1 2

J. H.War r en,“ TheLocalGov er nme ntSer vi ce”( 1952) ,p.5. J. S.Mi l l ,“ Consi der at i onsonRepr esent at i v eGov er nment ” ,( 1865) ,p.213.

40

ad mi ni st r at i on f r om wi t hou t l ack s t he vi t al i zi ng ab i l i t y t o be r esp on si bl e o t p ubl i c op i ni on .I t ca nnotgras p t he gen i us of t he p l ace. Lo cal Gover nmen ti s t her eor fe edu cat i ve niper hap s a hi gh er degr ee 3

t han an y ot herpart ofgover nmen T t h . e con st i t ut i on ofI ndi a ai ms a t t he es t ab l i sh men t of a wel f ar e st at e an d st r en gt heni ng of Local Gover nmen t may en su r e t i s proper i ev e ach m en t . The w el f ar e ser vi ces of t he mode r n

st at e, i n

vi ew

of he t flex i bl e t ec hni que of

admi ni st r at i on t hey requ i r ed , essen t i al l y muni ci pal i n pri nci pl e a nd 4

prac t i ce .

Local Gov en rment bot h i n ur ba n an d r ur alar eas as h h t us o t sh ou l der m an i f ol d an d com pl ex r espon si bi l i t i es.The cen t r al an d st at e gov er nment s ar e consci ou s of ht e short com i ng f r om whi ch l ocal gov er nmen t su ffer ed i n t he pa st . They hav e t her eor fe bee n t r yi ng t o under st an d t hem by i nst i t ut i ng se ve r al

en qu i r es an d

5

st udi es.The Cen t r alGove r nmen t ,f or ni st an ce , se t up t he L ocal Fi nan ce Enqu i r y Com mi t t ee ( 1951 ) andt he Ta xat i on Enqu i r y Com mi ss i on ( 19 54 )t o exam i ne t he pr obl em s offin an ce s of ur ban l ocalodi b es . A

ce nt r al

cou nci l ofLocalel f S Gov en rmentwas

est ab l i sh edi n 1954 t o con si deran d r ecom men d br oadl i nes of pol i cy an d dr aw up a co mmon pr ogr amme of act i on t o pr omot e o lc alsel f gov er nmenthr t ou gh ou tI ndi a.Th e coun ci l se t up a com mi t t ee on

Augment at i onofFi nanci alResour cesofUr banLocalbodi esi n1965. 3 4 5

Harol d Lask i ,“ Gram mar of Pol i t i cs” ( 1950) , p. 212. M. P.Sharm a,“ Lo cal Sel f Gover nmen ti n I ndi a” 19 (65) , p. 2. TheRepor tofsemi naron “ ThePat t er n ofRur alGov er nme nt ”Publ i shed by I ndi an I nst i t ut e of Publ i c A dmi ni st rat i on , New Del hi ,( 1958) , pp. 8094.

41

Town and vi l l ages ar et wo di s t i nctent i t i es i nI ndi a.The y hav e di ffer en t needs dan probl em s.Th e m ai n r equ i r em en t s of t ow ns ar e h te

pr ovi si on s of ou h si ng, r an t sport , com muni cat i on s, san i t arycond i t i on s, om c muni t y ce nt er s, l u sm

at wer su pp l y ,

cl ear an ce an d t ow n

pl an ni ng w hi l e m ai n em phasi s n i t he vi l l age as h o tb e oni mprov em en t of agri cu l t ure, i rri ga t i on f aci l i t i es , ani mal husb andry, vi l l agei ndust ri es an d t he i l ke. Th e per son nelofUr ba n Local Gov en rmen t an d Pa nchayat i Raj nst ii t ut i on s wou l d t hus r equ i r e sp eci al i sedt r ai ni ng t o cat er

spec i fic nee ds of r u ba n an d r ur al t her eor fe,

ar easr es pect i v el y .

th e

Th e s t udy

em ph asi s’ s t he needf or t wo di st i nct se t of er pson nel

r equ i r em en tf or ht e u r ban an d ru r all oca l bod i es.

MEANI NG OF LOCALGOVERNM ENTS I t i s not

eas y t o answ er t he qu es t i on “ what i s l oc al

gov er nment ” ? Local Gov en rment may be cr des i bed sa go ve r nment by

pop ul arl y el ect ed bod i es ch arged wi t h ad mi ni st r at i vean d execu t i ve dut i esi n mat t er s con cern i ng t he i nhabi t ant s ofa part i cu l ardi st ri ct or ace pl nd a ves t edwi t h pow er s o t m ak e byel aw s or f t hei r gu i dan ce. Local Gove r nment has ee bn defin edf r om var i ou s an gl es .I t has een b defin edas an “ au t hor i t y o t det er mi ne an d exe cu t e measu r es i w t h i n r est ri ct edar eai nsi de a nd sm al l er ht an t he w hol e st at e. ” The t er m “ LocalGov er nme nt ”l i t er al l y me ans manageme ntof

t he l oca l aff ai r s by t he peop l e of ht e l oca l i t y . t I s i based on t he pri nci pl e h tatt he ocal l pr ob l em s an d need s can be ook l edbyt he

42

peop l e of ht e l oca l i t y bet t er ht an by cen t r al orat e stgover nmen t s. Theadmi ni s t r at i on ofl ocalaffai ri sent r ust ed t ot her epr esent at i v es el ect edby t he p eo pl e o ft he oca l l i t y o n r egu l ar nt i erva l s.Thou gh l oca l gover nmen t n i st i t ut i on s en j oy au t on om y of oper at i on s,i t do es not meant hatt her e areo n egal l r est ri ct i on s u pon t hem . The cen t r alan d st at e gover nmen t s ar e f r ee t o pr escr i be t he l i mi t s wi t hi n whi ch a l ocal gover nmen t has t o op er ae t a nd al sor eser ve ht e ri gh tt o i ssu e di r ect i on s r f om t i me o t i t me. Thet er m“ LocalGov er nme nt ”or“ Local sel fgov er nme nt ’me ans t he govern men t by r f eel y el ect edl oca l bod i es h w i chare d en ow edwi t h pow er , di scr et i on an d r esp on si bi l i t y t o be exer ci sedan d di sch arged by t hem,wi t houtcont r olov ert hei rdeci si ons by any ot herhi gher aut hori t y . Thei r act i on s a r e,how ever , su bj ect ed t o h te su pr em acy f o t he n at i on algover nmen t . Defi ni ng l ocal sel f gover nmen t ,i t hasbeen ob served t hat : Loca li nhab i t ant s represen t i ng oca l l bod y p ossessi ng au t on om y wi t hi n i t s i l mi t ed sp her es, r ai si ng rev en ue h tr ou gh l ocal t ax at i on an d sp en di ng i t s i ncom e on l ocalervi s cescon st i t ut e t he 6

l oc al sel f go vern men t . Fo r abet t er n u der san t di ng o ft he con cept of Local Gov er nment d ani t s meani ng,sc opean d nat ur e,i t s hal l be desi r ab l e t o st udy a f ew i mport an t defi ni t i on s an d i nt er pr et at i on s f r om var i ou s sou r ces .

Aspert heGener alCl ausesAct ,1897“ LocalGov er nmentshal l meant he p er sonau t hor i ze d byl aw t o a dmi ni st erexe cu t i ve 6

i n I ndi a”, Bom bay 19 (69 ) , p. 1. K.Ve nka t a r an gi a “ Lo calGov er nment

43

Gover nmen ti n t he p art ofBri t i sh I ndi a i n whi ch t he A ctor egu R l at i on co nt ai ni ng

t he

ex pr eson i oper at es an d

s hal l i ncl ude a

Chi ef

7

Com mi ss i on er . T he w or d Local Gov en rment al so fin ds m ent i on i n t he 8

Gove r nmen t ofI ndi a A ct , 19 35 W .her eby t he ph r ase Local Gov en rment has a du e pl ace , h tou gh not el r ev an t or f t he pr es entdi sc uss i on . Accor di ngt oemi ne ntsc hol arandpol i t i calsci ent i s t

Cl ar ke, “ Lo cal Gover nmen ti s h tatpart oft he G over nmen t ofa ornat i on st at e w hi chdeal s m ai nl y w i t h su chmat t er s as con cer n t he n i hab i t an t s of ht e part i cu l ardi st ri ct ofaces, pl oget h ter i w t h t hosemat t ers hw i ch pa r l i amen t ha s deem ed i t desi r ab l e sh ou l d be ad mi ni st er ed by l ocal 9

bodi es,subor di nat et ot heCent r alGov er nment .

Thi s defini t i on t hough qui t e compr ehensi ve makes no r ef er ence t o t wo i mport an t el em en t s ofLoca l Gover nmen t i v z.l oca l l y el ect ed or con t r ol l edcou nci l s an d l oca l finances. d Opi Accor di ng t o D. Lockar nes h t atl oc algo v er nment ay m e b l oosel y defi ned as a pu bl i c or gan i z at i on , au t hori z ed t o deci de an d ad mi ni st er a l i mi t ed r an ge of u p bl i c pol i ci es wi t hi n r el at i vel y sm al l 10

t err i t ory whi chi s asu b di vi si on ofa r egi on alor at ni on algovern men t . Accor di ng t o M. Goe t z“ Sel f Gov en rment mpl ii es mer ey l a f or m com munalad mi ni st r at i on ” . E. L.Hasl uko pi nes ht at oca ll

of

7 8 9 10

Secti on 3 ( 29) . Sect i on 134 ( 4) . The LocalGov er nme ntofU. K. ,1948,p.1 ( Al so see Dev el opment& Local Admi ni s t r at i onbySahi bSi ngh,2001,p.5) . D. Lock ard ,“ Encycl op ed i a ofSoci alSci en ces” , Vol . 9, New Yo r k, p. 45.

44

gover nmen ti s h tat p s her e of gover nmen t wi t hi n whi ch l ocal bod i es arel egal l y per mi t t ed t o ad op t var i at i on s i n ad mi ni st r at on . Hi .

Si dgw i c k t al ks a bou tl ocal gover nmen t ascer t ai n su bor di nat e b od i es whi ch hav edefined power sofmaki ng r ul esand r egul at i onswi t hi n t hei r prescri bedar ea s o f admi ni st r at i on . Accor di ng t o P.St Lo cal Gove r nmen ti s h tat pa r t oft he on es“ gov er nment of a co unt r y whi ch deal s wi t h t hos e mat t er s whi ch 11

co ncern t he p eo pl e n i part i cu l ar oc lal i t y. He p oi nt s ou tf urt hert hat i t act s as t he co mmuni t i es ’ hou se wi f e, ni t hat i t makes ou r su r r ou ndi ngs fit o t l i ve i n, keeps t he st r ee t s cl ean , e ducat e ou r ch i l dr en , bui l ds ou r h ou sesan d doesal lt hoseot her mi si l ar j ob s whi chenabl eust ol eadaci vi l i z edl i f e.V.Va p oi nt s ou tt hat nka t a R ao “ Local Gov en rmentsit hat ar pt of he t go v er nment h w i ch deal s mai nl y w i t h l oca l aff ai r s,ad mi ni st er ed by au t hori t i es su bordi nat e o t t he st at e go ver nmen t but el ect edi ndep en den t l y o ft he st at e a ut hori t y 12

by t he qual i fied r esi dent s.

Acc or dn ig t o L. Gol oca l di ngL“

Gov en rment i s h te man age ment oft hei r ow n aff ai r s byt he p eopl e of 13

a l oca l i t y” Jenni “ Loc alGov er nment as go v er nment al ngs define org an s h avi ng j ur i sd i ct i on notover hetw hol e o f a cou nt ry u b t over 14

sp ec i fic p ort i on of i t .

11 12 13 14

P.St on e,“ Local Gov en rmentor f St uden t s” , Lon don , MC Don al d an d Evo ns Lt d. ,( 1963) , p. 1. V. Venkat a Rao “ A hundr ed year of Local Sel f - Gov er nment i n Assam, Cal cu t t a,Ben i Parka sh , Man der ,( 1965) , p. 1. Gol di ng L .“ Loca l Gover nmen t ” Lo ndon( 19 55) , p.19 . L. Jen ni ngs, “ Pr i nci pl es of Local Gover nmen t Law ” 3 ( r d Edi t i on ) , Lon don , 1947, p. 1.

45

Accor di ng t o B. gov er nmen t

K .

G okhal e“ Loc al

o Gv er nment

of ec sp i fic l ocal i t y by t he l ocal

s i t he

peopl e t hr ou gh t he

15

r ep r esen t at i vesel ect ed by t hem . ”I n t he wor ds of Humes an d Local Gover nmen t possesses ost of mt he ol fl ow at i t n ri g but es : Mar t i n“ a pop ul at i on , a cl ear l y d efi nedarea, t he cap aci t y o t su e an d be su ed , t he ab i l i t y t o make con t r act s,

a con t i nui ng or gan i sat i on , t he

au t hori t y t o under t ak e an d t he pow er ot con duct pu bl i c act i vi t i es 16

an d t he ri gh tt o co l l ect r even ue a nd det er mi ne abuA d ccor get ” di ng t o Byr Local Gove r nmen t s i mar kedou t as a di si t nct i ve or f m of ne “ pu bl i c

17

ad mi ni s t r at i on by five key f eat ur es . ” I t i s

mul t i pu r pose oper at es on a l oc al

el ect ed ,

sc al e has a cl ear l y defin ed

st ru ct ur e,an d i s su bordi nat e t o parl i amen t .pt i nes h t at Ham on op “ Lo cal t au hori t i es havecl ear l y defin ed geogr ap hi cal ou b ndari es, mul t i pu r pose or com pen di ou s bo di es , di r ec t l y el ec t ed an d havi ng 18

i ndep en den t pow er of r ai si ng a tx at i on . ” A ccord i ng o t “ Local Gov en rment s ar e se en as ass oci at i on s of Mi c hael eat Ki ng i ndi vi du al s choosi ng t o gov er n t hei r ow n aff ai r s, defi ni ng t hei r 19

boundar i esandnegot i at i ngt hei rpower s. ”

A ccor di ng o t Davi d

15

Gokh al e B . K. ,“ Th e C on st i t ut i on ofI ndi a”Bom bay, Shet h & Com pa ny 19 ( 72 ) , pp . 13 07-08 .

16

Humes &E. Mart i n, “ Th e st r uct ur e ofLocal Envi r on ment ” 1st ( d. e ) , Th e

17 18 19

Hag ue,( 1961) , p. 28. TonyByr ne,“ LocalGov er nme nt ” ,i nBr i t ai n( 5t hed. ) ,London,Rengwi nBooks ( 1990) , p. 2. Wi l l i an Hampt on “ LocalGov er nme ntand Ur ban Pol i t i cs” ,( 2nd ed. ) ,London, ( 1991) , p. 3. Mi ch ael Keat i ng,“ Com pa r at i ve r U ba n Po l i t i cs” , Al dershot ngl an E d, d E ward El gar19( 91) , pp. 2122.

46

Wi l sonand assoc i at e“ s Local ov e Gn rmen t s ia l ar geo ge gra phi ca l l y defi ned mul t i f unct i on al organ i sat i on , pur su i ng a vari et y of soci al ,

pol i t i ca l and eco nom i c ob j ect i ves, ei t her ht r ou gh t he di r ectr ovi psi on or t hr ou gh t he mon i t or i ng of

spon sor shi p, i ndi r ec t f undi ng, r eg ul at i on or

a ve r y ext en si ve r an ge of

ser vi ce s t o i t s l ocal

20

com muni t y . Pr op i nes ht atLocal Gov en rment oessor f .A W . Robson maybe sa i d t o i nvol vet he con cep t i on of a t err i t ori al , non sover ei gn com muni t y p ossessi ng h te egal l r i gh t an d t he n ecessary gan i sat or i on t o regu l at e t i s ow n aff ai r s.Thi s s i u trnpr esu pposes t he ex i st en ce f o l oc alaut hori t y w i t h pow er ot a cti ndep en den t l y o f ext ern alcon t r olas wel last hepar t i ci pat i onoft hel ocalcommuni t yi nt headmi ni s t r at i on 21

ofi t s ow n aff ai r s. An anal ysi sofabov eme nt i oneddefini t i onsofl ocalgov er nme nt r efl ect s h tat t here are wo a t sp ect s o fl oca l gove rn men t( a) t he rel at i on of t he oc lal bodi est o t he c en t ral /st at e go vern men t s,( b) t hei r e ra l t i on t ot he ocal l com muni t y , whi chsh ou l d be d et er mi nedbyt he ol fl ow i ng pri nci pl es : (1)

I t s i desi r abl e t o ai m at ht e sm al l est ssi po bl e uni t h tat ca n per f or m

a pa r t i cu l ar t askeffici ent l y so as t o bei ng l ocal

gover nmen t asneare r asossi p bl e o t h te p eop l e,

20 21

Davi d Wi l son& Chr i s G am e an d ot her s,“ Local Gov en rmentn it he U ni t ed Ki ngd om ” , Lon don , Macm i l l an ,( 1994) , p. 8. Robson , W . A. , E “ncy coped l i a of oci S al ci Sences” , Vol . 9, ew N Yor k, h T e Macm i l l anCom pan y , p.57 4.

47

(2)

I fa u ni ti s soar g le ht atmem ber s of Lo cal Gover nmen t can not r egu l arl y at t en d i t s meet i ngs,ocal l over Gnmen t w i l lt en d t o l oosei t s rep rese nt at i vech arac t er ,

(3)

Wher ev erpossi bl et hatuni tshoul d bebased on nat ur all ocal l oy al t i es, t hou gh t hi s p ri nci pl e w i l l of t en havet o be s acri ficed t o effi cen icy ort ern al at i vel y w e w i l l haveo ta ban don t he d i ea f o progress. Thus,t heessent i alchar act er i st i csofLocalGov er nme ntar e( i )

i t s st at ut oryst at us ( i i )i t s pow er otr ai sefinanceby t axa t i on i n t he areaunderi t s j uri sd i ct i on ,( i i i ) part i ci pat i on of l oc al co mmuni t y i n deci si on mak i ng i n sp eci fied su bj ect s an d t hei r a dmi ni st r at i on ( i v) t he r f eed om t o a cti ndep en den t l y o f cen t r al con t r oland ( v)i t s gen eral 22

purp os e,i n co nt r astt o si ngl e p urp os e,ch ar act er . Thus anal ysi s or e xami nat i on of v ar i ous defini t i ons of Local Gover nmen t gi ve n ab oveev r eal s h tat ocal l gover nmen ti s acom bi nat i on ofvari ou s el em en t s a nd no si ngl e d efi ni t i on i ncl udes l l a oft hem . Theses el em en t s i ncl ude a l oca l st at ut orybod y ,l oca li nhab i t an t s el ect i ng an d con t r ol l i ng t hat bo dy , i l mi t ed au t on om y i n t he se nse t hat st at e gover nmen t s i n a f eder at i on an d cent r algover nmen ti n uni t ary sys t em gi ve h t em a l i mi t ed f r eedom t o per f ormt hei r u fnct i on s pr escr i bed by

l aw , a reco gn i t i on of di st i nct i on bet ween

22

Maheshw ar i , S . R. , “ Localov e Gn rmenti n I ndi a” Agr a, Lak shm i N ar an i Aggar wal ,1984,p.5.

48

l oc aland non l oca l servi ces, and pow er otevy l oca ll t axes. Thus,a l ocal gover nmen t has m an y at t r i but es.

DI MENSI ONS O F THE CO NCE PTSOF LOCALGOVER NMENT Theconceptofl ocalgov er nme ntt husi smul t i di me nsi onal .I t has beenpoi nt ed ou t h tat tis i basi cal l y an organ i zedsoci al en t i t y wi t haf eel i ngofoneness.Thel ocalgov er nme nti sani nt egr antoft he pol i t i cal mech an i sm f or gover nan ce nia cou nt ry . As abod y corp orat e 23

wi t hj ur i s t i c per son,i tr epr esent sa l egalconcept .

Fur t her , Lo cal

Gover nmen ti s anad mi ni st r at i ve con cept , notknow n t o ot herl evel of gov er nmen t , wi t h i t s cou nci l or s i nvol ve d i n mak i ng,unmak i ng an d r em aki ng a dmi ni st r at i ve eci dsi on s n i cou nci l an d i t s com mi t t ees i t w h di r ect bea rn i g o n ci vi l servi ceso t t he oca l l peo pl e a nd now i n nat i on bui l di ng act i vi t i es.Si mi l ar l y ,geogr aphy and demogr aphy ofa l ocal are a al on g w i t h econ omi c act f or s off eri mport an t di men si on s n i t he con cept ual ar t i cu l at i on ofl ocal gove rn men t . Not on l y has t hi s,but al soen vi r on men t , con t ri but edt oi t s b i r t h, gr ow t h an d devel op men t . Wi t h an obj ectt o hav ea compr ehensi v eknowl edgeaboutt he con cept L of oca l Gover nmen t ,i t wou l d be w ort hwhi l e o t di scu ss t s i var i ousdi me nsi onsi nsomedet ai lwhi char eshown:Concept ofLocal Gov en rment – Som e D i mensi on s

Social Political

23

Economic

Administrative Geograpical !egal

M. A. Mut t al i b an d Akb ar Al i Khan ,“ Th e Th eor y of Local Gove r nment ” , New Del hi , St erl i ng Publ i sh er , 1982, p. 13.

49

1)

Soci al Loca l Govern men ti s a n organ i zed soci alen t i t y . Thi s n it urn

devel ops: -

Som e Exa mpl es (1)

Asmal lgr oupofhumanse t t l ementwi t hagr i cul t ur easamaj or pr of essi on

of t he pe opl e and i nade quat e means of

com muni ca t i on i s ch ar act eri zed as aru r all oca l au t hori t y . (2)

A human se t t l eme nt wi t h di v er se pr of essi onali . e. agri cu l t ural i st s and non agri cu l t ural i st s co ex i st i ng al on g wi t h som e m ean s of com muni cat i oni s of t encl assi fiedi n I ndi a,as muni ci pal i t y .

2)

Pol i ti cal Thepol i t i caldi mensi onsofLocalGov er nmentpr esent st oust he

most i mport ant ofi t s con cep t s,

whi ch sihow ever , di ffer en tf r om

50

ot her s,f orm s o f publ i c a gen ci es, i n sp i t e o ft he act f ha t tt hey ave h som e com mon ch aract er i st i cs. Si nce t he op er ai t on al r eed f om t o f ul fil ll oca l

needs dan asp i r at i on s w i t h nece ssary upop l ar a mn dat e s i h te h al l mar k of oca ll govern men t ,i t s it hus a vari an t of dem ocracy, i n sp i t e of t s i var i ance i n f or m. To be mor e speci fic, because of i t s democr at i c ch arac t er ,i ti mpart s pol i t i ca l ed uca t i on of t he l oca l peo pl e.

3)

Econom i c TheconceptofLocalGov er nmenthasaneconomi cdi me nsi onof

muchsi gn i fican ce. A l ocal bod y can pr oveo tb e effi cen it an d eff ect i ve wi t houtmucheffectoft hel ocal i t yi seconomi cal l ysound.I thasbeen poi nt ed ou t h tat h t e ec on omi c ba se of di ffer entcl ass es of ht e com muni t y det erm i nes t he l oca l pol i t i cs. I n I ndi a, f or ni st an ce, a r ur all ocal au t hori t y i s domi nat ed by t he f arm es r,whi l e on ur ban au t hori t y has pr of essi on al l y di ver si fied com posi t i on . The econ om i c

di men si on i n nut sh el l hi gh l i gh t s t he f act s of ht e l oca l aut hori t i es: One, i w t h a bear i ng on t hei r v er y exi st ence as uni t s f or se l f gov er nan ce an d t he ot her t hei r l egi t i mat e pl acei n t he nat i on al dev eop lmen t . The cu mul at i ve eff ect canbe n it he orm f ofpart ner sh i p be t ween gov er nme nt and l ocalgov er nme nt so as t o achi ev et he ul t i mat e g oal of go od l i f e.

4)

Admi ni st r at i v e

I n f act ,t he oca l l go vern men ti s o perat i on al l y an admi ni st rat i ve pol i t i cs, admi ni st r at i on and organ i zat i on wi t h t he n i fluen ce of

51

t ech nol ogy. The oca l l au t hori t i es ave h een b pl aced i n su cha way h t at bot h asuni t sofl ocalsel f gov er nme ntand asagent sofgov er nme nt , t hey may succeed i n ac he i vi ng t he opt i mum

r esul t s wi t hou t

sacr i fici ng t he basi c nor ms ofdem ocr acy . Thi s i s so becau se h t ey con f orm t o t he t wo car di nal ob j ect i vesof u p bl i c ad mi ni st r at i on ; effici en t p er f orm an ce an d r esp on si bl e per f orm an ce. I ni t i al l y , oca l l gov er nment ay m ace f me so p r obl em s,bu t wi t h t he at t ai nment fo mat ur i t y ,l ocal gov er nmen t may r p od uce esul r t s h tatmay com bi ne 24

t he b est oft he w to w or l ds,dem ocr at i c a nd bur eau cr ai t c. 5)

Geogr ap hi cal Wi t ht er r i t or i alj ur i sdi ct i onov erapar t i cul arhumanhabi t at i on,

t he ocal l gover nmen t may e b con cept ual i sed i n geograp hi cal t erm s.The G eog r ap hy n i cl udes, t he eat f ur es i k l e

6)

Lega l Thel egaldi me nsi onoft heLocalGov er nme ntpr esent st wo

t hi ngs n o e,i ti s h te a gen t ofst at e a nd asmuch ,r ep r esen t s p ubl i c

24

M. A.

Mut t al i b, “ Dem oc r acy , B ur eaucr acyan d Te c hnol ogy ” ,

Con cept Pu bl i shi ng C om pa ny , 19 80 , pp . 60 61 .

N ew Del hi ,

52

i nt erest. I n t he c apaci t y o ft he a ge nt of st at e,i t ex erci se s apartof t he sover ei gn t y of h t e st at e del egat ed t o i t wi t hi n i t s geograp hi cal boundar i es.Two,i ti sasel f gov er ni ngi ns t i t ut i on.I nt hi scapaci t y ,i t mustexh i bi tt hr ee qu al i fica t i on s,whi chare exp l ai nedas: -

I n Nut sh el l , t i canbe poi nt ed ou t t hat l egal l y , h te l ocal au t hori t i es canbe descr i bed as cr eat ur esofgove r nmen t . Not on l y t hi s,but ,t he con t en t i on t hat oca ll sel f govern men t s i an i nher en t ri gh t ofl oc al peo pl e s i n o l on gerel h d va l i d. The d evel op i ng co unt ri es, t hat ack l wr on g t r ad i t i on s or f gr assroot s d em ocr acy do notpr esen ta 25

hap py pi cu tr e

I n I ndi a,t he l ocal bod i es havebeendi ssol vedor

su per sed edf r equ en t l y . Thi s sh ow s h te en t den cy f ot he h i gh er evel l of gover nmen tt o d est r oy t s i ow n cr eat ur es. The n eed oft he h ou r s i o t

25

R. W. Madd ox, an d ot her s,“ St at e an d Local Gov en rment ” , Can ada, 1962 , p. 44 5.

53

pr ovi de so me c on st i t ut i on alsa f egu ard s unt i lf avorab l e d em ocrat i c t ra di t i ons stri ke ro ots.

(9)

LO CAL AU TH ORI TI ES UNDER AR TI CLE 12 Ar t i cl e12oft hecons t i t ut i on ofI ndi adefinest het er ms t at ef or

t he pu r poseof uf nda men t al i gh rt s con t ai ned i n part I I I of he t con st i t ut i on whi ch says t hat oca l l au t hori t y i ncl udes a st at e.The sai d const i t ut i on al r p ov i si on has beenuph el d by t he Hon ’ bl e Su pr eme Cour t n i t he cas R e ash i d Ahm ed v . Mun i c i pa l i t y Boar d, 27

26

Kha i r an a

and Aj i t Si ngh V.St at e ofPun w j a h b er ebyi thasbeen

sai d t hat m uni ci pal i t y an d Gr am Pan ch ayat s ar e l ocal au t hori t i es r espect i vel y a gai nstwhom f undamen t alr i gh t s can be en f or ced. The Supr em e C ou rthasf urt her nit hi s con t ext l ai d dow n t he d i st i nct i ve at t ri but esand ch ara ct eri st i csofLoc al Aut hori t U yni i on n ofI ndi a v. 28

. . These are: RC Jai n 1



Theaut hor i t ymus thav esepar at el egalexi st enceascor por at e bodi es.

2



I t mustf unct i on i n a defin edar eaan d mustor di nari l y , whol l y or a p rt l y,di rect l y or ni di rect l y be el ect ed by t he i nhabi t ant s of t he a r ea .

3



I t musten j oy acer t ai n degr ee of au t on om y , wi t h f r eedom t o deci de

f or t i sel f , questi ons o f pol i cyaffecti ng th e a rea admi ni st ered by i t .

28 26 27

AI R 1950SC 163. AI R 1967SC 856.

AI R 1981 SC 95 1.

54

1



I t mus t b e ent r ust ed by s t at ut e wi t h such go v er nment al f unct i on s an d du t i es as ar e usu al l y ent r ust ed t o muni ci pal

bodi es. 2



I t m usthavet he pow er otr ai se f unds f or uf r t her an ce of t s i act i vi t i esand f ul fil l men t oft siproj ects yb l evy i ng t axe s, at r es, ch argesd an f ees. Thus,f undame nt alr i ght sar eavai l abl eagai ns tt hel ocalbodi es

an d canbe en f or cedhr t ou ghcou r t ofl aw .

(35)

WHETHER A MUNI CI PALI TY OR PANCHAYAT I S A PERSON WI TH I N THE MEANI NG OFARTI CLE -14 Ar ef er encet ot heabov equest i onassume ssi gni ficancei nvi ew 29

oft he u fl l ben chdeci si on Mot i n i Lal v.st at e of ,U. Kesho P. Prashad 30

, v.St at e

31

a n d S hi v P r ash ad v.St at e of Punj a b 32

Amr aot i cEl ec t r i cSuppl y Co.v .Di s t r i c t& Sessi on Judge,Amr aot i c . Though,none oft hem r ai sed t he ques t i on whet her i s rel at i on t o i mpugn edl aw ofon e st at e,ot herst ae ts aff ect edbyt hatl aw cou l d be t r eat ed asper son s w i t h i n t he m ea ni ng o f Art i cl e 1 4 ofcon st i t ut i on ofI ndi a. u B t ,t hese ses ca mad e a di st i nct i on bet weent he t r ad i ng act i vi t i es of a st at e an d i t s govern men t al act i vi t i es, pp a aren t l y hol di ng t hat as r egards gover nmen t alact i vi t i es, a st at e was not a person.

29 30 31 32

( 1951) ( i ) Al l 269, ( 51) AA 257 ( FB) . ( 195 5) Nag. 45 9,( 55 ) AN 17 7. ( 1957) Punj ab . 310 ( 57) A. Punj . 150. ( 1952) Nag. 830 ( 53) An. 35.

55

I ti s su bmi t t edt hat ht e p ow ers, ri gh t s,dut i es n a d ob l i ga t i on s o fa st at e ar e unl i ke t hoseof an y ot her er pson , na t ur al or egal l i s not r el evan tt o t he q uest i on whet her ht e st at e s i a per son ,j ustast he act f t he on e corpo r at i on possesses en si ve ext an d an ot her i mi lt ed pow er s s i notr el evan tt o t he q uest i on whet her ht ey r a e b ot h corp orat i on s.I ft he st at e h asr i gh t s a nd ob l i gat i on s h tat ar e u ni qu e,t hat on l y m ean s h tat t he st at e s i a uni qu e p er sonan d t hat or f ht e p ur pose fo Art i cl e 1 4 i n 33

mostsi t uat i ons.I f not nial l , th e sta t e w i l l be acl ass I ni nt er i t m se s l f . of h t e ab ovean al ogy , t i i s su bmi t t ed t hat t he l ocalod b i es l i ke corpo r at i on s,muni ci pal i t i es n a d pan ch ayat s co nst i t ut e auni qu e per son an d t hat or f ht e p urpo se f oArt i cl e 1 4 i n most si t uat i on s f inot i n al l , th e o l ca l bodi es , wi l l be a cl ass n ii t se l f . FORM S OF URBA N L OCA L GOVER NMENT Thenumberofur banLocalGov er nme nthasbeeni ncr easi ngasa r esu l t ofi ncr ease n u ir ban an d su bur ban pop ul at i on . The ol fl ow i ng

t ab l e s how s h te a vri ou s orm f s of ur ban gove r nmen t . Sr . No. For m ofUr ba n Local Gov en rment 1.

Muni ci palCorporat i on s

2.

Muni ci palCou nci l s

3.

Not i fied r A ea om C mi t t ee s

4.

TownAr eaCommi t t ees

5.

Cant onm entBoar ds

6.

Townshi ps. 33 H. M. Seervai ,“ Con st i t ut i on alLa w of I ndi a”, Vol . 1, Fo urt h Edi t i on , 1991, p. 447.

56

CHARACT ERI ST I CS OF L OCAL OV G ERN MEN TS Thedi scussi on r egar di ngme ani ngofl ocalgover nme ntmakes i t cl ea r h t at t here areai n cert ch aract eri st i cs n o whi cht he syst em s o f l oca l govern men t ar e b as ed . Som e of i t s mp i ort an t ch aract eri st i cs r a e as o f l l ow s:(1)

Loc al r A eas :

-A

Loc al

ov G er nment uni t as f ar as i t s

j ur i sdi ct i on i sconcer nedhasawel ldefinedar eawhi ch i sfixed byt heconcer neds t at egov er nme nt .Thi sar eacanbet er me das

a ci t y,a t ow n or avi l l age . The t erri t ori al l i mi t s of a l oca l body uni t are fixed byt he st at e govern men t su bj ect t o ch an gesr om f t i me o t ti me h trou gh l egi sl at i on . (2)

Loc al Aut hori t y:- The a dmi ni st rat i on of a part i cu l ar o l ca l i t y s i r un byan au t hori t y orod b y o f per son s w ho a r e el ect eddi r ect l y by t he peopl er esi di ng i nt hatpar t i cul arar ea.The aut hor i t y whi ch i ncl udes t he el ect ed r epr esent at i v es oft he peopl ei s r esp on si bl e or f a mn agem en t ofl oca l aff ai r s n it hat area.

(3)

Ci vi l Amen i t i es or F oca L lI nhab i t an t s:- The P ri maryob j ect i ve of Lo cal over G nmen t s i t o pr ovi de cer t ai n ci vi c am en i t i es t o t he peo pl e at h t ei r d oo r st ep s.The p r ovi si on oft hese ci vi c a men i t i es en su r es ht e h ea l t hy i l vi ng o fl oca l com muni t y . These servi cesr e a speci fical l y mean t or f t hosei nhab i t an t s who arel i vi ng i n t hat

r es t r i ct ed ar ea f or whi ch t he l ocalove g r nmentuni t h as been creat ed .I t has b een ri gh t l y p oi nt edou tt hat al lt hese

57

amen i t i es h wi chmake i l vi ng b et t er , physi ca l l y,eco nomi ca l l y, soc i al l y a nd cu l t ur al l y sh ou l d be a ssi gn edt o h te oca l l i nhab i t an t s. (4)

Loca l Fi nance: - n I ord er otperf ormi t s f unct i on s eff ect i vel y,i t i s n ecessa ry ht at every oca l lgovern men t uni ti s p r ovi ded wi t h adeq uat e fin an ces. Th e

ser vi ces

pr ov i ded t o

t he

l oc al

i nhab i t an t s a r e a l r gel y financedou t offinances sed rail oca l l y . Thel ocali nhabi t ant sar er equi r edt opayt axesi mposedbyt he con cer ned l ocal au t hor i t y . I t i s

t he

au t hor i t y

of l ocal

gove r nmen t . How eve r , unl i ke ot her ev l es l ofgove r nmen t h tat acc ords ta i u ni qu e p osi t i on amon g corp orat e b od i es, t hi s 34

aut hori t y h as ega l l and co nst i t ut i on al basi s. I nf act, t he l oca l gove r nmen t possess es ev ren ue a rsi ing an d spen di ng au t hori t y on l y o t t he ex t en tt hat t he st at e/ cen t r algovern men t gran t s t i t o h tem . (5)

Local Aut on om y:- Local Aut on om y means t he r f ee domoft he l oca l govern men tt o deci de an d actn i t he sp her e o f act i vi t i es an d f unct i on s al l ot t edt o h tem byt he st at ut e u nderwhi cht hey are creat ed . Amon g ot her ht i ngs, i t mp il i es t he l egal ri gh t of t he n ihabi t ant s o fa l oca l ar ea t o ch oo set hei r e rp r esen t at i ves t o govern t he oca l l i t y co ncern ed , ac cordi ng o tt he aw ls r f amed

byt hel ocalcounci land t oadoptt hebudge t .I ti showever ,t o be 34

O. P. Sri vas t va,Muni cpal i Gov en rment and Admi ni s t r at i on i n Al l ahabad,ChughPubl i cat i ons,1980,p.1.

I nd i a,

58

under sood t t hat ht e au t hor i t i es whi ch have ee b n gi ve n t he r esp on si bi l i t y o t ru n t he oca l l go vern men t ar e n ei t her soverei gn

nor sel f cr ea t eden t i t i es n a d t hey i w l l haveo td ep en d upon t he hi gh er l evel s of gover nmen t or f t hei r cr eat i on , a rn k, pow er s an d f unct i on s. (6)

Lo cal r Pa t i ci pat i on :

-

Th e su ccess or f ai l ur e of

devel op men t al

pl an s a tt he oca l ll evel dep en ds u pon t he a ct i ve art pi ci pat i on of l oc al

pe opl e f or whom t hes e pl an s ar e made.t I s i a l oc al

gover nmen t whi ch pr ovi des n a op port uni t y t o t he ocal l peop l e o t part i ci pat e n i admi ni st r at i on .I ft he g oa l s o f devel op men t have t o beac hi e v ed,peopl e’ spar t i ci pat i oni sapr er equi si tf ori t .

(7)

Local Lead er sh i p: - The peop l e w ho com e u nder t he pu r vi ew of l oca l gover nmen t , esp eci al l y t hosel i vi ng i n ru r al r a ea s, are gen er al l y

i l l i t er at e, i nexp eri en ced , non pr of essi on al

and

unaw ar e abou t t he f unct i oni ng of l oc al bod i es . St r on g l ead er sh i p t her eore f eed ns o t be p r ovi dedt o t hose peop l e.Thi s l ead er sh i p i s p r ovi ded t o t he p eop l e r f om t he oca l l area i n t he sh ap e ofel ect ed r epre sen t at i ve s an d el ect ed officebear er s of t he el ect ed cou nci l s n i r egard t o t he p ol i ci es n a d pr ogram mes oft he gover nmen t . (8)

Lo cal Accou nt ab i l i t y:- Lo cal Gover nmen t uni t s w hi chare eat cr ed

t o pr ovi de ci vi c am en i t i es t o t he peop l e are ccou a nt ab l e t o t he l oca l peop l e.The resi den t s of al oca l area eep k a wat chon

59

l ocalut h aori t i es t o en su r e eff ect i ve per f orm an ce of h t ei r f unct i on s.I fa l ocal bod y becom es ni effici en t an d i s n oti n a

pos i t i on t o provi de sa t i sf act oryserv i cest o t he peo pl e, tia f ces sev ereri t c i ci sm of l oca l resi den t s. (9)

Local Dev eop lmen t : - Local Gove r nments icon cer nedwi t h t he overal l devel op men t oft he p eo pl e i l vi ng wi t hi n i t s a r ea . Every act i vi t y o fl oca l go vern men ti s h teref ore med ai at devel op men t .

Tosum up,i tcanbepoi nt edoutt hati nspi t eoft hel egal au t hori t y gi vent o t he l oca l gover nmen t s;t he i mpover i sh ed st at e of t he finan ces fomost t au hori t i es i n t he deve l op i ng cou nt r i es i s a sev er e h an di capt o r espon si bl e o lcal gove r nmen t si nce h t e b ack bon e 35

ofl ocal gov er nmen t s i fin an ci alau t on om y . Th at si w hy i n I ndi a si nce i ndep en den ce , h te l ocal an fin ce has bee n cr i t i caln il ocal 36 Se gov er nment ef or rms. v er alCom mi ss i onshav e bee n app oi nt ed

excl usi vel y ont he p r ob l em s of l oca l finan ce n si ce ni dep en den ce ot bh byt hecent r alandst at egov er nme nt s. DI ST I NC TI ON B ETW EENLOCAL GO VER NMEN T A ND LOCAL EL SF GOVERN MENT Lo cal Gover nmen t an d Lo cal Sel f gove r nmen ti n ou r cou nt ry si gen er al l y k now n as oca l l sel f govern men t . The erm t s oca l l sel f

35 36

Uni t edNat i on s,“ Cen t r alServi ceso t Lo cal Aut hori t i es” , The H agu e,1962, pp. 1415. Uni t ed Nat i on s, Local “ ove G r nmentRef orm s, An al ysi s of xperi E ence i n Sel ect edCou nt ri es” , New York, 1975, p. 83.

60

gover nmen ti s al egacy t h of e B r i t i sh Rul e w hen t he cou nt ry d di not havesel f govern men t ei t her at t he st at e o r cen t r all evel s.When t he Br i t i sh gove r nmen t d eci ded t o associ at e I ndi an s i n ad mi ni st er i ng l oca l aff ai r s,i t mean t a sl i ceofsel f govern men tf or ht e peop l e.But now t he w or d ‘ se l f ’ has ec bom e sup er flu ou s or edu r ndan t bec au se t he co unt ry has sel f ru l e at al ll evel s. oreover M , l oc al od bi es l i ke Del hi Muni ci pa l Cor por ai t on an d ur ban i mprov em en tt r ust s ar e n ot r ep r esen t at i ve nich ar act er ,t he u se f ot he erm t l oc al sel f go vern men t wi l lnot be pr oper . Despi t et hi s di s t i nct i on,bot ht he t er ms ar e con t i nuedt o b e u sednt er ich an geab l y n i ou r cou nt ry . Thati s w hy h te t er m l oca l gover nmen t an d notl ocal sel f gover nmen ti s u sed i n en t ry 37

5 oft he i l stI I oft he s even t h sch ed ul e o f co nst i t ut i on T oh feI ndi a. t er ms l oc al

se l f gov er nmenti s a val ue l au ded an d vi r t uou s,

som ei t mes i d fficu l t o tj ust i f y whi l e t he t er m “ Lo cal Gover nmen t ” s i mor al ni nat ur e an d pr ef er r ed t o vi r t ue em bod yi ng “ Local el f S 38

Gov en rment ” .

Fr om t he pr ecedi ng di scu ssi on ,

h te di st i nct i on

be t ween l ocal sel f gov er nme nt and l ocal gov er nment can be pr esen t edsp eci fical l y n it he ol fl ow i ng man ner : 1)

The Local Sel f gov er nme nt i s based on t he pr i nci pl e of decen t r al i sat i on ( wi t hdr aw al f r om

cent r e) wher eas l ocal

govern men ti s b ased on t he p ri nci pl e of decon cen t r at i on .

37

38

The Ent r y 5 ofl i s tI I( St at el i s t )oft he se vent h sc hedul er eads:“ Local Gov en rmentt hat s it o sa y , h te co ns t i t ut i on & pow er s of m uni ci pal cor porat i on s, i mprov em ent t r ust s, Di st t . Boar ds,mi ni ng se t t l em ent s au t hori t i es an d ot her l ocalut h a ori t i es f or t he pu r poseof ocal l f sel Govern men t or l vi l agedmi ani st r ati on . Supra ot n e 22 . p. 35 .

61

2)

The Local Sel f gov er nme nt ,t he c har act er of l ocal uni t si s si ngu l ar ecau b se h t ey r a e d et ach ed f r om st at e ad mi ni st r at i ve uni t s as i s t he pr act i ce pr evai l i ng i n Engl an d. But n i l oca l go v er nment , t he

uni t s

hav e

du al char ac t er , as l oc al

gov er nmen t u ni t s an d al so st at e ad mi ni st r at i ve uni t s. Th e Fr en ch om C munesi n Fr an cear e of t hi s y tpe. 3)

I n Local Sel f gover nmen t , st aff i s a ppoi nt edbyan d r esp on si bl e t o r espect i ve l ocal n cou ci l . T he f unct i on ari es do not have posi t i on i ndep en den t oft he oca l l cou nci l . How ever ,i n cas e o f l oc al go v er nment , t he offici al s ar e

appoi nt ed

by and

resp onsi bl e o t ce nt ral aut hori t i es . The o l ca l co unci l s h ave i t t l l e di sci pl i narycon t r oloverem th . 4)

I n l ocal l fse gov er nmen t h ter e i s a con si der ab l e degr ee of au t on om y i n deci si on mak i ng bu t ,l ocal gov er nment s d o not en j oyl oca lf r eed om. To be more eci sp fic,l oca l di scr et i on i s of v er yr es t r i ct i v enat ur e.

5)

I n

l ocal f sel gov er nmen t , t he cou nci l s ar e el ec t i ve an d

r esp on si bl e o tt he oc lal peo pl e a nd l aw . The cen t r al aut hori t i es do nothavehe tr i gh tt o su spen d, su per sede or i d ssol ve h t e l oc al cou nci l s.I n l oc al go vern men t oo t, t he l oc al cou nci l s ar e el ect ed whol l y or part i al l y by t he l oca l cou nci l s areel ect ed

whol l y orpar t i al l y by t he l ocalel ect or at e,butt he somear e su bj ecto tsu spen si on , s uper sessi on or di ssol ut i on by t he co nt rol l i ng a ut hori t i es .

62

To sum up,i ti squi t eevi dentt hatt hemai n asser t i on oft he di ffer en ce et bwee n t he t wo i s t hat ht e sys t em i s based ei t her on dece nt ral i za t i on or eco d ncen t rat i on. How ever ,t he p revai l i ng si t uat i on i s h tat no syst em i s b asedon ei t her of t he w to pri nci pl es ex cl usi vel y. Thi sf acthas al so been hi ghl i ght ed by Her . To hi m, t he man Fi ner mi xt ur e of bot h pr od ucedt he h i gh com pl exi t y o f mod ernl oca l( sel f ) govern men t . Ther e s i n o syst em t o whi ch t he h teoret i cal di st i nct i on be t ween LocalGov er nme ntandLocalSel fGov er nmentma yappl yas 39

su ch . ”

How ev e, rt he si t uat i on i s t hat ht e t er m ‘ Sel f Gover nmen t ’

appears o b te em barr assi ng,f or tihasar ou nd i t sel f a ri ng ofvi rt ue, whi ch i ti s unnecessar yt o cl ai m and an occasi ons,di fficul tt o 40

j us t i f y .

Th at si why i t

Mah es hwar i t hat h t e t er m nat ur e, si t o

h as bee n r i ght l y poi nt ed ou t

byS. R.

‘ Local Gov er nment ’ bei ng a mor ali n

be pr eer fr ed t o

vi r t ue em bod yi ng

‘ Local Sel f -

Gov en rment ” . NAT UREANDSC OPE OF URBANOCAL L GOVERNM ENT Muni ci pa l gov er nmen t an d ad mi ni st r at i ve sino l on ger a si mpl e aff ai r .

t I has bec om e qui t e co mpl i cat ed

and com pl ex wi t h

t he

ph enom enal ncr i eas e i n t he pr oce ss ofr ban ui z at i on an d consequen t spu r ti n t he em eg ren ce of t he u r ban pr ob l em s an d t he n i cr ease n t i hei r f unct i on .I n t he p ost i ndep en den ce er pi od ,i t wasen vi saged t hat nit he

new set up l oca l bod i es as nst ru i men t ofnat i on al pol i cy ou wl d

39

40 Her man Fi ner , Encycl op edi a B ri t an ni ca, p.18 0.

Supra ot N e 38 . p. 60 .

63

beused mor eandmo r eandt her ewoul d bes t eadyi ncr easei nt hei r 41

f unct i on s. Th e scope l ocal of gov er nment s h as h t us b ec om e ve r y wi de and i ncl udes nume r ous ar eas i ni t s spher e of s t udy . The f ol l ow i ng a r eascanbe ea si l y d i scern ed whi ch con st i t ut e h te su bj ect mat t er of i t s st udy. (1)

Ur ba ni sat i onan d Ur banPr obl em s The pr ocess of ur bani z at i on i n I ndi a i s goi ng on at an

accel erat ed pace u d e o t n idust ri al i zat i on , mi grat i on f r om ru ral ar ea s an d t he n at ur ali ncr ease i n pop ul at i on due o t pop ul at i on exp l osi on wi t ht he r esul tt hat t he ur ban popul at i on whi ch cons t i t ut ed 50 mi l l i on att he i t me of i ndepen den ce ad h r each ed350 mi l l i on s b y h te end of as lt cent ur y .

Th e gr ow t h of r u ban i z at i on on suc h an

unp r ec edent ed scal e has conf r ont ed ur ban go v er nment s wi t h gi gant i c u r ba n pr obl em s s uch as n u pl an ned an d hap haz ar d gr ow t h oft ow ns an d ci t i es, unbearabl e st r ai n on ur ba n gov er nmen t s f or pr ovi si on of vi ci l am en i t i es,r affi tc con ges t i on , gr ow t h of u sl ms, sh ort ageofhou ses, scou r geofur ban pove r t y , men aceofpol l ut i on , l ack ofem pl oym en t op port uni t i es c. et (2)

St r uct ur e of Ur ba n Gov en rment s Thel ocalaffai r sofci t i es/t ownsar et o beadmi ni s t er ed by l ocal

i ns t i t ut i on of var i ou s f or ms su c h as Nagar Pan c hayat s, M uni ci pal

Com mi t t ee s, M uni ci pal cor por at i on s an d cant onm entBoar ds, eac h ur ban areas o b e t assi gn edt he orm f ofl oca l gover nmen ti t deser ves by ( Ur ba n) Enqu i ry om C mi t t ee, ( 19 57 ) p. 98 41 Report ofPu nj ab Local Gove r nment

64

vi r t ueoft hecr i t er i al ai d down i nt er msofi t spopul at i on,t er r i t or i al di men si on s an d r ev en ue r esou r ces , depen di ng on t he si z e oft hei r pop ul ati on and t he fi nanci al vi abi l i t y a s p rovi ded i n t he co nst i t ut i on t h

( 74

Amendment ) Act , 19 92.

(3)

Muni ci pal Legi sl at i on Loca l govern men t bei ng ast at e su bj ect i s cr ea t edby h te

concer ned s t at e

l egi sl at ur e, whi ch enact s ap pr opri at e

l aw s

det er mi ni ng i t s st at us an d pr ovi di ng f or t he con st i t ut i on of ht e el ect ed co unci l s,coop t i on an d nomi nat i on ofmem ber s,pr oced ur e of el ect i on ,t ermoft he co unci l , el ect i on and r em ova l ofoffice ea br er s, t hei r p ow er s an d f unct i on s,finan ces, st at e con t r olet c.The vari ou s Act sar eal soame ndedf r om t i met ot i mei nt hel i ghtoft hechangi ng need, oft he u r bangov er nmen t . (4)

Muni ci pa l Per sonn elMan age ment Theur bangov er nment swi t ht hei renl ar gedr esponsi bi l i t i esand

com pl i cat ed finan ci al , t ech ni calan d ad mi ni st r at i ve pr ob l em s r equ i r e effici en t an d wel l qu al i fied per son nelt o var i ou s p osi t i on s.They can be at t r act ed t o muni ci palser vi ceson l y when t heyar e sel ect ed on mer i t , gi vensal ari es, aven ues of pr om ot i on an d ot her con di t i on s of ervi s ce com par ab l e o t h tose ava i l ab l e o t h tei r cou nt er part s n i ot hergovern men t dep art men t s, ht e pr ovi nci al i sat i on of

u mni ci pal

servi cesi n vari ou s

st at es as h no dou bt ,i mpr oved mat t er s o t gr eat ext en t but i t wou l d be desi r abl e o t m erge hetst at e ca dr es f omuni ci pal servi cesn i

65

corr esp on di ng st at e ca dr es. Thi s w ou l d noton l y gi ve apsych ol ogi cal boos tt he l ocalbodi es per sonnelbutt he homogenei t y be t ween t he

st at e gover nmen t an d l ocal gover nmen t sou r ce wi l l al so r ai se t he l evel ofl oc al perf orm ance. (5)

Muni ci palFi nan ce d A mi ni st r at i on Muni ci palgover nmen t s n i or der otbe vi ab l e re qu i r e fi nan ces

com mensu r at e

wi t h

t hei r r es pon si bi l i t i es an d

obl i gat i on bu t

unf or t unat ey lt hey su ffer r om f acu t e pa uci t y off unds.Th e ur ba n gov er nment s h av e n otshow n much apt i t ude f or ffici e ent fina nci al man age ment d ancont r olt her e i s wast age , t her e ar e l eakages of r eve nues, t her e i s ext en si ve under sses a sm en t , sev er al ou sr ce of i ncom e h av e n otbeen t ap ped ,i nab i l i t y has been show n t o i mpose new

t axe s or i ncr eas e t he ex i s t i ng ones . Th e st at e fin ance t h

com mi ssi on pr ovi dedi n t he con st i t ut i on ( 7 A 4 mendment ) Act , 199 2 wi l lensur et hefinanci alvi abi l i t yoft heur ban l ocalbodi eson t hei r r ecom men dat i onbei ng acce pt ed y b st at e gov er nmen t . (6)

St at e C on t r olove r Ur ba n Gove r nmen t s The st at e gover nme nt s exer ci se super vi si on and cont r olov er

ur bango v er nment s t o ensur e mi ni mum s t an dar d ofse r vi ces and pr operper f or man ce of t hei r

f unct i on s

t hr ou gh l eg i sl at i v e,

ad mi ni st r at i ve an d fin an ci alcon t r ol . The ur ban gov er nmen t s ar e

su bj ectotj udi ci al

con t r ol , a l so f or t hei r act s or om i ssi on an d

com mi ssi on . Ur ban cen t er s con t r i but e mmen i sel y o t n at i on al

66

pr osp eri t y . The cen t r alan d st at e g over nmen t s sh ou l d t her eore f act as h tei r ri fen ds a nd ben ef act ors nd a notas t hei r p ow erf ul ri val s o r

di si nt erest edsp ectat i on . (7)

Speci alPur pose gen Aci es Thest at egov er nme nt sont hepr e t extofi nadequaci esof

finan ci alr esou r ces, Lackoft ech ni cal exp ert i se an d i neffici en cy i n t he

per f or man ce

of t he

obl i gat or y

f unct i on by ur ban l oc al

gover nmen t s,cr eat e cer t ai n speci aluni pur poseor m ul t i purpose agen ci es ot p erf ormf unct i on whi chl egi t i mat ey l b el on g o t h te d omai n of ur ba n l ocal gov er nment s.Th es e age nci es i ncl ude i mpr ov em ent t r ust s,wat er u s ppl y a nd sew ageBoards, Hou si ng Boards, Pol l ut i on Con t r olBoa r ds et c.The st udy oft hese r b u an i nst i t ut i on s r egar di ng t hei r co nst i t ut i on f unct i on , pow er , financesan d t hei r rel at i on sh i p wi t h t he ur ban gov er nme nt s and t hei r per f or mance f or ms an i mport an t segm en t oft he sc op e of ur banl ocal gover nmen t s. ( vi i i ) Ur ban Tow n Pl an ni ng The phenome non ofur ban gr owt h has r esul t ed,i n unpl anned, hap hazar d an d ugl y ur ban se t t l em en t s.Pl an ni ng i s t her eor fe n ece ssary t o com bat ht e men ace four ba ni z at i on an d i t s r esul t an t pr ob l em s.An i mport an tf unct i on ofpl an ni ng n i pur el y p hysi cal t erm s s i h te u j di ci ou s use of l an d a sc ar ce com mod i t y n i most ur ban ar eas, an d i t s r ai t on al

an d t i mel y r ese rv ai t on f or uf t ur e use. Road s h aveot be w i den ed, new on es bui l t , si t es ar e r equ i r ed f or sch oo l s,hosp i t al s, gr ou nds,hou si ng,i ndust ry , sh op pi ng,com muni t y

pa r ks and pl ay

67

f aci l i t i es n a d a n umberofot herusesanl d pl an ni ng s i h tus a very essen t i al need . (9)

Mi ni s t r y

of

U r ban Dev el opm ent and i t s At t ac hed and

Subor di nat e O ffices Thecent r almi ni s t r yofur bandev el opme ntsetupi n1985 now kn ow n as m i ni s t r y ofur banaff ai r s an d empl oyment has t he r esp on si bi l i t y o f br oa d f orm ul at i on an d mon i t ori ng o f pr ogram mes ni t he area ofur ban devel op men t , hou si ng,ur ban pover t y al l evi at i on an d ur ban wat er su ppl y . Theser e a essen t i al l y st at e su bj ect s b ut t he Govt . ofI ndi a pl aysa coor di nat i ng an d mon i t ori ng r ol e an d al so supp or t s

t hese pr og r ammes t hr oughce nt r al

se ct or sc hem es ,

i ns t i t ut i on al n fi an ce an d exper t i se . T he at t ached office s of h t e Mi ni st r y ofur ba n aff ai r s a nd em pl oym en t ar e cen t r alpu bl i c w or ks Dep art men t . Di r ect orat e o f Pri nt i ng,Di r ect orat e o f Est at es, Nat i on al Bui l di ng org an i sat i on an d i t s su bor di nat e offi ces com pr i se an ld an d cont r ol l er

Dev el opm ent office,

t own

and coun t r y

pl ann i ng

organ i sa t i on , co nt rol l er of st at i on ery and co nt rol l er u p bl i ca t i on. The co nst i t ut i on and f unct i on ofal lt hese, i nst i t ut i on s w ou l d f orma part oft he st udy of t hosent er iest edi n ur ban an d l ocal gover nmen t s.

(10)

Repor t s of Com mi ss i onan d Commi t t ee s

Thegov er nmentofI ndi ahasbeencons t i t ut i ngcommi ssi ons an d com mi t t eesr om f t i me o t i t me or f t u sdyi ng vari ou s u r ban i ssu es an d f ormak i ng e rcom men dat i onf ort hei r sol ut i onan d passi ng

68

numberofr esol ut i on i n r espect ofmuni ci palgove r nmen t s.The m ost pr om i nent am on g t hem i n t he p r ei ndepend enceer i p od hav e b ee n:

Royal Arm y san i t at i on com mi ssi on( 1863) ,l ord i p R on ' s R esol ut i on on l ocal sel f Gover nmen t( 1882) , Royal com mi ssi on on Decen t r al i sat i on ( 1909) ,

G over nmen t

ofnd I i a Resol ut i on ( 1918) , ax t at i on en qu i ry

com mi ssi on on l ocal t axa t i on an d l ocal gover nmen t( 1925) ,I ndi an st at ut orycom mi ss i on on l ocal l f se gov er nmen t ( 19 29 ) . n I post i ndepe ndence per i od i mpor t an t Commi t t ees ar e: Loc al n fiance en qu i ry com mi t t ee 1( 950) ,t axa t i on en qu i ry com mi t t ee 1( 953) Rur al ur ban Rel at i on sh i p com mi t t ee( 1963) , Admi ni st r at i veReor gan i zat i on co mmi t t ee ( 196 670)and t he l at est nat i onalcommi ss i on on ur ban i zat i on ( 1988) . Si mi l ar l y ,t he st at e g overn men t s h avel so a been ap poi nt i ng com mi t t eeso t l ooki nt o h tei r u r ban aff ai r s.The st udy o f t heser epo r t s wou l d con st i t ut e on i nt egr at ed part of t he scope of ur ban l ocal gove r nmen t s. (11)

Sem i nar s an d C on f er ences Thecent r alc ounci lofl ocalsel fgov er nmenthasbeenor gani z i ng

a n umber of con f er en ces an d se mi nar s m ost not ab l e of whi char e h te Annualconf er ences ofs t at e Mi ni s t er s ofl ocalsel fgov er nme ntand t ow n an d coun t r y pl an ni ng of may or s an d cor por at i onmem ber s.Th e er sw thi l e Mi ni st r y of

urban deve l op men t

conven ed con f er en ce of

muni ci pa l ex ec ut i v e offi ce r s an d Nagar pal i ka sam mel an s ont he ev e of t he orm f ul at i on of Naga rp al i ka Bi l li n, 1989. Si mi l ar l y h te st at e

69

gover nmen t al so hol d con f er en ces of pr esi den t s an d cou nci l or s of muni ci pal s bod i es an d of ht ei r exec ut i ve au t hor i t i es. The ur ban Regi on al cen t er s a nd vari ou s col l egesndauni ver si t i es ol hd sem i nars on var i ou s t hem es of r u ba ni z at i on an d ad mi ni s t r at i on of r u ban ar eas .

A s t udy of h t e pr oc eedi ngs of h t ese se mi nar s ar e of

con si der ab l e ad van t ageoth te offi cal is of ur bangover nmen t s. (12)

Muni ci pa l Ref or ms The cent r al gover nme nt and s t at e gov er nme nt s i n t hei r

concer n t o i mpr ov e u r ba n gov er nment s h av e b ee n consi der i ng t he r ec om mend at i onsmade by var i ou s co mmi ss i ons an d co mmi t t ee s n i t hei r e rsp ect i ve r ep ort s an d t aki ng appr op ri at e act i on i n acc ep t i ng an d i mpl em en t i ng h tem by en act i ng requ i r ed l egi sl at i on wi t h a vi ew t o i ncor por ae t t he nece ssaryan ch gesor f ht e i mpr ove men t oft he const i t ut i on an d f unct i on i ng of r u ba n l ocal bod i es . A mon g t he numer ou s su ch at t em pt s mad e as a se qu ence of t he r epor t s of t he com mi ss i on s an d com mi t t ee s r ef er r ed ab ov e t he i nt r odu ct i on of Naga rpa l i ka Bi l l( 1989) i n t he parl i amen t w hi ch i ncl uded pr ovi si on s ofgr eat gn si i fican ce f or re st r uct ur i ng an d r evam pi ng ur ban l ocal govern men t s s i of great er mp iort an ce. The B i l l was si nce ej r ect ed by Raj ya ab Sha,i t hadagai n bee n pr es en t ed ni1991an d w as pa ss ed as

t h

t he con st i t ut i on ( 74 A mend ment ) Act , 19 92 .I t has sher u ed i n an er a ofsu bst an t i alr ef orm s n i ur ban l ocal gover nmen t .

70

(13)

Muni ci pa l Bur eau cr acy Thest at eBur eaucr acyi sendowedwi t hvas tpoweri nt he

ad mi ni st r at i on ofur ban l ocal bod i es. Dep ut y com mi ssi on er s d esp i t e t he cre at i on ofDi r ect orat e o fl ocal Bod i es n a d t he o ffice f oRegi on al Depu t y D i r ect or s st i l l pl ay apr edo mi nan tr ol e n it he m an agem en t of ur ban aff ai r s. h T e

adm i ni s t r at or app oi nt ed t o

adm i ni st er a

su per sed ed l oca l bod i esas t he del i ber at i ve n a d execu t i ve u a t hori t y . Themuni ci palbur eaucr acyespeci al l yt hemuni ci palcommi ssi oneri n muni ci pa l cor por ai t on i s keyfigu r e i n t hei r ad mi ni st r at i on an d en j oysgr eat er au t hor i t y i n com pa r i sont o t he el ect ed Mayorho w r ep r esen t s th e e l ect edbod y oft he ci t y. (14)

Associ at i onsandUni onsofMuni ci palEmpl oyees Muni ci palem pl oyees gan or i ze ht em sel vesn i uni on att he ocal l ,

st at e and nat i on al l evel s f or th e f urt heran ce of hei tr n i t erest s an d hol d pr ot est meet i ngs an d dem on st r at i on s o t p ut f ort h t hei r dem an ds i n a f or ce f ul w ay an d t o ge t t hes e acc ept ed by t he co nce r ned muni ci pal n a d st at e au t hori t i es by r esor t i ng t o st r i kescau si ng unavoi dab l e i ncon ven i en ces t o t he publ i c.The agi t at i on alap pr oa ch haspr oved t o be su cce ssf ul , man y at i me,i n ge t t i ng t hei r dem an ds accept ed t he l at es t on es ei bng t he gr an t of pen si on er y ben efit s an d grat ui t y o t h tem .

The pr esi dent of muni ci pal commi t t ees and May or s of muni ci pal

co rporat i on s al so con st i t ut e t hei r associ at i on f or t he

prom oi t on of t hei r n i t erest s.

71

(15)

Rol e o f Pol i t i ca l Part i es Desp i t e h te ac ft t hat oca ll i ssu es sh ou l d notbe d eci dedon

part i sa n basi s,pol i t i ca l part i es a p rt i ci pat e n i ur ban go vern men t s b y put t i ng u p t hei r ca ndi dat es niel ect i on and part y sym bol s a r e al l ot t ed t o t hem by t he el ect i on au t hori t i es, f or el ect i on s as t o muni ci pal co r por at i onsan d muni ci pal om cmi t t ee s i n so me st at es an d t he wi nni ng pol i t i calpar t i es el ectt hei r own mayor s and chai r man of muni ci palcor por ai t on /com mi t t ee. ( xvi ) Resea r chan d Eval uat i on Resear ch an d eval uat i on of r u ban pol i ci es, t r at segi es an d pr ogr amme s i of vi t ali mport an ce nit he st udy of ur ban gover nmen t s. The cent r al and s t at e gover nme nt s make pr ovi si ons f or t hese act i vi t i es. Vari ou s u ni versi t i escon ductr esea r chofdi fferen t pr ob l em s ofur ba ni z at i on an d man agem en t ofur ban ar eas. Th ei r fin di ngs can be ut i l i z ed i nt he f or mul at i on ofur ban pol i ci es such as nat i onal ur ban i zat i on pol i cy , Nat i on alHou si ng Pol i cy et c.The eval uat i on of t he p r ogr ammes ni t r odu ce d f ori mpr ov em entfo ur ba n ar eas d an t he l i vi ng

cond i t i on of t hei r r es i den t s

ena bl es t he

concer ned

gov er nmen t s o t makenec es ar y mod i ficat i on an d al t er ai t on i n t hem t o m akehem t mor e e ffec t i v e. ( xvi i ) Com par ai t veUr ban Lo cal Gove r nmen t

Com par ai t ve st udy makes i t possi bl e t o exam i ne t he ext en t o t whi c hsol ut i onadopt edabr oadmaybet akenadv ant ageofathome.I n

72

t hi s cont ext , t he l ocal gov er nment sys t em of n E gl an d ( maxi mum au t on om y t o l ocal gove r nmen t s)USA ( decent r al i sat i on ) an d Fr an ce ( whi ch was on ce ov er ce nt r al i z ed i s si nce i n

t he pr oc es of

decen t r al i sat i on ) arefo si gn i fica nt i mport ance ott he st udy ofur ban l ocal gover nmen ti n on e cou nt ry . Evi den t l y t he uni ver se f our ban l oca l gover nmen ti s very vast , i t s sc opei s v er y wi de an d co mpr ehensi v e, n e co mpass i ng ev er y con cei vabl e i ssue con cer ni ng ur ba ni z at i on , u r ban gr ow t h, u r ba n dev eop lmen t an d r edevel op men t , ur ban i nf r ast r uct ur e,pr ovi si on of ur banbasi c se r vi ce s,ur banpl an ni ng an d ur banman age ment . Th e nat ur e an d sc opeoft he st udy ofur bango v er nment s i s bou nd t o i ncr easei t h wt he unab at ed pa ce of ur ban i z at i on an d t he gro wi ng com pl exi t i es of ur ban pr ob l em s w i t h t he ad van cem en t ofsci en ce an d t ech nol og y . I MPORT ANCE F OL OCALGOVERNM ENT The i mpor t ance of l ocal gov er nment l i es i n sus t ai ni ng t he dem ocr acy .I f dem ocr acyhas t o f unct i on pr op er l y a s man y ci t i ze ns a s possi bl e sh ou l d be en cou r aged an d pr ovi dedwi t h op port uni t i es ott ak e a con t i nui ng i nt er estn ii t s act i vi t i es an d pr ob l em s.I n a dem ocr acy, peop l e h aveot wor k wi t h gr eat pat i en ce an d per sev er an ce. I n t he on lg r un, we may n fi d t hat ht e pr ogr es s ac hi ev ed under uc s h dem oc r at i c

me t hodsi s mor e fi r m an d mor e sol i d t han underot a ti l t ar i an se t up. Peop l e sh ou l d havef ai t h i n dem ocr acyan d i s l i ke r epo si ng f ai t h i n t hem sel ves. Si nce ai f t h su st ai ns p eo pl e' s p at i en ce,

73

peopl e canacqu i r e t hi s f ai t h mor e easi l y t hr ou gh exper i en ce of wor ki ng i n democr at i ci ns t i t ut i ons. Our fir s t Pr i me Mi ni st er Pt . Jawahar l alNehr u,whi l ei naugur at i ngt hefir s tl ocalsel f gov er nme nt Mi ni st ers, con f eren ce ni1948, had sa i d t hat " l oca l sel f go vern men ti s an d mustbe h t e ba si s of an y r t ue sy st em s of dem ocr acy . We h ave got r at her ni t o t he h ab i t oft hi nki ng dem ocr acyat ht e o tp maynotbe 42

su ccess nl ess u you bui l d oni t s ou f ndat i on f r om bel ow . Thei mpor t ance ofl ocalgov er nmentma y bedi scussed under t he ol fl ow i ng h ea ds: 1)

School ofDem ocr acy TheSuccessofnat i onaldemocr acyl ar gel ydependsupont he

su ccess ofdem oc racy tt a he gra ssr oo tl evel . The p r op osi t i on t hat sel f -

go vern i ng oca l l i t i es r a e h te ci t adel s a nd sch oo l s of dem oc racy, has beens t r essedbyanadvi sor ycommi t t eeoft hecommi ssi ononI nt er go vern men t al Rel at i on s U (. S. A) : “ Local ove r g nmen t s ar e t o t ot algov er nmen t what basi c t i ssues ar e t o human body wi t hout t he gov er nme nt woul d hav e no vi t al i t y .Thecount r i es,ci t i es,t owns,vi l l ages an d bo r ou gh s ser ve as t r ai ni ng sc hool s f or t he ead l er s of gover nmen t , an d i n t he aff ai r s of oc lal gov er nmentar e t r i ed t hos e who 43

as pi r e o t st at e an d nat i on aloffices. ”

42 43

Jawahar l alNehr u' saddr esst ot heconf er enceofpr ovi nci alLocalGover nme nt Mi ni st ers, 1948. Anwar Hussai n Syed, “ The pol i t i cal t heor y of t he Ame r i can Local gov er nment ” , New Yor k,Ran domHou se , 19 69 , p.93 .

74

Sym bol i z i ng d em ocr acy ybocal l gov er nmen t oi nt s G. D. H. Col ep ou t :" Dem oc r acy si n ot hi ng u nl esst i mea ns,i n t he a l str ep ort ,l et t i ng t he p eopl e h avehei t r ow n way , noton l y n it he mass, bymean s of an agg r ega t e vo t e n i a nat i on wi de sca l e,but al soi n t hei r esser l p grou s an d soci et i es of whi ch t he grat ersoci et i es are ad e m u p an d t hr ou gh whi ch i ti smadear t i cul at ei n such a way t hatt hel ess cl amor ous 44

voi cescanbehear d" . 2)

Pl at f ormf or Po l i t i ca l and Pop ul ar Educa t i on Lor d Ri pon ' s Reso l ut i on of 1882 emph as i z ed t he need of

pol i t i cal an d pop ul ar ed ucat i on t hr ou gh l ocal gover nmen t .I t s i not pr i mari l y wi t h a vi ew t o i mpr ovem en t n i ad mi ni st r at i on t hat ht ei r measu r e i s put f or war d an d su ppor t ed. I ti s chi eflydesi gn ed asan i nst r umen t of ol pi t i cal nd a pop ul ar edu cat i on .

H i gh l i gh t i ng t he

i mport an ce ofl oca l gover nmen t as naed ucat i on ali nst i t u t i on . Prof

l ask isays. The“ i nst i t ut i on of ocal l

gover nmen t s i ed ucat i on i n

per haps ahi gh erdegree l ea at stcon t i ngen t l y ,t han any ot herpartof gov er nment . And i t mus t be em r em ber ed h t att her e s i n o ot herway ofbri ngi ng t he massofci t i zen s i nt o i nt i mat e con t act i t w h per son s resp onsi bl e f or

45

d eci si ons. ” Local go v er nmentsia sy st em whi ch

en su r es eff ect i ve part i ci pat i on of t ci i zen s i n ad mi ni st r at i on an d makes ht em r ea l i se b a ou tt hei rr esp on si bi l i t i es ow tar ds h te so ci et y.

44 45

G. D. H. Col e,“ Loca l an d Regi on alGover nmen t ” , Lon do n, Cassel l an d Co.Lt d. 1974, p. 64. La ski , Harol d, “ A gram mar of pol i t i cs” , Lon don , Georg e A l l enan d U nwi n, 1961 p. 412.

75

3)

Pr om ot es p S i ri t Of Li bert y A nd Equ al i t y Thel ocalassembl i esofci t i z enssaysDeTocqueVi l l e,addt ot he

st r en gt h off r eenat i on s." Tow n meet i ng areot l i ber t y what ri p mary sch oo l s are t o sci en ce: t heybri ng i t w i t hi n t he peop l e' s r ea ch ,t hey t each men how t o u se an d how t o en j oy t . iA nat i on may es t ab l i sh a f r eegover nmen t but w i t hou t m uni ci pali nst i t ut i on s,i t can not ave h 46

t he sp i ri t o f i l berty .Th e con cept ofeq ual i t y has m an y meani ngs buti nt he cont extofl ocalgov er nmenti tma y enhanceequal i t y by pr ovi di ng ac cess t o pol i t i cal ffice o an d pol i t i cal ct a i vi t y f or wi der 47

gr ou ps of peop l e h tanare accom mod at edt hr ou ghnat i on alpol i t i cs. 4)

Effect i ve ol Sut i on ofLoca l Pr ob l em s Al lt hepr obl emsar enotsupposedt obesol v edbyt hecent r aland

st at e gover nmen t s.I n f act ,t her e a r e som e p r ob l em s w hi choccu r at t he l oca ll evel an d needt o be so l ved l oca l l y n i accorda nce i w t h l oca l need s, at mosph er e,envi r on men t an d wi sh es of t he p eopl e.To be acqu ai nt ed wi t h al lt hese t hi ngs,t he gov er nmentshal lhav et os t ep down t ot he l ocal ev el li n or der ot sol ve l ocal probl em s i n an eff ect i ve man ner .

J.La ski Accor di ngt oH. " we ca nnot r eal i ze ht e u fl l ben efi t s o f dem ocrat i c gover nmen t , unl ess ew b egi n byt he ad mi ssi ont hatal l pr ob l em s ar e n ot con t r olpr ob l em s,an d t hatt he e rsu l t s of pr ob l em s n i

46 47

Al exi sdeTocquevi l l e,“ Demo cr acyi n Ame r i ca” ,t heHencyRee veTextPhi l l i ps. Brad l ey ed ( n. ) New York , Al f r edAKnop f . 1953, p. 61. Wi l l i am Hampt on,“ LocalGover nme ntand Ur ban Pol i t i cs” ,( 2nd Ed. )London Lo gm an ,( 1991) , p. 3.

76

t hei r n i ci den ce requ i r e d eci si onat t he p l ace n a d by th e p er son s, wher eandbywhom t hei nci dencei smostdeepl yf el t .

5)

Provi desCi vi l Servi ces Local er gov nmen t n ist i t ut i on per f or m

numer ou s f unct i on t o

pr ovi de ci vi l amen i t i es ott he i nhab i t ant s.The servi ces perf orm edby t hese bod i es ncl iude ga rb age ol c l ect i on, cl ea ni ng o f st reet s,drai nage, el ectr i ci t y,wat er su ppl y,fire servi ces , h ea l t h servi ce et c,

are very

i mport ant or f go od ci vi ll i f e. oreover M R. Ar gal op i nes ht atf r om t he pr enat aldayst o even af t er ea dt h, t he muni ci pali nst i t ut i on s serve us,bu t w e maybe ut t er l y i gn or an t oft he com posi t i on oft he t ow n co unci l , we rea l i set hat i mport anceofl oca li nst i t ut i on on l y when i t s 48

serv i ces t he w at er su ppl y,sca ven gi ng etc. f ai l . 6)

Redu cet he B ur denofWor k ofSt at e/C ent r alGov en rment Al ar genumberoff unct i onsar eper f or medbyl ocalgover nme nt

whi c h ot her wi se woul d hav e been per f or med by cent r al /s t at e gover nmen t . Thi s,l oca l gover nmen t n ot on l y pr ovi des cert ai n essen t i al serv i cest o t he peop l e,but al so r ed ucest he bur den ofcen t r al /st at e govern men t as w el l .I ft he cen t r al /st at e govern men ti n over oa dl edwi t h wor k,i tbecomesi ncompe t ent ,i n capabl eand i neffici entt oper f or mi t s dut i es. Ther eore, f l oca l govern men ti s n ecessa ry or f ht e d evel op men t of

i ni t i at i ve n a d i nt erest ofl oc al masses i n go vern men t and r esp on si bi l i t y. Loc al go vern men ti s ani nva l uabl e soc i o-po l i t i ca l I ndi a”, ( 2nd E dn. ) Al l ah ab ad , 1960, p. 1. 48 R. Ar gal ,“ Muni ci pa l Gover nmen ti n

77

l ab or ao tryf or t ryi ng an d t es t i ng on a sm al l s cal e, ari vou s new pr op osa l s f or govern men t or gan i sat i on an d soci oecon om i c pol i ci es. 49

I ti s aperse ve re f ol oca l co l urs nit he n at i onal l i f e. 7)

Chec k agai nstBur eau cr acy Thecont r olofbur eaucr acyov ert hecommuni t yi ncr easesi nt he

ab sen ce of a st r on g oca l l gover nmen t syst em . A cen t r al i zed syst em of ad mi ni st r at i on , even t hou gh dem ocrat i c,r esu l t s i n con t r ol of t he com muni t y b y b ur eau cr acy. The i r gi d beh avi or of bur eau cr as t argel l y eff ect s h te p eop l e' s n i i t i at i ve an d t hei r con fiden ce nit he govern men t . The t r ansmi ssi on of power sf r om bur eaucr at st o demo cr at i cal l y f or med l ocal gov er nmenthas posi t i v el y chec kedt he i nflu ence of bur eaucr acy .Ven as ri gh t l y rem arked ,“ on e o ft he vi rt ues of ka t ar ao h l ocal gov er nmen t s i t he easy i nt i macyan d r ead y acce ss t o l ocal gover nmen t offici al s. ” 8)

Local Gov en rmen ti s E con om i cal Theper f or manceofanygov er nme ntwhe t hercent r alorl ocal

l argel y dep en ds u pon ava i l ab i l i t y offinances. I n perf orm i ng u fnct i on s byl ocalgover nme nteconomyi ssecur ed becausel ocalf unct i onsar e per f orm ed by l oca l au t hori t i es ou t ofhe tf unds r ai sedl ocal l y by l ev yn i g t axe s.

W hen t he l oc al eo ppe l ar e ent r ust ed wi t h t he

man age ment of l ocal aff ai r s,t hey i w l l man agehem t at ht e l ow es t

cost becau se ht ey kn ow t hati ti s h tei r mon ey h w i chi s spen t on l oca l Yor k,1958.p.484. 49 Ran ney , Aust i n, “ Gove r ni ng of man ” , New

78

servi ces, t her eore, f t hey em rai n con sci ou s o t m ake servi ces ore m econom i cal an d avoi d wast age.

TheWi ddi cambecommi t t eeont heconductofl ocalAut hor i t y Busi nes s su mmar i es ht e cas e h tus: Thev al ueofl ocalgov er nments t emsf r om i t st hr eeat t r i but esof :

1)

Pl ur al i sm , t hr ou gh whi ch i t cont r i bu t es t o t he nat i on al pol i t i ca l sy sem t,

2)

Part i ci pat i on ,t hr ou gh whi chi t con t ri but es ot oc lal dem oc racy,

3)

Resp on si ven ess, t hr ou gh whi ch i t con t ri but es ot th e p r ovi si on 50

ofl oc al need s h tr ou ght he d el i very f servi o ces. 9)

Tr ai ni ngGr oundf orEme r gi ngLeader s Lo cal gover nmen t s i al so on i nval uab l e t r ai ni ng gr ou nd f or

em ergi ng ea lders, who af t er acq ui ri ng ex peri en ce nit he a rtofpol i t i cs an d gov er nmen t athe tl ocal l ev elr i se as su ch t o t he st at e an d nat i on all eve l .I n ou r cou nt ry ocal l gover nmen t s h ave prod uced an my l eader s ofnat i on alem i nen ce an d st at ur e l i ke Fer oze sh ah Meh t a Mot i l alNehru , Jaw ah ar l alNehru , Subh ashChan dr a Bose , Val l ab h BhaiPat e, l La l La j pat ai R et c,who are i sh nni ng exam pl es of sob er and hea l t hy l oc al pol i t i csand rest ored t o t hese l oc al i nst i t ut i on s,t he 51

aut hori t y an d di gn i t y h tey eserved. d T hese exa mpl es ust ji f y h te

50 51

Theconductofl ocalAut hor i t yBusi ness" wi ddi combe"Repor t ,HMSO,1986, p. 47. P. R. D ubh ashin i hi s f or ew ar d t o S. L Kau shi k' s " Leader shi p i n ur ban governm en t s n iI ndi a," Al l ah ab ad , Ki t abMah al , 1986.

79

maxi m t hatt he best sc hool ofdem ocr acy d an t he best gu aran t ee or f i t s su ccess i s h te p r act i ces ofl oca l go vern men t . 10)

Effici ent an d Effec t i veMan agem ent ofLocal Affai r s Local gover nmen t bei ng con cer nedgen er al l y w i t h t he w el f are of

t he peop l e deal s mai nl y wi t h t heseun f ct i on s whi ch con t r i but e t o soci oecon omi c d evel op men t oft he cou nt ry .I t bei ng m or e con ver san t and conc er ned wi t h t he l oc al

pr obl ems as com par ed t o t he

gov er nment nit he capi t al , c an man aget he l oc al

aff ai r s mor e

effici en t l y an d eff ect i vel y . 11)

Chann el ofCom muni cat i on be t ween t he St ae t Gov er nment andhe t o Cmmuni t y Local gov er nmen t ser ve s as a an ch nelofcom muni cat i on

be t ween s t at egov er nme ntand t hecommuni t y .Thedemandsmade byt hel ocalcommuni t yar eon t heonehandt r ansmi t t edt ot hes t at e gover nmen t ,t he cr eat or of l ocal gover nmen t an d on t he ot herhan d, peopl e i l vi ng n i f ar flu ng ar eas com e o t k now ab ou tt he gov er nmen t pol i ci es an d

pr ogr ammes t hr ou gh l oc al bod i es . Th i s, l oc al

gover nmen t , en su r es ose cl l at re i on sh i p bet weent he p eop l e a nd t he hi gh erl evel ofgover nmen t s h tr ou ght he devi ce of com muni cat i on . 12)

Mi t i ga t i on oft he E vi l s of Part y S yst em Pol i t i cal part i es ave h wal aysnfl i uen ced t he d em ocracy oton nl y at t he st at e a nd nat i onal l evel , but

at t he o l ca ll eve l as w el l bec auf se unct t i on is w i t hout t he p ol i t i ca l i s n otpossi bl e or f em d ocracy t o part i es .

80

Local gov er nmentn i ur ba n ar easniEngl an d has ee bn oper at i ng on part y i l nes. But we n iI ndi a a dvoca t e h te avo i dance f opart i ci pat i on of

pol i t i cal part i esi n l oca l bod i esast heybr i ng i n t he man agem en t of l oc al aff ai r s, h t e ev i l s usual l y at t r i bu t ed t o f unct i on al i sm ,

t hem suchas

gr ou pi sm , avor f i t i sm an d nepot i sm .

T he r ol e of

pol i t i cal art pi es as su ch i s t her eor fe not en cou r agedi n

l ocal

gov er nment s and t hus h te y ar e e xpect ed o tr em ai n i mmune r f om t he evi l s of part y sy st em . CONC LUSI ON Lo cal gove r nmen t mean s h te ad mi ni st r at i on oft he aff ai r s of a l oca l i t y n i ur ban and ru r al areas by t he p eop l e h tr ou gh t hei r el ect ed r epr ese nt at i ve s.I t may be des ci r bed as gov er nmen t bypop ul ar l y el ect ed bod i es ch arged wi t h t he ad mi ni st r at i on an d execu t i ve u d t i es i n mat t er s con cern i ng t he i nhabi t ant s of ht e part i cu l ar di st ri ct or pl ace nd a ve sed t wi t h pow er s t o makebyeaw l s f or ht ei r gu i dan ce . The ur ban l ocalgover nme ntoper at es i nt owns and ci t i es t hr ough Muni ci pal Cor por at i ons,Muni ci pal Com mi t t ee s,

Can t onm ent

Boar ds, Tow n an d N ot i fied r ea A om C mi t t ee s. Thescopeofur ban l ocalgov er nmente xt endst ot hes t udyoft he ph enom enon of r u bani z at i on and i t s pr obl em, ur ban pl ann i ng,

st r uct ur e of r u ban gov er nmen t s an d t hei r cl assi ficat i on , m uni ci pal l egi sl at i on , per son nelman age men t , finan ci aladmi ni st r at i on , st at e oca l l rel at i on s,sp eci al purp os e ag en ci es, orga ni sa t i on and f unct i on of

81

t he uni on Mi ni s t r y of ur ban Affai r s and Empl oym ent and i t s subor di nat e and at t ac hed

depar t ment s

office s,

as al so t hat of h t e St at e

of ur ban l oc al go ver nment ; Repor t of var i ous

co mmi ss i onsan d co mmi t t ee s app oi nt ed f r om t i me t o t i me by t he cen t r alan d st at e gove r nmen t s t o st udy t he var i ou s asp ect s oft he wor ki ngofur ban l ocalgov er nme nt sand t her ecommendat i on made by t hem,muni ci palbur eaucr acy ,r ol e ofpol i t i calpar t i es,r esear ch an d eval uat i onan d com parat i veur ban l ocal gover nmen t s. 52

I n t he ca seMa f o t hr a Dass et Si a v.Sat e of Punj a t h b e Pu nj ab an d Haryan a H i ghCou r t hel d t hatt he ack l ofFi nan ci alr esou r ce as w t h

on e of t he m ai n r eason f ort heam 7 4 en dmen t oft he con st i t ut i on .I t was made t o pr ovi de f or t he sound finance ofmuni ci pal i t i es by secu ri ng aut hori zat i on f r om st at e l egi sl at ur es f orgran t i nai d f r om t he con sol i dat ed f und as l so a ssi a gn men tt o o r ap pr op ri at i on byt he muni ci pal i t i esoft he reven ues f odesi gn at edt axes, t ol l s a nd f ees. The l ocalod b i es ar e se en as i nst i t ut i on of l egi sl at ur e hast o makel aw s t o end ow

sel f gove r nmen t .

T he

t hem wi t h pow er and

au t hori t y so as o b t e ab l e o t p r ep are pl an s or f con e om i c d evel op men t an d so cal i j us t i ce an d t o i mpl em ent h sc em es . Ev en t he fin an ce com mi ssi on as con st i t ut ed under r A t i cl e 243Y of on cst i t ut i on of I ndi a has t o r evi ew t he finan ci alposi t i on of ht e muni ci pal i t i esan d

makeec r om mend at i on s e rg ar dn ig h te m easur esnee dedt o mpr i ov e 52 2002 3) ( RCR ( Ci vi l ) 571.

82

t he fi nan ci alposi t i on .I t hasf urt her been hel d byt he H on ' bl e C ou rt t hat ht e con st i t ut i on has speci fical l y amen ded i n t he year 992 1t o

empo wer t he st at es t o makel aw s so as t o ensur e t hat he t muni ci pal i t i es ecom b e eff ect i ve nst iru men t s of l oca l sel f govern men t . Part XI A of con st i t ut i on of nd Ii a cl ea ry l vi su al i zes t he muni ci pal i t i es as n ist i t ut i on f or econ om i c d evel op men t an d soci alj ust i ce, sch ed ul e 12 enu mer at es t he f un ct i on t hat can be ent r us t ed

t o t he

muni ci pal i t i es. The si gni ficance or i mpor t ance ofur ban l ocalgov er nment si n I ndi a h as co nsi der ab l y n i cr eased i n t he p ost i ndep en den ce a erw i t h t he i nau gu r at i on oft he C on st i t ut i on em bod yi ng h te p r i nci pl es of dem ocr acy an d Wel f ar e St ae t an d em ph asi z i ng upont he gov er nment s i n ur ban are as ot p r om ot e soci alan d econ om i c devel op men t .