CHAPTER 8 – LOCAL GOVERNMENTS

Introduction

1. Local Government refers to government at the grassroots level — in villages, towns, and cities.
2. It is the third tier of government in India, after the Central and State Governments.
3. It enables citizens’ participation in governance and brings administration closer to the people.
4. The idea of local government is rooted in the principle of democratic decentralisation — sharing power from top to bottom.
5. Local governments handle issues of local importance, such as sanitation, roads, water supply, education, and health.
6. They ensure that decisions are made with a better understanding of local needs and priorities.
7. Local governance is vital for inclusive development, as it gives representation to all sections of society, including women, Scheduled Castes (SCs), and Scheduled Tribes (STs).
8. The concept reflects Mahatma Gandhi’s vision of Gram Swaraj, meaning self-governance at the village level.
9. Local governments act as a training ground for democracy, allowing citizens to understand public affairs.
10. They also reduce the workload of higher governments by managing local issues directly.

WHY LOCAL GOVERNMENTS?

1. Democratic Decentralisation:
   • Local governments bring democracy to the grassroots level.
   • They enable people to directly participate in decision-making.
2. People’s Participation:
   • Citizens are actively involved in local planning and development.
   • It promotes accountability and transparency.
3. Efficient Administration:
   • Local authorities can handle problems more efficiently because they are closer to the ground reality.
4. Responsive Governance:
   • Decisions are made according to the specific needs of local communities rather than uniform central policies.
5. Empowerment of Marginalised Groups:
   • Reservation in local bodies ensures representation of women, SCs, STs, and OBCs.
6. Developmental Needs:
   • Local governments manage basic civic amenities like water supply, roads, street lights, waste management, etc.
7. Promoting Accountability:
   • Citizens can directly question their representatives in local bodies.
8. Grassroots Democracy:
   • Strengthens democratic values and promotes a sense of ownership among people.
9. Training for Leadership:
   • Local bodies nurture leadership skills and prepare citizens for higher political responsibilities.
10. Reducing Central and State Burden:
    • Delegating local issues allows higher governments to focus on national and state-level concerns.

GROWTH OF LOCAL GOVERNMENT IN INDIA

1. Ancient and Medieval Periods

• Village Panchayats have existed in India since ancient times.
• They performed functions like dispute resolution, maintenance of order, and resource management.
• In the medieval period, especially during the Mughal era, local self-government declined as centralised administration increased.

2. British Period

1. The British introduced local self-government mainly for administrative convenience, not for democracy.
2. Lord Ripon (1882) is known as the “Father of Local Self-Government” in India.
   • He advocated democratic decentralisation through his Resolution on Local Self-Government (1882).
3. Local boards and municipalities were created for sanitation, education, and road maintenance.
4. Indian Councils Act of 1909 and 1919 provided for limited local participation.
5. Despite this, power remained with the British bureaucracy, and local bodies lacked financial autonomy.

3. Post-Independence Period (Before 1992)

1. After independence, local governance continued, but it was not constitutionally protected.
2. Community Development Programme (1952) and National Extension Service (1953) promoted rural development.
3. Balwant Rai Mehta Committee (1957) recommended the three-tier Panchayati Raj system:
   • Gram Panchayat (village level)
   • Panchayat Samiti (block level)
   • Zila Parishad (district level)
4. The committee’s principle: Democratic Decentralisation.
5. Panchayati Raj was first introduced in Rajasthan (1959) and later in other states.
6. Ashok Mehta Committee (1978) suggested a two-tier system and more financial powers.
7. Various other committees like G.V.K. Rao Committee (1985) and L.M. Singhvi Committee (1986) recommended strengthening Panchayati Raj.
8. However, due to lack of political will and uniformity, Panchayati Raj remained weak and irregular.

LOCAL GOVERNMENTS IN INDEPENDENT INDIA

1. Before 1992, local bodies existed under State laws, not under the Constitution.
2. Many states did not hold regular elections; in some, Panchayats were dissolved before their term ended.
3. Local bodies lacked funds, powers, and autonomy.
4. There was no uniform structure across India.
5. To strengthen democracy and ensure stability, the 73rd and 74th Constitutional Amendments (1992) were passed.
6. These amendments provided constitutional status to local governments, ensuring regular elections, powers, and responsibilities.
7. Thus, India formally became a three-tier federal system:
   • Union Government
   • State Governments
   • Local Governments (Rural & Urban)

73RD AND 74TH AMENDMENTS (1992)

Background

1. To give constitutional status to local bodies, the 73rd and 74th Amendments were enacted in 1992 and came into force in 1993.
2. The 73rd Amendment deals with Rural Local Government (Panchayati Raj).
3. The 74th Amendment deals with Urban Local Government (Municipalities).
4. These amendments made local self-government an integral part of the constitutional framework of India.

73RD AMENDMENT – RURAL LOCAL GOVERNMENT

1. Constitutional Provisions

1. Added a new Part IX to the Constitution titled “The Panchayats” (Articles 243–243O).
2. Added Eleventh Schedule listing 29 subjects for Panchayats.
3. Made Gram Sabha the foundation of the Panchayati Raj system.

2. Structure of Panchayati Raj

Three-tier structure:

• Gram Panchayat – Village level
• Panchayat Samiti – Block or Intermediate level
• Zila Parishad – District level

3. Gram Sabha

• Consists of all adults registered in the electoral roll of a village.
• It discusses and approves plans, budgets, and programmes of the Panchayat.
• It acts as the democratic forum of the village.

4. Composition and Elections

• Members are directly elected by the people of the area.
• Chairpersons of Panchayats at intermediate and district levels are elected indirectly by the elected members.
• Term: 5 years.
• Elections to be held within 6 months of dissolution.

5. Reservation

• Seats reserved for SCs, STs, and women (not less than one-third).
• States may also provide reservation for OBCs.

6. State Election Commission

• Conducts elections to Panchayats.
• Headed by a State Election Commissioner, appointed by the Governor.

7. State Finance Commission

• Reviews financial position of Panchayats every five years.
• Recommends distribution of financial resources between the State and Panchayats.

8. Powers and Responsibilities

• Preparation of plans for economic development and social justice.
• Implementation of schemes in relation to matters in the Eleventh Schedule — agriculture, irrigation, rural housing, drinking water, roads, poverty alleviation, health, education, etc.

9. Funds of Panchayats

• Grants-in-aid from State Government.
• Taxes, duties, tolls, and fees assigned by the State.
• Local taxes like house tax, market fees, water tax, etc.

10. Importance of the 73rd Amendment

• Gave constitutional recognition to Panchayati Raj.
• Ensured regular elections and democratic functioning.
• Promoted participation of women and weaker sections.
• Made rural governance more transparent and accountable.

74TH AMENDMENT – URBAN LOCAL GOVERNMENT

1. Constitutional Provisions

• Added Part IXA titled “The Municipalities” (Articles 243P–243ZG).
• Added Twelfth Schedule listing 18 subjects related to urban governance.

2. Types of Urban Local Bodies

1. Nagar Panchayat – For areas in transition from rural to urban.
2. Municipal Council (Municipality) – For smaller urban areas.
3. Municipal Corporation – For large urban areas.

3. Composition and Elections

• Members directly elected by the people.
• Chairpersons elected as per state laws.
• Term: 5 years; elections within 6 months of dissolution.

4. Reservation

• Seats reserved for SCs, STs, and women (at least one-third).
• States may provide for OBC reservation.

5. Metropolitan Areas

• For large urban conglomerations, Metropolitan Planning Committees are formed.
• They prepare development plans for the entire metropolitan region.

6. State Election Commission

• Conducts elections for urban local bodies, similar to rural areas.

7. State Finance Commission

• Reviews financial positions of Municipalities.
• Recommends resource allocation between State and Municipalities.

8. Powers and Functions

• Urban planning, regulation of land use, water supply, waste management, roads, street lighting, public health, and education.
• Responsible for development of housing, environment, and infrastructure.

9. Importance of the 74th Amendment

• Empowered urban local bodies to become self-governing institutions.
• Ensured citizens’ participation in city governance.
• Encouraged urban planning and local accountability.

IMPLEMENTATION OF 73RD AND 74TH AMENDMENTS

1. Achievements

1. Constitutional Status:
   • Local bodies are now constitutionally recognised.
2. Regular Elections:
   • Most states hold elections every 5 years as mandated.
3. Women Empowerment:
   • Over one-third of seats are reserved for women; many states have extended it to 50%.
4. Inclusion of Weaker Sections:
   • Reservation for SCs, STs, and OBCs ensures their participation.
5. Financial Support:
   • States and the Central Finance Commissions allocate funds to local bodies.
6. Grassroots Democracy:
   • People are more directly involved in governance and decision-making.

2. Challenges

1. Limited Financial Autonomy:
   • Local bodies depend heavily on state funds.
2. Irregular Meetings and Poor Functioning:
   • Gram Sabhas often do not meet regularly or lack participation.
3. Interference by State Governments:
   • States retain significant control over local bodies.
4. Lack of Trained Personnel:
   • Shortage of skilled staff affects project implementation.
5. Political and Bureaucratic Influence:
   • Local bodies are often influenced by higher-level politics.
6. Unequal Development:
   • Richer areas perform better; poorer areas lag behind.
7. Corruption and Lack of Transparency:
   • Misuse of funds and poor monitoring persist in some areas.
8. Urban Challenges:
   • Rapid urbanisation puts pressure on municipal services.

Conclusion

1. The 73rd and 74th Amendments represent a milestone in India’s democratic journey.
2. They brought local self-government into the constitutional framework, ensuring decentralisation and participation.
3. Panchayats and Municipalities now serve as training grounds for democracy and instruments of development at the grassroots.
4. Although challenges remain in finance, autonomy, and efficiency, their contribution to empowering citizens and strengthening democracy is undeniable.
5. True success of local governance depends on active citizen participation, transparency, and strong political will.
6. Local governments embody the spirit of “Power to the People” — the essence of democracy envisioned by the Constitution of India.