NATIONAL CONSULTATION ON URBAN GOVERNANCE - KEY FINDINGS FROM 21 STATES India Habitat Centre, New Delhi - Praja Foundation
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NATIONAL CONSULTATION ON
URBAN GOVERNANCE
KEY FINDINGS FROM 21 STATES
India Habitat Centre, New Delhi
22nd and 23rd January 2020ACKNOWLEDGEMENT
Praja has obtained the data by conducting urban governance study in states across
India. Thus it is very important to acknowledge everyone who participated in this study
and provided guidance, especially Elected Representatives (Mayors, MLAs, Councillors),
State/City administrative officials, Individuals, Academicians and Civil Society
Organisations from all states across India.
Praja Foundation appreciates the support given by our supporters and donors, namely
Tree for Life Foundation, Friedrich Naumann Foundation, Narotam Sekhsaria Foundation
and Madhu Mehta Foundation and numerous other individual supporters. Their support
has made it possible for us to conduct our study & publish this report on urban
governance.
We would like to thank Nagrika team whom Praja commissioned the 1 stage of the study
of mapping the implementation of 74th Constitutional Amendment in Cities across India.
We would like to thank National Institute of Urban Affairs for being the knowledge
partner.
We would also like to thank our group of Advisors & Trustees and lastly but not the least,
we would like to acknowledge the contributions of all members of Praja’s team, who
worked to make this urban governance study a reality.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 1NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 2
CONTENT
ACKNOWLEDGEMENT 1
ABOUT PRAJA 5
EXECUTIVE SUMMARY 7
1. PRAJA’S URBAN GOVERNANCE STUDY AND METHODOLOGY 11
1.1 URBAN GOVERNANCE – CURRENT CONTEXT 12
1.2 METHODOLOGY 13
1.3 STATUS OF URBAN GOVERNANCE STUDY 16
2. FRAMEWORK OF URBAN GOVERNANCE STUDY 17
2.1 PRINCIPLE OF SUBSIDIARITY 18
2.2 PRAJA'S FRAMEWORK FOR EMPOWERMENT OF CITY GOVERNMENT 19
3. CONTROL AND EXECUTION OF FUNCTIONS AND FUNCTIONARIES 20
3.1 TYPOLOGY OF 18 FUNCTIONS 21
3.2 STATUS OF DEVOLUTION OF 18 FUNCTIONS 24
3.3 FUNCTIONS CONTROLLED BY CITY GOVERNMENTS 25
3.4 PRESENCE OF MULTIPLE AGENCIES 26
3.5 FACTOID- DISTRIBUTION OF 18 FUNCTIONS IN TERMS OF CONTROL 27
3.6 REPRESENTATION OF CITY GOVERNMENT IN SMART CITY MISSION (SCM) 28
3.7 STATUS OF HUMAN RESOURCES IN CITY GOVERNMENTS 30
3.8 RECRUITMENT OF HUMAN RESOURCES IN CITY GOVERNMENTS 33
4. EMPOWERED AND ACCOUNTABLE ELECTED REPRESENTATIVES 34
4.1 EMPOWERMENT OF MAYOR 35
4.2 EMPOWERMENT OF COUNCILLORS 37
4.3 FACTOID- SUBJECT COMMITTEES 38
4.4 FACTOID-HONORARIUM/ REMUNERATION FOR COUNCILLORS 39
4.5 ACCOUNTABLE ELECTED REPRESENTATIVES 40
4.6 DISTRICT PLANNING COMMITTEE 43
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 3CONTENT
5.. FISCAL DECENTRALISATION 45
5.1 MUNICIPAL TAXATION 46
5.2 STATUS OF STATE FINANCE COMMISSION 47
5.3 OWN REVENUE TO TOTAL REVENUE 48
5.4 PROPERTY TAX AS A MAJOR SOURCE OF REVENUE INCOME 49
5.5 FACTOID- OWN SOURCES OF REVENUE 50
5.6 BUDGET MAKING PROCESS OF CITY GOVERNMENT 51
5.7 BUDGET APPROVAL OF CITY GOVERNMENT 52
5.8 FACTOID- BUDGET MAKING PROCESS FROM PREPARATION TO APPROVAL 53
5.9 FINANCIAL SANCTIONING POWER OF THE CITY GOVERNMENT 54
6. ACTIVE CITIZEN PARTICIPATION AND CITIZEN GRIEVANCE REDRESSAL MECHANISM 57
6.1 STATUS OF WARD COMMITTEE 58
6.2 STATUS OF AREA SABHA 59
6.3 ACTIVE CITIZEN PARTICIPATION 60
6.4 CITIZEN CHARTER 61
6.5 CITIZEN GRIEVANCE REDRESSAL MECHANISM 62
7. ANNEXURE 64
7.1 ANNEXURE 1 - STATE PROFILES 65
7.2 ANNEXURE 2 - CITY PROFILES 67
8. PARTICIPANTS LIST 68
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 4ABOUT PRAJA
2019
Praja Fellowship launched in Delhi
2018
Praja is a non-partisan organisation working
towards enabling accountable governance Organised Visiting Councillor Program for Mumbai
since 1999. Praja empowers citizens to Councillors to visit Kerala; Conducted first residential
participate in governance by providing workshop for newly elected women councillors
knowledge and perspective so that they can
become politically active and involved 2017
beyond the ballot box. It undertakes
extensive research and highlights civic Started a new project 'Transforming Urban Governance' to reform
issues to build the awareness of, and city governance structures.
mobilize action by the government and Praja Fellowship launched in Mumbai
elected representatives (Ers).
2008-2012
Initiated Praja Dialogue; launched CityScan, an online collation of extensive data on
civic and security Issues In Mumbai; Published Councilor handbook; and annual
report cards on MLAs, and Councilors
2005
Published Mumbai Citizen's Handbook to demystify governance in Mumbai; About 2 lakh copies
distributed
2003
Teamed up with MCGM and built its citizen's grievance redressal mechanism, the Online Complaint and
Management System (OCMS), and conducted complaint audits in the ensuing years
1997
Praja, along with the Municipal Corporation of Greater Mumbai (MCGM), created Mumbai's first Citizen Charter
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 5NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 6
EXECUTIVE SUMMARY
The National Consultation on Urban Governance by Praja Foundation was
held on 22nd and 23rd January in New Delhi. The consultation was attended by
Key suggestions
mayors, councillors, member of legislative assembly (MLAs), municipal
corporation officials, civil society organisations, academicians and
practitioners from 20 States and NCT. The consultation was a platform to Ÿ Create constitutionally mandated local list of functions specific
disseminate the key findings of the Urban Governance Reforms Study for City Governments in line with the central and state lists.
conducted by Praja Foundation in 21 states. The study was focussed on Ÿ Institutionalise capacity building programmes for the City
understanding urban governance systems in India and aimed to build Governments to improvise the legislative and administrative
necessary reform agenda. Participants were engaged through panel wise functioning.
discussions focussing on four themes of Praja’s framework on urban Ÿ Find systemic changes necessary in existing coordination systems
governance for empowerment of city government – (i) Control and execution
between the State Government and the City Government where
of functions and functionaries; (ii) Empowered and accountable elected
representatives; (iii) Fiscal decentralisation and (iv) Active citizen control over functions and corresponding powers are transferred
participation and citizen grievance redressal mechanism. The summary of to the cities, while monitoring and holding cities accountable,
discussions held over these themes, which highlighted the issues and rests with the state.
brought out key suggestions pertaining to the current system of urban Ÿ City Governments need to hold complete control over all the 18
governance in the country by multiple stakeholders is shared below. functions specified in the Twelfth Schedule, 74th CAA and other
vital urban functions that need to be planned and executed at city
Control and Execution of Functions and Functionaries level.
Ÿ City Government needs to be authorised to act as a nodal agency
The theme centrally involved discussions on the lack of empowerment of City
Governments in the country. Many expressed that City Governments do not exercising regulatory control over multiple agencies executing
function with autonomy as they lack complete control over primary urban projects in the city to eliminate the issue of coordination between
functions. A common issue raised was the existence of multiple agencies multiple agencies in the city.
operating in the city leading to coordination issues. Moreover, stakeholders
stressed on the lack of accountability of these multiple agencies towards the
City Governments. These agencies are constituted by the State Governments
to execute specific functions in the city. Praja’s study showed that of all the 21 Empowered and accountable elected representatives
cities studied, it experienced involvement of multiple agencies in 7 functions
out of the 18 functions (as specified in Twelfth Schedule of the 74th The limited powers with the legislative wings of the City Governments formed
Constitutional Amendment Act) at the least. Participants also put forth that the main subject of discussion in the session. Poor capacity and challenges
City Governments are lacking the capacity to implement urban schemes faced by newly elected councillors, low remuneration and ward development
and/or handle large scale projects due to acute shortage of resources. City funds allotted to councillors in general and the limited powers held by
Governments facing shortage of adequate revenue to fund projects and Mayors were the main issues highlighted collectively by the participants.
lacking necessary human resources to perform functions was also among the Stakeholders vouched for Mayor’s post to hold powers such as suspension of
crucial highlights of Praja’s Study. officials and filing of Annual Confidential Report of the Commissioner.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 7Some participants also raised concerns that Commissioners and Collectors The need for increasing tax collections and coverage by the City Government
are subjected to implement the orders of the State Government to achieve its was also discussed. It was stressed that mechanisms need to be developed to
own interests, often with limited assistance to councillors for solving their bring new citizens of the city who may have migrated from other villages or
concerned issues or work. On the other hand, it was discussed that councillors cities under the tax collection coverage.
are more accessible to citizens than an MLA or MP. Specialised agencies or
Special Purpose Vehicles do not have any legislative platform to be Also, discussions pointing to heavy dependency of the City Governments on
answerable to the citizen and hence, City Governments are the only the State Government for revision of tax rates and for final approval of budget
accessible entity to citizens to raise complaints. took place. Praja’s study revealed that only 1 out of the 21 states have City
Governments holding independent control over setting tax rates and that 10
States have City Governments dependent on the State Government for final
approval of its budget.
Key suggestions
Ÿ Councillors should leave their partisan interests to unite and
demand their right for powers to effectively practice Key suggestions
responsibilities for bringing positive changes to the
constituencies they represent. Ÿ SFCs need to be formed by having relevant stakeholders and
Ÿ Elected representatives should be trained mandatorily on the members who have a knack and are experienced on the subject
functioning of municipal governance with specific focus on matter.
budgeting, concerned roles and responsibilities, and bye-laws of Ÿ Bring out a constitutional mandate on taxes that can be levied by
council and committee proceedings. the City Governments to achieve self-sufficiency.
Ÿ Create mechanisms to bring young leaders who are ambitious to Ÿ Follow the example of Indore Municipal Corporation for tapping
alter the current municipal governance system, apart from the grants through CSR funding after having faced fiscal issues.
structural changes required to empower City Government as a Ÿ State Governments need to allot grants to municipalities in the
whole. State’s budget provisions, thereby, ensuring fixed grants to be
transferred to City Governments.
Ÿ City Governments need to receive grants from the Central and
State Governments in a predictable rule-based manner and must
Fiscal Decentralisation be authorised with powers to raise their own resources.
Initial round of discussions on this theme revolved around issues associated
with the State Finance Commissions (SFCs) in the country. The issue of most
SFCs not following any predictable rule-based formula to transfer funds to
City Government and not adhering to the recommendations strictly was Active citizen participation and citizen grievance redressal mechanism
highlighted. Another challenge mentioned was the fact that SFC grants are
mostly tied grants, having conditions specified that are not in lines with City Most citizens having low interest in municipal elections, unaware of the
Government’s action plans, ultimately proving difficult for City Governments duties and responsibilities of their ward councillor and bearing the issue of
to access the said grants. accountability due to the division of functions between City Governments
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 8and State Governments were highlighted as main issues. Hence, firstly, citizens need to be Overall Conclusions
aware of their councillors and the platforms that are available for raising their concerns or
issues such as ward committees etc. Participants put forth that platforms such as ward There was a common understanding that emerged from the
committees or RWAs are not only for the purpose of monitoring but also allow bringing in of thematic discussions that cities are the centres for economic
new constructive suggestions which the councillors can adopt. These platforms for citizen change, hence creating strong political leadership coupled with
engagement need to be constituted in the cities as participants remarked that citizens have strengthening of the City Governments was proposed as the way
a right to participate rather than just vote in elections. forward to bring positive developmental changes in cities.
Citizens, on the other hand, need to create a bottom – up
Another main concern raised was that there is no price to pay if ward committees or citizen pressure to push demands and accountability to the front.
charters are not constituted. Hence, there were suggestions that one way to ensure Enabling City Governments to have complete control over
accountability is to upload the minutes of the ward committee meetings for public access. functions and holding them accountable was also one of the
This opened the discussions on the need for data transparency for the public such as important comments that came out. Stakeholders agreed on an
availability of information on ward wise budgets, activities, projects, complaints registered overall note that structural reforms are required as far as 74th
and closed, minutes of council and ward committee meetings etc. An interesting comment CAA is concerned.
was made on galvanising citizen’s participation on local issues through activities in the
public realm such as community spaces, recreational spaces, cultural spaces etc.
Key suggestions
Key suggestions Ÿ Making it mandatory for to-be political leaders to
have a stint in City Governance.
Ÿ Important and relevant public data present in an easy and accessible form can Ÿ Harnessing the potential of private sector for
help citizens be aware and provide suggestions, solutions or feedback. implementation of schemes and projects with overall
Ÿ Actively enforce the constitutional mandate of Public Service Guarantee Act to control in the hands of the City Governments.
strengthen transparency on delivery of services. Ÿ Formulating comprehensive long-term vision city
Ÿ Examples quoted include: plans that are well-integrated and have mandatory
ú Integrated and influential role of RWAs in Delhi. provisions for political parties to strictly adhere to,
ú Andhra Pradesh’s scheme that compensated citizens with money in case of irrespective of change in governments.
non-adherence of Service Level Agreements (SLAs) and an effective
complaint tracking management system being used to strengthen
accountability.
ú Initiatives such as transparency days by the Pune Municipal Corporation The overall message that came across was that new reforms need
wherein citizens can directly meet officials and access relevant records etc. to focus on delegation of powers, devolution of functions,
and holding of Corporator Awards in cities promotes healthy competition effective coordination mechanisms between the State
leading to improvement of performance among the corporators of the city. Governments and City Governments to bring about boost in
revenues and augmenting of resources enabling active
decentralised city governance.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 9NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 10
01
PRAJA’S URBAN GOVERNANCE
STUDY AND METHODOLOGY
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 111.1 URBAN GOVERNANCE –CURRENT CONTEXT
The process of urbanisation is taking place rapidly in India. The Pace at which Indian
cities are expanding poses significant challenges in urban governance. India’s urban
01 population has expanded from 26% of the total population in 1991 to 31% in 2011. It is
estimated that by 2030, more than 40% of the Indian population will be living in cities.
The primary question in this context is whether the existing urban governance
structures in India would be capable enough to respond to the needs of rising urban
population and enable our cities to tackle future problems. At present, the governance
system lacks democratic accountability, is unresponsive to the needs of its citizens,
and is certainly not well positioned to deal with future challenges. Thus, there is an
urgent need to completely transform the way Indian cities are governed and managed,
to make them more democratic, transparent, accountable and responsive to the needs
of its citizens.
Praja Foundation initiated a project in order to understand the implementation of 74th
constitutional amendment, challenges faced by city governments and then to
advocate policy changes that will change the way Indian cities are governed. It is
multiyear project in nature, with research being the bedrock to form a network and
Why mapping the implementation of 74 CAA Is needed?
influence change.
The 74th Constitutional Amendment Act (CAA) was
By March’2020 we will be conducting an Urban Governance Reforms Study to capture
passed in 1992 to give constitutional status to
status of urban reforms in all the states, identify levers and barriers and identify a set
municipal corporations across India. 74th amendment
of recommendations.
seeks to devolve powers and functions to Urban Local
Governments to enable them to act as effective
Our study will create a ‘urban governance index’ and map urban governance status in
democratic units of local self-government. It has been
all the states of the country.
more than 25 years since 74th amendment came into
force, however, devolution of powers and the
As part of the study we will map and meet various stakeholders in all the states across
capacities of city governments are not completely
the country and build a network which will be leveraged as a platform for, knowledge
mapped. There is need to create knowledge repository
sharing, equipping stakeholders, mobilising stakeholders, and advocating for policy
to understand gap between what has been legislated
changes.
(de jure) and what is happening on the ground (de
facto).
In a nutshell the project will enable urban governance to transform a ‘smart city’ into a
‘smartly governed city’ by influencing policy change at a structural and systemic level
to democratise city governments and improve delivery of services.’
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 121.2 METHODOLOGY (1/3)
Mapping the implementation of 74th CAA across 27 states and National Capital Territory
of Delhi in India through our study on urban governance reforms and existing 01
governance and institutional models in place across Indian cities.
Build the evidence and the case for
urban governance reforms
Interviews with key stakeholders to understand the urban governance challenges from
the perspectives of different stakeholders. These interviews would provide richer
insights into the motivations and relationships between the executive and the elected
wing, the challenges key stakeholders face. In each state we will be looking at carrying
out interviews in 1 key city.
Build a network of organisations and Consultations will be held at State and National Level to bring Domain experts,
individuals (thought leaders and key Content providers, Implementation organisations, Key leaders in the government and
influencers) who will champion urban political parties and Influencers for taking forward the learnings and pushing for urban
governance reforms reforms
Urban Governance Index and leveraging network for Policy change
Our study will create a ‘urban governance index’ and map urban governance status in
all the states of the country. It will capture levers and barriers and set of
Policy changes that will transform the
recommendations which will be updated periodically. Through periodic and targeted
way Indian cities are governed
conclaves Praja will leverage the network to facilitate various stakeholders into
thematic groups on common reform agenda/s. The network will be leveraged as a
platform for advocating for policy changes.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 131.2 METHODOLOGY (2/3)
01 Objective: Mapping of the implementation of 74th CAA and
municipal functions The research for the state reports on 74th CAA was undertaken in three
stages.
1. Identify the prevalent institutional structures in different
municipalities Ÿ First, a detailed study of existing literature and relevant municipal
2. Identify the roles and responsibilities of various departments acts was undertaken to understand the context.
and officials (elected as well as administrative) within a Ÿ Second, discussions and interviews were undertaken with multiple
municipality stakeholders across states. Nagrika team visited cities to
3. Map the 18 functions and the role of city governments and understand the experience of decentralization in cities in India.
parastatals in performing them Ÿ Finally, the field insights were corroborated with secondary
4. Identify key informants in the administrative and deliberative research to develop the report.
wings
Objective: Interviews with Elected Representatives and City The interviews conducted with councillors, executives of municipal
Executive corporations and MLAs which come under jurisdiction of municipal
corporations.
The interviews aim to gather evidence on understanding urban Ÿ First, interviews with stakeholders were conducted.
governance and development from the view of elected Ÿ Second, Transcribing of interviews was done followed by
representatives, the city executive and citizens. It explores the Identification of main themes and sub themes
relationships between these different groups and identifies the Ÿ Finally, Thematic analysis was done and findings from Nagrika
challenges facing Indian cities. reports were incorporated to create urban governance reports
The analysis in the report is based on a sample of participants.
The interviews explore the following themes Ÿ The interviews were qualitative and the figures indicate the number
1. City Government: Composition and Function; of people who highlighted a particular issue.
2. Municipal Finance Ÿ The solutions capture the reflections of different respondents, and
3. Citizen participation and Grievance redressal mechanism. are not indicative of Praja Foundation’s views.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 141.2 METHODOLOGY (3/3)
Sample calculation method 01
Ÿ A sample size of 10% of the total number of MLAs in the city or minimum 2 MLA’s whichever is greater was considered for the study. Similarly, 10% of the
Councillors or a minimum of 3 Councillors per MLA approached, whichever is greater. Table provides an illustrative example for Ahmedabad and
Coimbatore.
Ÿ The stratified random sampling method was used to select Councillors and MLAs. The sample is representative of the gender and party mix.
Ÿ Councillors in key positions are approached if they are not covered in the sample – Mayor/Deputy Mayor, Ward Committee Chair, Standing Committee
Chair, Members of Mayor-in-Council, Chairs of important statutory committees.
Ÿ All Municipal Commissioners are invited to participate + a sample of senior and junior municipal officials selected at random
Elected Representative Calculation E.g. Ahmedabad E.g. Coimbatore
No. of MLAs 16 2
No. of councillors 192 100
MLA 10% of total MLAs in the city or a minimum of 2 (whichever is greater) 2 2
10% of the Councillors (or a minimum of 3 Councillors per MLA approached 19 10
whichever is greater)
Councillor
3 Councillors per MLA approached (or 10% of Councillors whichever is greater) 2x3=6 2x3=6
Executives 1 Executive per 3 Councillors or Minimum 3 3 3
Total sample 24 15
Table provides an illustrative example for Ahmedabad and Coimbatore.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 151.3 STATUS OF URBAN GOVERNANCE STUDY
Build the evidence As a part of the study, total 1,314 interviews
01 and the case for were carried out from November 2017 till
urban governance December 2019 with key stakeholders
reforms including elected representatives,
government officials, civil society experts
Himachal Pradesh from 22 states and 1 National Capital
Punjab Territory
Uttarakhand
Haryana
Delhi
Rajasthan
Uttar Pradesh Consultation and Praja conducted state level
Assam
Bihar Network building consultations for 20 states and 1
Meghalaya
National Capital Territory of
Delhi in India by December
Jharkhand
Gujarat
Madhya Pradesh West Bengal 2019.
Chhattisgarh
Odisha
Maharashtra
Although urban governance study is completed in 22 states and
Telengana National Capital Territory of Delhi, consultations are completed for 20
states and National Capital Territory of Delhi, which excludes Assam
Goa and Meghalaya.
Andhra Pradesh
Thus, analysis in this report is based on 21 geographies including 20
Karnataka
states and National Capital Territory of Delhi.
Tamil Nadu
Kerala
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 1602
FRAMEWORK OF URBAN
GOVERNANCE STUDY
2.1 Principle of Subsidiarity
2.2 Praja's Framework for Empowerment of City Government :
Ÿ Control and Execution of Functions and Functionaries
Ÿ Empowered and Accountable Elected Representatives
Ÿ Fiscal Decentralisation
Ÿ Active Citizen Participation and Citizen Grievance Redressal Mechanism
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 172.1 THE PRINCIPLE OF SUBSIDIARITY
The main idea behind the principle is that a
ral Government
larger or greater body should not carry out Cent
activities which can be efficiently done at
local level by smaller body.
e Government
Stat
The principle of subsidiarity emphasises
02 that central authority should have a
cipal Governmen
subsidiary function, performing only those
ni
Mu
tasks which can not be performed at
immediate or local level.
t
ject Com
Further, it means that the policies should
g /Sub mi
n
di
always be made at lowest possible level and
t
state should legislate when uniform
an
te
regulation is necessary
es
St
ommittees/S
Its relevance C
ab
rd
Wa
City governments should exercise functions
has
which can be carried out efficiently as a
democratic unit of local governance.
Citizen
This means that the 18 functions listed in
74th constitutional amendment which are of
local importance should be carried out by
city governments and central/state
governments should not get involved in
them.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 182.2 PRAJA'S FRAMEWORK FOR EMPOWERMENT OF CITY GOVERNMENT
The framework of urban governance is directive in nature
and throws light on the broad areas of reforms which are
essential in order to make city governments function as
democratic units of local self-governance.
Control and
The Praja foundation believes that empowerment of city Execution of
governments across the country can be achieved through
strengthening the following themes :
Functions and 02
Functionaries
1. Control and Execution of Functions and Functionaries:
The city government should have complete control over
list of 18 functions plus functions of local importance
and their execution through direct control over
Active Citizen
agencies working in the jurisdiction of the city. Empowered and
2. Empowered and Accountable Elected Representatives: Participation and Empowering
Accountable
The mayor and councillors being elected Citizen Grievance City
representatives of people need to be empowered. They Elected
Redressal Government
should be given ownership and held accountable for Representatives
the development of the city.
Mechanism
3. Fiscal Decentralisation: Along with devolution of
functions, control over finances is essential to carry out
functions efficiently. Thus, control over sources of
revenue needs to be completely shifted to city
governments.
4. Active Citizen Participation and Citizen Grievance
Fiscal
Redressal Mechanism: Citizen participation in Decentralisation
governance process plays vital role to ensure
accountability, transparency and make governments
responsive to the needs of people. In addition, robust
grievance redressal mechanism is a must to resolve
issues of people and improve delivery of services.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 1903
CONTROL AND EXECUTION OF
FUNCTIONS AND FUNCTIONARIES
Ÿ Typology of 18 Functions
Ÿ Status of devolution of 18 functions
Ÿ Functions controlled by city government
Ÿ Presence of multiple agencies
Ÿ Representation of City Government in Smart City Mission
Ÿ Status of human resources in city government
Ÿ Recruitment of Human Resources in city governments
The Directive Principles mentioned in the upcoming themes are points for deliberation and consideration as basic principles for
building Urban Agenda at the National Consultation on 22nd and 23rd January 2020
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 203.1 TYPOLOGY OF 18 FUNCTIONS (As per 74th CAA)
Fn no Functions Activities
1. Urban planning including town Ÿ Master Planning/Development Plans/Zonal Plans
planning. Ÿ Enforcing master planning regulations
Ÿ Enforcing building codes
2. Regulation of land-use and Ÿ Regulating land use
construction of buildings. Ÿ Approving building plans/high rises
Ÿ Demolishing illegal buildings
3. Planning for economic and social Ÿ Promotion of economic activities
development Ÿ Ensuring social justice and social welfare
4. Roads and bridges. Ÿ Construction and maintenance of roads 03
Ÿ Construction and maintenance of bridges and flyovers
Ÿ Parking and street lights
5. Water supply for domestic, industrial Ÿ Storage of water and Providing connections
and commercial purposes Ÿ Collection of charges
Ÿ Operation & Maintenance (O&M)
6 a. Public health, sanitation conservancy Ÿ Maintaining hospitals, dispensaries, medical colleges
Ÿ Immunisation
Ÿ Prevention of vector borne diseases
Ÿ Quality of water, food
6 b. Solid waste management Ÿ Garbage collection, segregation and disposal of garbage
7. Fire services Ÿ Establishing and maintaining fire brigades
Ÿ Maintenance of water reservoirs
Ÿ Providing Fire NOC/approval certificate
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 213.1 TYPOLOGY OF 18 FUNCTIONS (As per 74th CAA)
Fn no Functions Activities
8. Urban forestry, protection of the Ÿ Afforestation
environment and promotion of Ÿ Greenification
ecological aspects. Ÿ Awareness drives
Ÿ Maintenance of natural resources
9. Safeguarding the interests of Ÿ Identifying beneficiaries
weaker sections of society, Ÿ Social Pensions (old age, widow, specially abled)
including the handicapped and Ÿ Providing tools/benefits such as tricycles
mentally retarded Ÿ Housing programs and Scholarships
10. Slum improvement and Ÿ Identifying beneficiaries
03 upgradation Ÿ Affordable Housing
Ÿ Upgradation
11. Urban poverty alleviation Ÿ Identifying beneficiaries
Ÿ Livelihood and employment
Ÿ Street vendors
12. Provision of urban amenities and Ÿ Creation of parks and gardens
facilities such as parks, gardens, Ÿ Operation and Maintenance
playgrounds
13 a. Promotion of cultural and Ÿ Fairs and festivals
aesthetic aspects. Ÿ Cultural buildings/institutions
Ÿ Heritage
Ÿ Public space beautification
13 b. Promotion of Education Ÿ Schools and education
14. Burials and burial grounds; Ÿ Crematoriums and burial grounds (different religions)
cremations, cremation grounds Ÿ Construction and O&M
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 223.1 TYPOLOGY OF 18 FUNCTIONS (As per 74th CAA)
Fn no Functions Activities
15. Cattle pounds; prevention of Ÿ Catching and keeping strays
cruelty to animals Ÿ Sterilisation and anti-rabies
Ÿ Ensuring animal safety
16. Vital statistics including birth and Ÿ Coordinating with hospitals/crematoriums etc. for
death registration obtaining information
Ÿ Maintaining and updating database
17 a. Public amenities including street Ÿ Installation and maintenance of street lights
lighting, parking lots and public Ÿ Creation and maintenance of parking lots
conveniences. Ÿ Creation and maintenance of public toilets
03
17 b. Bus stops Ÿ Deciding and operating bus routes
18. Regulation of slaughter houses Ÿ Ensuring quality of animals and meat
and tanneries Ÿ Disposal of waste
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 233.2 STATUS OF DEVOLUTION OF 18 FUNCTIONS
Madhya Pradesh
Andhra Pradesh
Uttar Pradesh
Chhattisgarh
Uttarakhand
Maharashtra
West Bengal
Tamil Nadu
Karnataka
Jharkhand
Telangana
Rajasthan
Himachal
Haryana
Gujarat
Odisha
Punjab
Kerala
Bihar
Delhi
Goa
Fn. no.
1
2
3
4
5
6a
03 6b
7
8
9
10
11
12
13a
13b
14
15
16
17a
17b
18
City government control Multiple agencies State Control
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 243.3 FUNCTIONS CONTROLLED BY CITY GOVERNMENTS
Functions under City Government
18
The Directive Principle: Transfer of 18 functions as per 17
74th CAA to city governments 16
15
14
Ÿ The 74th constitutional amendment act (CAA), 1992 13
gave constitutional status to urban local governments 12
in India. As per 74th CAA, 18 functions listed under 11
10 9
article 243-W should be devolved to the city 9 8
governments across states in India. 8 7 7 7
7 6 6 6
Ÿ The city government is known as third tier of 6 5 5 5 5
5 4 4 4 4 4 4
government in Indian governance system. As a 4
democratic unit of self-governance, city government 3
should have complete authority to carry out all 18 2
2 2
1 03
functions plus functions of local importance which are 1
0
related to day-to-day life of citizens. Thus, the local
Dharamshala
Mumbai
Kochi
Gurugram
Bhubaneswar
Coimbatore
Ahmedabad
Bhopal
Vijayawada
Panaji
Amritsar
Udaipur
Patna
Delhi
Ranchi
Mangaluru
Warangal
Kolkata
Raipur
Dehradun
Lucknow
functions which are currently under control of state
government/parastatal bodies should be transferred
to city government.
Highlights
Ÿ Not a single city government among 21 cities has control over all 18 functions listed under 74th constitutional amendment act.
Ÿ Mumbai is leading in terms of control over functions as 9 functions are independently controlled by Municipal Corporation of Greater Mumbai
followed by Kochi Municipal Corporation which has control over 8 functions.
Ÿ Out of 21 cities, 8 cities have independent control over more than 5 functions, whereas there are 13 cities who have independent control over 5 or less
than 5 functions.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 253.4 PRESENCE OF MULTIPLE AGENCIES
Functions under Multiple agencies
18
The Directive Principle : City governments should have 17
control over execution of all functions in the city 16 15
15
Ÿ The present of multiple agencies creates coordination 14 13 13
13
related problems, leads to duplication of work and 12 12 12
12 11 11 11
poor service delivery. Thus, it is essential to have one 11 10 10 10 10 10
agency who has control over delivery of all functions. 10 9 9
Being urban local government, municipal corporations 9 8 8
should have complete control over execution of all 8 7 7 7
7
functions in the city area.
6
5
Ÿ All the agencies/parastatal bodies working in the 4
03 jurisdiction of a city, should report to municipal 3
corporation and work under its direction. Therefore, 2
the permission for implementation of projects related 1
0
to 18 functions should be taken from the city
Raipur
Ranchi
Mangaluru
Vijaywada
Patna
Dehradun
Delhi
Udaipur
Kolkata
Panaji
Bhopal
Bhubaneswar
Amritsar
Warangal
Ahmedabad
Mumbai
Dharamshala
Lucknow
Gurugram
Kochi
Coimbatore
government by state government/ parastatal bodies.
Highlights
Ÿ Out of 21 cities, 9 cities experience involvement of multiple agencies in more than 10
functions out of 18 functions and currently, there is no nodal agency to coordinate among
agencies leading to issues in delivery of services.
Ÿ In Raipur, out of 18 functions, 15 functions have involvement of multiple agencies leading
to issues in coordination and resulting in poor service delivery.
Ÿ Ranchi and Mangaluru have involvement of multiple agencies in 13 functions.
Ÿ 12 functions are carried out by multiple agencies in Vijayawada, Patna and Dehradun.
Ÿ Udaipur, Delhi and Kolkata have involvement of multiple agencies in 11 functions.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 263.5 FACTOID- DISTRIBUTION OF 18 FUNCTIONS IN TERMS OF CONTROL
Himachal Pradesh Uttarakhand
DHARAMSHALA DEHRADUN
6 8 4 2 12 4
Haryana
GURUGRAM
Punjab
AMRITSAR 7 7 4
5 10 3 Bihar Jharkhand
PATNA RANCHI
Delhi
DELHI
4 12 2 4 13 1
4 11 3
Rajasthan
UDAIPUR Uttar Pradesh
5 11 2
LUCKNOW
03
1 8 9
West Bengal
KOLKATA
Gujarat Chhattisgarh
AHMEDABAD Madhya Pradesh RAIPUR 4 11 3
BHOPAL 2 15 1
6 9 3
6 10 2 Odisha
Maharashtra BHUBANESWAR
MUMBAI 7 10 1
9 9 0
Goa
PANAJI
Andhra Pradesh Telengana
5 10 3 VIJAYAWADA WARANGAL
5 12 1 4 10 4
Status of Devolution of 18 functions
Karnataka Tamil Nadu
MANGALURU COIMBATORE Functions under City government
4 13 1 7 7 4
Functions under Multiple agencies
Kerala
KOCHI Functions under State government
8 7 3
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 273.6 REPRESENTATION OF CITY GOVERNMENT IN SMART CITY MISSION (SCM)
Representation of city
Himachal Pradesh Uttarakhand
government in the SPV The Directive Principle : City governments should have
DHARAMSHALA DEHRADUN
Mayor control over execution of all functions in the city
Commissioner
Haryana Councillors
Ÿ The Special Purpose Vehicle (SPV) has been created for
GURUGRAM implementation of smart city mission in all cities that
*Mayor and Secretary
Punjab Not part of SCM are a part of the mission. SCM focuses on projects
AMRITSAR related to urban renewal, infrastructure development
Bihar Jharkhand and they are implemented in the jurisdiction of
PATNA RANCHI municipal corporation. However, SPVs are acting as
Delhi
DELHI
independent body and are not accountable to
Not part of SCM municipal corporations.
Ÿ Since city government has equal shareholding along
03 Rajasthan
UDAIPUR Uttar Pradesh with the State government in SPVs, there should be
LUCKNOW
equal representation of city government in SPV’s board
of directors. Moreover, SPVs should report to municipal
West Bengal
KOLKATA corporations for implementation of any project.
Gujarat Chhattisgarh Not part of SCM
AHMEDABAD Madhya Pradesh RAIPUR
BHOPAL
Odisha Highlights
Maharashtra BHUBANESWAR
MUMBAI Ÿ In many cities, SPVs are headed by state government officials
Not part of SCM
and city governments do not have much role in the decision
Goa making process of SCM projects.
PANAJI
Ÿ Out of 21 cities, only Udaipur Mayor is vice-chairperson of SPV’s
Andhra Pradesh Telengana
VIJAYAWADA WARANGAL board of directors.
Not part of SCM Ÿ In 19 cities, Councillors are not part of SPV’s board of directors.
Ÿ Only in Mangaluru and Ahmedabad, councillors are involved in
Karnataka
Tamil Nadu
MANGALURU decision making of SPV board. In Mangaluru, 4 councillors are
COIMBATORE
Kerala members of SPV board whereas in Ahmedabad, 1 councillor is a
KOCHI* member of SPV board apart from Mayor.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 283.6 FACTOID- REPRESENTATION OF CITY GOVERNMENT IN SMART CITY MISSION (SCM)
State City Ratio of state -city Representation of city government in the SPV- Mayor/
representation in SPV Councillors/ Commissioner
Members Councillors
Andhra Pradesh Vijayawada Not part of SCM
Bihar Patna 10:2 Mayor and Commissioner No
Chhattisgarh Raipur 10:1 Only Commissioner No
Delhi Delhi Not part of SCM
Goa Panaji 9:2 Mayor and Commissioner No
Gujarat Ahmedabad 9:3 Mayor, Commissioner, Standing committee Chairperson Yes
Haryana Gurugram Not part of SCM
Himachal Pradesh Dharamshala 12:3 Mayor, Deputy Mayor and Commissioner No 03
Jharkhand Ranchi 8:3 Mayor, Commissioner and Additional Commissioner No
Karnataka Mangaluru 10:6 Mayor, Commissioner and 4 Councillors Yes
Kerala Kochi 9:2 Mayor and Secretary No
Madhya Pradesh Bhopal 11:2 Mayor and Commissioner No
Maharashtra Mumbai Not part of SCM
Odisha Bhubaneswar 14:1 Commissioner No
Punjab Amritsar 12:2 Mayor and Commissioner No
Rajasthan Udaipur 10:2 Mayor as vice-Chaiperson and Commissioner No
Tamil Nadu Coimbatore 13:2 Mayor and Commissioner No
Telangana Warangal 14:2 Mayor and Commissioner No
Uttar Pradesh Lucknow 8:1 Commissioner No
Uttarakhand Dehradun 14:2 Mayor and Commissioner No
West Bengal Kolkata Not part of SCM
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 293.7 STATUS OF HUMAN RESOURCES IN CITY GOVERNMENTS (1/2)
No of employees per 1000 population
The Directive Principle: There is need to build the capacity 20 19
of city governments in terms of adequate and skilled
human resources
15
Ÿ At present, parastatal bodies have skills set and
capacity to carry out functions such as urban planning,
housing, construction of roads & bridges and water
supply etc. and municipal corporations lack such 10
8 8
skillsets. Thus, there is a need to build capacity of
urban local governments through regular training. The 6
state government departments/parastatal bodies 5
5 4 4 4
should work as specialised agencies under the 3 3 3 3
03 direction and control of municipal governments. In 2 2 2 2 2 2 2
1
addition, municipal government should have authority 0.3
to decide whether to carry out delivery of a function 0
through parastatal body or outsource it to any other
Dharamshala
Panaji
Mumbai
Kolkata
Warangal
Udaipur
Ahmedabad
Amritsar
Mangaluru
Delhi
Raipur
Lucknow
Bhopal
Bhubaneswar
Ranchi
Kochi
Coimbatore
Vijayawada
Dehradun
Gurugram
Patna
organisation having required expertise.
Ÿ Moreover, the municipal corporations should have
adequate human resources to carry out service
delivery and have control over recruitment of human
resources. Note: Permanent and Contractual employees data is used for the analysis. However,
contractual data is not available for Coimbatore, Dehradun, Gurugram and Patna.
Highlights
Ÿ City governments lack capacity to carry out functions as they do not have adequate qualified and skilled staff.
Ÿ Municipal corporations from Mumbai and Kolkata have 8 employees per 1000 population to carry out delivery of service.
Ÿ The Gurugram and Patna municipal corporation have around 1 employee to deliver services in the city area.
Ÿ Panaji municipal corporation has 19 employees per 1000 population to deliver services in the city
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 303.7 STATUS OF HUMAN RESOURCES IN CITY GOVERNMENTS (2/2)
Percentage of Vacant Sanctioned Positions
100
81
90
68
80
70
51
49 47
60 46
42
50
36
35 35 34 33 33 32
40
28
30 23 22
03
17 17
15
20 12
10
0
Dharamshala
Gurugram
Ranchi
Warangal
Kolkata
Vijaywada
Raipur
Bhopal
Amritsar
Dehradun
Coimbatore
Udaipur
Mumbai
Mangaluru
Lucknow
Delhi
Bhubhaneshwar
Panaji
Ahmedabad
Kochi
Patna
Highlights
Ÿ Not a single municipal corporation among 21 cities has all sanctioned positions filled.
Ÿ Municipal Corporation of Gurugram has highest vacant positions followed by Ranchi, Warangal and Kolkata.
Ÿ The Municipal corporations in India lack adequate human resources to deliver services to the citizens.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 313.7 FACTOID- STATUS OF HUMAN RESOURCES IN CITY GOVERNMENTS
State City Human Resources No of employees
per 1000
Sanctioned Vacant Vacant % Contractual population
Andhra Pradesh Vijayawada 3,254 1,540 47% 387 2
Bihar Patna 658 82 12% Not available 0.3
Chhattisgarh Raipur 984 457 46% 2691 3
Delhi Delhi 49,737 11,376 23% 3078 3
Goa Panaji 412 72 17% 430 19
Gujarat Ahmedabad 29,663 4,982 17% 27 4
Haryana Gurugram 2,454 1,993 81% Not available 1
03 Himachal Pradesh Dharamshala 202 71 35% 0 2
Jharkhand Ranchi 1,330 904 68% 2124 2
Karnataka Mangaluru 1,725 547 32% 633 4
Kerala Kochi 715 104 15% 799 2
Madhya Pradesh Bhopal 5,686 2,370 42% 1298 3
Maharashtra Mumbai 1,45,742 48,481 33% 3577 8
Odisha Bhubaneswar 1,303 284 22% 1001 2
Punjab Amritsar 6,135 2221 36% 800 4
Rajasthan Udaipur 3,681 1,229 33% 0 5
Tamil Nadu Coimbatore 4966 1,707 34% Not available 2
Telangana Warangal 1,509 772 51% 2983 6
Uttar Pradesh Lucknow 2,620 737 28% 6271 3
Uttarakhand Dehradun 1,501 528 35% Not available 2
West Bengal Kolkata 45,000 22,000 49% 12,000 8
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 323.8 RECRUITMENT OF HUMAN RESOURCES IN CITY GOVERNMENTS
Uttarakhand
Himachal Pradesh The Directive Principle: City governments should have the
DEHRADUN
DHARAMSHALA authority to conduct recruitment process
Ÿ At present, the city governments lack authority to
recruit human resources and they are dependent upon
Punjab Haryana state government for approval. Thus it leads to lot of
AMRITSAR GURUGRAM
vacancies. Being urban local government, cities should
Bihar Jharkhand have the authority to recruit human resources
PATNA RANCHI whenever required to deliver services efficiently.
Delhi
DELHI
Highlights
Rajasthan
UDAIPUR Uttar Pradesh 03
LUCKNOW
Ÿ Not a single municipal corporations has control over
recruitment process. Although Mumbai, Ahmedabad,
West Bengal
Raipur, Bhopal and Coimbatore corporations can
KOLKATA*
Gujarat Chhattisgarh conduct recruitment process, state government is the
AHMEDABAD Madhya Pradesh RAIPUR final sanction authority.
BHOPAL Ÿ In Kolkata, there is a dedicated Municipal Service
Odisha
Commission to conduct recruitment process for
Maharashtra BHUBANESWAR
municipal corporation.
MUMBAI
Ÿ However, municipal service commission is not under
control of municipal corporation and it reports to state
Goa
PANAJI government.
Andhra Pradesh Telengana
VIJAYAWADA WARANGAL
Final Recruitment sanction authority
Karnataka
State Government
Tamil Nadu
MANGALURU COIMBATORE Recruitment process conducted by
Kerala City Government
KOCHI
State Government
*Municipal Service Commission
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 3304
EMPOWERED AND ACCOUNTABLE
ELECTED REPRESENTATIVES
Ÿ Empowerment of Mayor
Ÿ Empowerment of councillors
Ÿ Accountable elected representatives
Ÿ District Planning Committee
The Directive Principles mentioned in the upcoming themes are points for deliberation and consideration as basic principles for
building Urban Agenda at the National Consultation on 22nd and 23rd January 2020
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 344.1 EMPOWERMENT OF MAYOR (1/2)
Directive Principle: There is need to empower the position of the Mayor
Ÿ Municipal Corporations across states are headed by municipal commissioners
who act as chief executive officers. The municipal commissioner isappointed
by the state government. At present, the urban governance model in India
gives executive powers in the hands of municipal commissioners and elected
representatives are left with advisory role. The Mayor being elected
representative and first citizen, people expect Mayor to solve existing issues in
the city. However, Mayors only have a ceremonial role in the functioning of
municipal corporation and lack administrative powers.
Ÿ Thus, there is need to empower the position of Mayor. The Mayor should have
authority to prepare annual confidential report (ACR) of municipal
commissioner which will make the position of municipal commissioner
accountable to the Mayor. Moreover, the position of Mayor should havea
tenure which is co-terminus with term of office of municipal corporation. This
will provide stability to the position of Mayor to take decisions for long term. In
addition, Mayor should be empowered to hold administrative officials
accountable and suspend them if required. Further, the Mayor should appoint
the Municipal Commissioner and the State government can play an advisory
role in the selection process.
04
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 354.1 EMPOWERMENT OF MAYOR (2/2)
Himachal Pradesh Uttarakhand
DHARAMSHALA DEHRADUN
Highlights
Haryana Ÿ Mayors from Municipal Corporations of Kerala are
GURUGRAM most empowered amongst all Mayors from 21 states.
Punjab
AMRITSAR Mayors from Kerala have tenure of 5 years, authority
to prepare ACR of commissioner, suspend officials
Bihar Jharkhand
PATNA RANCHI
from corporation and possess administrative control
Delhi over the functioning of municipal corporations.
DELHI Ÿ Mayors from Rajasthan, West Bengal are also
empowered to some extent and have control over
administration of municipal corporations.
Rajasthan West Bengal Ÿ Mayors from 16 states are ceremonial head of
Uttar Pradesh KOLKATA
UDAIPUR
LUCKNOW municipal corporations and lack administrative
powers.
Ÿ 6 cities have directly elected Mayors by citizens,
whereas in 15 cities Mayors are indirectly elected by
Gujarat Chhattisgarh
RAIPUR
councillors.
AHMEDABAD Madhya Pradesh
04 BHOPAL Ÿ Mayors from only 6 cities namely Kochi, Udaipur,
Dehradun, Lucknow, Kolkata, Dharamshala have
Odisha
Maharashtra BHUBANESWAR authority to prepare ACR of municipal commissioner.
MUMBAI Ÿ Mayors from 6 states do not have stable tenure of 5
years.
Goa
PANAJI
Andhra Pradesh Telengana
VIJAYAWADA WARANGAL
Mayoral System and key deliberative bodies
Election of Mayor Indirect Direct
Karnataka
Tamil Nadu
MANGALURU COIMBATORE Term of Mayor: 5 Years State government does not have
Kerala authority to appoint, remove or
KOCHI Annual Confidential Report authority suspend Mayor
Authority to suspend officials No Empowerement
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 364.2 EMPOWERMENT OF COUNCILLORS
Honorarium/ Remuneration
Himachal Pradesh Uttarakhand
DHARAMSHALA DEHRADUN Yes
Directive Principle: Councillors should be part of key
Allowances
deliberative committees
Yes
Haryana Member of at least one No honorarium
GURUGRAM Ÿ Councillors being elected representatives of people,
deliberative committee and allowances
Punjab mainly have an advisory role in the governance
Yes
AMRITSAR processes. There is need to ensure that councillors are
Bihar Jharkhand involved in the decision making process of the
PATNA RANCHI municipal corporation.
Delhi
DELHI
Ÿ All Councillors should be part of at least one key
deliberative body like standing committees, subject
committees etc. so that they can participate in
Rajasthan
UDAIPUR Uttar Pradesh decision making process, initiate proposals for
LUCKNOW development of wards and discuss issues faced by
people from their respective wards.
West Bengal
KOLKATA
Gujarat Chhattisgarh Ÿ Councillors should be entitled to honorarium, sitting
AHMEDABAD Madhya Pradesh RAIPUR allowances and should get office and staff.
BHOPAL 04
Odisha
Maharashtra BHUBANESWAR
MUMBAI Telengana
WARANGAL
Highlights
Goa
PANAJI
Andhra Pradesh Ÿ Councillors are part of at least one deliberative committee only in 6 cities of
VIJAYAWADA Vijayawada, Raipur, Dharamshala, Kochi, Bhubaneswar and Udaipur out of 21
Ÿ Councillors do not get honorarium in Delhi, Bhubaneswar, Lucknow, Dehradun,
Karnataka
Tamil Nadu Coimbatore.
MANGALURU COIMBATORE Ÿ Mumbai councillors get honorarium Rs. 25,000 which is highest among all 21 cities
Kerala
followed by Amritsar councillors with an honorarium of Rs. 17,000.
KOCHI
Ÿ Councillors from Ranchi get allowance for office, staff in addition to honorarium.
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 374.3 FACTOID- SUBJECT COMMITTEES
State City Key Deliberative bodies Status Subject Committees
#
Provision Status
Andhra Pradesh Vijayawada Standing Committee Active 11 Special Committees Active Yes
Bihar Patna Standing Committee Active To be decided by council Not constituted No
Chhattisgarh Raipur Mayor-in-Council Active 14 Advisory committees Not constituted Yes
Delhi Delhi 4 Statutory Committee Active 12 Special Committees Active No
Goa Panaji Standing Committee Active 3 Special consultative committees Non-functional No
Gujarat Ahmedabad Standing Committee Active 11 Special Committees Active No
Haryana Gurugram Finance Committee Active To be decided by council - No
Himachal Pradesh Dharamshala 3 standing committees Active No - Yes
Jharkhand Ranchi Finance Committee Active No - No
Karnataka Mangaluru 4 Standing committees Active - - No
Kerala Kochi 8 Standing Committees Active - - Yes
Madhya Pradesh Bhopal Mayor-in-Council Active No - No
04 Maharashtra Mumbai 3 Statutory Committees Active 6 Subject committees Active No
Odisha Bhubaneswar 10 Standing Committees Active - - Yes
Punjab Amritsar Finance and Contract committee Active To be decided by council - No
Rajasthan Udaipur Executive Committee Active 21 subject committees Yes- irregular meetings Yes
Tamil Nadu Coimbatore 6 Standing Committees - - - No
Telangana Warangal No - No - No
Uttar Pradesh Lucknow Executive Committee Active 4 Special committees Non-functional No
Uttarakhand Dehradun Executive Committee Active 4 Special committees Non-functional No
West Bengal Kolkata Mayor-in-Council Active No - No
# : All councillors are part of at least one deliberative committee- Standing/Special / Advisory committee
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 384.4 FACTOID-HONORARIUM/ REMUNERATION FOR COUNCILLORS
State City Honorarium/ Remuneration Sitting allowance
(in Rupees) (per meeting)/ Other allowances (in Rupees)
Andhra Pradesh Vijayawada 4000 100
Bihar Patna 2,500 1000-Office Rent
Chhattisgarh Raipur 7,500 350
Delhi Delhi No 300
Goa Panaji 10,800 No
Gujarat Ahmedabad 14500 500
Haryana Gurugram 15000 No
Himachal Pradesh Dharamshala 5,500 No
5000- Office Rent, 4000- Stationary and Maintenance of office,
Jharkhand Ranchi 7,000
6000-Staff for councillor
Karnataka Mangaluru 6,000 200- Council Meeting and 200- Vehicle allowance
Kerala Kochi 10,000 50
Madhya Pradesh Bhopal 6000 No 04
Maharashtra Mumbai 25,000 200
Odisha Bhubaneswar No 500 per council meeting and 200 per standing committee meeting
Punjab Amritsar 17000 No
Rajasthan Udaipur 3750 200
Tamil Nadu Coimbatore No 800
Telangana Warangal 6000 No
Uttar Pradesh Lucknow No No
Uttarakhand Dehradun No No
West Bengal Kolkata 10,000 200
NATIONAL CONSULTATION ON URBAN GOVERNANCE I JAN 2020 I 394.5 ACCOUNTABLE ELECTED REPRESENTATIVES (1/3)
Directive Principle: Mayor and Councillors should be accountable to people and held responsible for the development
of the city
Ÿ As we know, state governments are headed by chief ministers who have the ownership and adequate authority to run
the state. So if something goes wrong with the state, CM is held accountable. Similarly, the Mayor being the head of
city government, should have complete ownership to run the city and Mayor should be held accountable for
development of the city. Similarly, councillors should be held responsible for the development of the wards.
Ÿ Municipal Houses/council, standing/subject committee meetings should be conducted on regular basis as per bye-
laws. It is essential that appropriate bye-laws or corporation procedure rules should be in place for effective
functioning of municipal corporations, on the lines of parliamentary/legislative procedure rules.
Ÿ Mayor and Councillors should attend the meetings regularly and if councillors remain absent for 3 consecutive
council meetings or committee meetings, then council should suspend councillor's membership of council and
committee.
Ÿ People should have right to recall Mayor and councillors, if their performance is not up to the mark.
04
Highlights
Ÿ Patna, Ranchi, Coimbatore and Warangal have bye-laws only for limited subjects.
Ÿ 5 cities namely Panaji, Gurugram, Dharamshala, Mangaluru and Dehradun do not have corporation procedure rules in
place.
Ÿ In all 21 cities, Mayor can be removed from position depending upon the mode of election. If Mayor is elected by
councillors, then councillors can pass a motion of no confidence in municipal house.
Ÿ In Bhopal, people have right to recall Mayor after 2 years of election since Mayor is directly elected by people.
Ÿ 5 Cities among 21 cities have provision to recall councillors if their performance is not satisfactory.
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