institutional changes in peri urban areas a case of bopal ghuma nagarplaika
TRANSCRIPT
C H A L L E N G E S A N D P R O S P E C T S
A CASE OF BOPAL- GHUMA NAGARPALIKA
INSTITUTIONAL CHANGES IN PERI-URBAN AREAS
By: Riddhi Vakharia
(PP0008714)
Guided By:
Anurima Mukherjee Basu
D i s s e r t a t i o n
2 0 1 6
Faculty of Planning, CEPT University
I hereby express my sincerest gratitude to my guide Prof. Anurima Mukherjee Basu for her
valuable guidance and inputs throughout the dissertation and made sure that I could produce
my best work. I would like to extend my thanks to my jury panel Prof. Sejal Patel and Dr.
Renu Desai for their most valuable comments that helped me to have a polished outcome.
Special thanks to Prof. Talat Munshi for his kind support when needed. I would also like to
thank all the faculty members of School of planning, for their worthwhile support.
My sincere thanks to Abhimanyu Chudasama for all his support at the Bopal-Ghuma
Nagarpalika office as my thesis was critically depended on government documents, it would
have not been possible without him. Also I will like to thanks other officers from the
Nagarpalika office are Mr. Rajeshkumar Patel and Mr. Jatinkumar Shah for their kind
guidance and for sharing of information.
This acknowledgement is incomplete without mentioning the support and help extended by
my family and especially my husband Prayag. Thanks for constantly inspiring me in the
times when it was needed most.
I am extremely grateful to my friends Spruha, Suhani, Palak, and the entire Mplan batch for
being there for me when it mattered most.
Thank you all.
Institutional changes in peri-urban
areas: Challenges and Prospects
A case of Bopal Ghuma Nagarpalika
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Introduction
Rapid urbanization creates a definitive pressure on the core urbanized area falling under the
jurisdiction of some urban local government. Also there is a phenomenal increase in urban
population in third world nations especially in the metropolitan areas which is due to high
migration from rural areas and small towns. This pressure results into spill out areas outside
the city limits which could be then classified as fringe zone area with a distinct and
dynamically varying space in the overall context of the core urbanized area. During
development the rural settlements are being absorbed within the urbanized areas, which can
also be termed as urban villages, lying on fringe of a large cities. This urban sprawl induces
the spreading of land uses of urban nature into the surrounding urban villages in the fringes
drawing large population into the urban-rural interface.
Peri-urban area are the transitional area which are the passage between the rural area i.e. the
village on one side and the urban core i.e. city on the other and obtains features of both these
areas. Characteristics of these areas may vary from place to place in their existence and
intensity on the basis of physical and cultural and economic aspects of the place. Various
parameters are used to define Urban areas which are broadly classified as demographic
components (i.e., increase of density and population size), economic sectoral component
(i.e., a primarily non-agricultural labor force) and psychological -social- component (i.e.,
awareness for the meaning of Urban) as identified by (Iaquinta & Drescher, 2000).
Institutional scenario of peri-urban area is relevant as we can understand the limitation
emerging development, management and planning in these areas. Peri-urban areas are often
under the jurisdiction umbrella of multiple administrative institutions, having fragile
relations and inadequate municipal power in service resulting into an uncertain environment
and ambiguity into which institutes works for what particular area. . (Adriana , L. A. da
Silva , & Corubolo, 1999). Key challenges due to poor institutional setup are lack of
capacity, shortage of funds, multiplicity of authorities, revenue generation, lack of technical
expertise, non-recognition and lack of planning, information gap.
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Context
Ahmedabad is the biggest Municipal Corporation of Gujarat. Growth and development of
Ahmedabad has affected the surrounding villages. Ahmedabad Municipal Corporation
being a developed institution has been successful in providing better infrastructure. The
employment opportunities in the city combined with the transport connectivity results in
development of fringe villages. This resulted in peri-urbanization along AMC boundary.
Bopal-Ghuma are well connected to the city core through S.P. Ring road. More over being
not under AMC has its own benefits. Property and other taxes are lower compare to that of
a municipal corporation and there is total lack of building byelaws resulting into chaotic
development. There is a recent institutional change happening in this region merger of Bopal
and Ghuma and has happened to form a new Nagarpalika in February 2015.
Many peri-urban problems result from lack of clear local government system. Unplanned,
unregulated fast growth in city outskirts or peri-urban area is very common. Development
along transportation corridors outside the boundary of the master plan of a large city is a
natural fallout and this happens in peri-urban areas. Absence of any institutional structure
for proper governance and development of peri-urban area leads to weak infrastructure.
Panchayat’s jurisdiction is not sufficient and effective to resolve the problems of city
expansion with its meager financial capacity. The responsibility of providing infrastructure
and co-ordinating the development in the periphery areas of a city is usually handled by
multiple agencies, some of which may be state-level agencies, national institutes and local
agencies.
With the recent institutional change in Bopal- Ghuma there are certain challenges that the
Nagarpalika will face in service delivery, also there will be added functions which would
be difficult to handle. There are chances that with so much to handle with only limited
capacity these new functions might not be take care even with improved finances. Hence
the focus of the study is to understand the challenges arising from the recent institutional
change followed by changes in governance and to map out the future prospects of the same.
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Research
Peri-urban areas have remained focus of study of researchers across many disciplines since
many years. Similarly Peri-urban areas of Ahmedabad have also been studied including
Bopal and Ghuma village. Existing works and research were studied and it was found that
the aspect of transition in governance related issues with service delivery has never been
study that gives scope of further research.
Research question
"What are the challenges faced in the governance of peri-urban areas that are transiting from
rural to urban government structures?
What are future prospects of improvement?
Aim
"To study the changes in governance institutions in Bopal Ghuma area, the challenges faced
and future prospects"
Objectives
To understand governance system of peri-urban areas in Gujarat.
To study changes in functional and financial domain of Bhopal-Ghuma due to the
transition from gram-panchayat to a Nagarpalika.
To analyze the existing institutional framework of governance and service delivery
in Bopal-Ghuma in reference to the provisions under the Act
To identify the opportunities arising from the change and emerging problems due to
this transition.
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Methodology
A detailed study of the literature related to peri-urban issues and areas under transition from
rural to urban. Moreover extensive literature study is done on resources available on Bopal
and Ghuma and transition happening in that area. The study create a base for my research
and have laid out scope for further research. The secondary data including budget documents
and government orders are used to trace the changes in the institutional setup corresponding
to the transformation in the area. Also census data is used to find out the population statistics
for Bopal and Ghuma
Field visits were primarily done to understand the new governance structure, the functions
performed and the fiscal domain. Moreover interview of the old and the new key actors in
the system would be conducted. K. Snow ball sampling was used to collect information and
data. Observations were made during physical and visual survey of the site. Analysis was
done through in-depth study of the secondary government documents. Spatial mapping of
institutional responsibilities for service delivery in the area and budget document analysis.
Scope & Limitation
The entire focus is to study the institutional changes happening in Bopal-Ghuma after their
merger to form a new Nagarpalika. Also the study focuses emerging challenges from this
transition and future prospects. Due to time constraints study is conducted only on
institutional changes for Bopal and Ghuma Nagarpalika. Administrative aspects of
functionaries and capacity are not in purview of this research. The research based on
secondary materials, available government data and records and there was major
dependency on records. There was major dependency on government records, and personal
interviews and discussions with the officials.
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Functional Domain
It was clearly observed from the analytical table where comparison was made between
functions in 74th CAA and the ones delineated by the state under the Gujarat Municipalities
Act, that most of the functions from the 12th schedule have been covered by the state list
under Gujarat Municipalities act 1965. But unfortunately issues such as environmental
conservation, urban forestry, Poverty alleviation, safeguarding weaker section of society,
etc. are not addressed. Ignorance of these issues and not regulating them as obligatory
functions shows state government’s lack total seriousness towards tangible issues. Also
there is no considerations for class of municipalities. Moreover a detailed analysis was done
by preparing an institutional matrix of service delivery. This was done through discussions
with the Nagarpalika officials and later on it was mapped spatially.
Institutional matrix helps to understand as to which institution is responsible for what
services. Moreover comparison of responsibilities versus actual scenario for the given
institutions. From the study of related literature it was found that at times multiplicity of
authority creates chaos and confusion on ground. But quite contradictor to what is
commonly found in plethora of literature on peri-urbanization there was no confusion
between its institutions for service delivery found for this case. Of course there is more than
one institute acting to provide services but their roles are performed well with a mutual
understanding and a clearly earmarked jurisdiction. Confusion is not created due to this
mutual understanding and hence a better quality infrastructure is provide with minimal
issues. Major trunk infrastructure is provided by AUDA in all the areas although it was
observed that Bopal-Ghuma provides all the necessary infrastructure to the gamtal area and
partly does in other than gamtal area too. Furthermore to support the matrix a detailed spatial
mapping of these services is done on the administrative map of the Bopal-Ghuma
Nagarpalika. Superimposition of both the data give a distinct list of services, the institutions
responsible for provision and their physical areas served.
Spatial mapping was done to understand how these services have been divided across the
region. In the spatial map prepared we can clearly indicate that maximum area of service
delivery have been covered by AUDA. Gamtal areas have been taken up only by Bopal-
Ghuma gram panchayat. For areas other than gamtal some services such as water supply
have been taken up by BGN. This spatial map also it helped to identify the gaps in the
service delivery. From the map we can also see that for majority of the area of Ghuma
village is still under agriculture hence we can see a transition of land uses here and while
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these multiple local and state level agencies are struggling to provide quality services in the
urbanized area, service provision in the area still under the agricultural land use is hardly a
question.
Service delivery of all the basic physical and social infrastructure is not just done by the
urban local body governing that particular administrative boundary alone though they play
a crucial role in bridging the gap between demands and need. Moreover they become the
people’s representative to the state.
Financial Domain
A detailed statistical analysis of the gram-panchayat budget of Bopal and Ghuma villages
of past six gives a clear picture of the functions performed by the institution. A passing look
given on the overview of the budget trends of the Gram Panchayat. With that we can also
find cost incurred for the same and revenue generated. Budget analysis was analyzed on the
basis of income and expenditure of the then gram panchayat. Also observations are done on
the basis of surplus/deficit, sources of income and places of expenditure, etc.
During the literature review a common problem found in the peri-urban areas that there was
a usually incredible shortage of funds and leading to inefficiency in the service delivery.
But astonishingly this did not hold true for Bopal and Ghuma gram panchayats. They are
managed financially very well even when they were gram panchayats. The budget is found
to be surplus in all last six financial years. Moreover the percentage income from taxes has
been reducing over time and contradicting to it the percentage increase in income from
grants have been increased over time. This reflects institution’s capacity to gain benefits
from the grants and reduce tax loads on the residents. Similarly for expenditure thought the
gross expenditure have been increasing there is a simultaneous increase in the expenditure
on the capital works. Moreover the development cost have been on an average 90% and
very little amount have been spend on general administration and other non-development
areas. This share of development and non-development expenditures clearly shows
efficiency of the working of the Nagarpalika.
Though Bopal and Ghuma have been quite efficient financially but there is high dependency
on the income from taxes and other source that are found very common in other Nagarpalika.
But if gaining financial independence is the next goal than there is need to think beyond
taxes. This could be done through innovative methods of revenue generation which includes
land based fiscal tools, municipal bonds and public private partnership. This methods if
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employed successfully then it would lead to a better working of the Nagarpalika with
reducing financial dependency. But currently the role of Bopal-Ghuma Nagarpalika is very
limited and they are not involved in planning. Hence they are only passive recipient of the
development done by the Urban Development Authority.
Conclusion
State government have given a quite an exhaustive list of functions to be performed by the
urban local bodies for the area under their jurisdiction. Well the biggest concern regarding
is the ignorance of the State government towards the fact that requirements and
performances capacities of each ULB’s is unique and can’t be generalized. In spite of the
fact the government has classified the municipalities on the basis of population in four
categories but this is where it ends this classification is not extended to consider the variation
in their roles and responsibilities. Moreover the fact that special attention is required to
ULB’s in transition as in case of Bopal and Ghuma is not reflected anywhere in the Acts
and rules. Following were the key challenges faced by the Bopal-Ghuma Nagarpalika for
their functional and financial domain.
Issues related to lack of technical expertise to for efficient service delivery is often seen in
areas under transition as well as small and medium towns. This leads to either dependency
of other bigger authorities for provision of infrastructure or else inefficiency of the same.
Also no special consideration from the side of government have been made for capacity
building of human resources. Hence even if they have enough funds in case of Bopal Ghuma
Nagarpalika execution of the technical job is difficult.
For peri-urban areas typically we can see there are multiple parastatals including urban
development authorities which are expected to work hand on hand for providing trunk
infrastructure and basic amenities. This anticipated co-ordination is challenging to achieve
as they are multiple authorities with a varying organizational structure and method of
working. Subsequently there is confusion and chaos. For case of Bopal Ghuma Nagarpalika
there is existence of multiple authorities such as BGN, AUDA, and DDO but there is a
mutual understanding between these authorities regarding the service delivery and their
areas are earmarked quite clearly. Consequently there is a better quality of infrastructure
with the minimal chaos.
Being a smaller Nagarpalika the transitional area in lack of awareness and information.
There is lack of information regarding the roles and responsibilities. Moreover sufficient
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information to gain benefits form grants and aids under various schemes is also missing.
This affects their availability of funds right away.
Insensitivity towards the social and environmental issue would prove fatal in long run. These
pressing issues are a part of the 74th amendment act but they are nowhere to be found in the
Gujarat municipalities act. Environment conservations becomes even more important when
it comes to peri-urban areas. In case of Bopal and Ghuma they also have several natural
lakes but due to lack of authority’s care they have turned into the dumping grounds, are
encroached by squatters or are in an extremely deteriorated condition. Moreover lakes that
are developed are the ones where AUDA has put in the money for development.
The issues listed above coincide with the issues noted in the literature review. Moreover
these are the issues that are found in most of transitional areas. Typically issues in any peri-
urban areas are arising from lack of technical capacity and lack of funds. After analysis one
can say that lack of funds was not an issues with Bopal-Ghuma and also it won’t be a
problem in future as the Nagarpalika has received lots of funds from the ruling party and by
state government via GMFB under Swarnim Jayanti grants as mentioned in annex.
Transition of Bopal-Ghuma started long back in 1980’s after it crossed its population criteria
for Urban as per Census of India but it was speeded up after the construction of Sardar Patel
Ring Road which established a transport connection link with Ahmedabad city core area.
Moreover this speeded up with the commercial development along the Sarkhej-
Gandhinagar Highway and establishments of the business districts of Shivranjini and
Prahladnagar. Ghuma was affected directly by development in Bopal and Sanand.
Transition of Institutional status of Bopal and Ghuma have recently happened as it was
upgraded to Nagarpalika from a rural governing body. Currently AUDA is actively involved
in service delivery in Bopal and Ghuma which is clearly seen in institutional mapping. For
now installation of trunk infrastructure in the areas under T.P. Scheme is taken up by AUDA
both technically and financially. Its operation and maintenance is also done by the same
parastatals body. But would the funds that they at their disposal be sufficient if these services
were to be provided by Bopal-Ghuma Nagarpalika individually. Moreover currently
available technical capacity of the Nagarpalika seems to be inefficient to support the
operation and maintenance of the provided infrastructure in transitional area. Future
prospects of the Nagarpalika are described below.
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Efficiency can be accentuated by strengthening the technical staff and capacity building of
the existing one. This can be done by help from parastatals and Municipal Corporation.
Capacity building is evident for proper working of any institution more so for an urban local
body responsible for service delivery. Moreover the Nagarpalika acts as the bridge and a
mediator between the users or population and the Parasatal institution who provides the
infrastructure in the given peri-urban area. Enhancing the capacity also ensures better
communication of needs in the area. This would also gradually help the Nagarpalika to be
independent in service delivery and finances.
Increasing no of properties is a sign of development. Moreover these new properties also
brings a lot of revenue in the form of property tax, municipality tax, commercial tax, etc.
Apart from direct revenue generation with new residential property in the locality there is
an increase of demand of various commodities. Moreover increasing commercial properties
comes in with multiplier effect and also brings in further development and employment for
the locals making the area economically more self-reliant.
Hence in conclusion we can say that though Bopal -Ghuma Nagarpalika is under the
influence of peri-urbanization it is managed quite well than other transitioning area.
Independence in service delivery and revenue generation through innovative sources would
give the newly formed Bopal-Ghuma Nagarpalika the much needed independence in
functional and financial domain.
Acknowledgement................................................................................................................. 0
Executive summary ............................................................................................................. III
Table of Contents .................................................................................................................. 7
List of Charts ....................................................................................................................... 10
List of figures ...................................................................................................................... 11
List of Maps ........................................................................................................................ 10
List of Tables....................................................................................................................... 12
Abbreviations ...................................................................................................................... 12
1. Introduction .................................................................................................................... 1
Background ............................................................................................................ 1
Peri-urbanization .................................................................................................... 1
Characteristics of peri-urban areas ......................................................................... 2
Issues in urban fringes ............................................................................................ 3
Context ................................................................................................................... 5
Concern .................................................................................................................. 5
Report Structuring .................................................................................................. 6
2 Literature review .......................................................................................................... 17
Defining peri-urban .............................................................................................. 17
Institutional landscape .......................................................................................... 19
Key challenges due to poor institutional Setup are .............................................. 19
Constitutional framework ..................................................................................... 21
73rd and 74th Constitutional Amendment Acts ................................................... 21
Constitution and Composition of the Panchayats and Municipalities .................. 23
Classification of Urban Local Bodies in Gujarat ................................................. 24
Powers and Functions of Municipality as per CAA ............................................. 25
Legal Framework in Gujarat ................................................................................ 26
Gujarat Municipalities Act, 1963 ......................................................................... 27
Functions .............................................................................................................. 27
Functions of Municipality in Gujarat ................................................................... 29
Municipal finance in Gujarat ................................................................................ 31
Institutional Arrangement for Fund Transfer within the State ............................. 31
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Directorate of Municipalities (DoM) ................................................................... 31
Gujarat Municipal Finance Board (GMFB) ......................................................... 32
State Level Nodal Agencies (SLNAs) .................................................................. 32
Gujarat State Finance Commission (GSFC) ........................................................ 33
Sources of Funds for ULBs .................................................................................. 34
3 Aim, Objective and Methodology ............................................................................... 37
Need for study ...................................................................................................... 37
Development of urban fringes – a case of Ghuma village ................................... 37
Rural to urban transformation in case of Bopal village Ahmedabad ................... 40
Evolution and growth dynamics of rural and urban fringe zone: a case of
Ahmedabad agglomeration .............................................................................................. 42
Study of growth pattern in peri-urban area: a case of peripheral areas of
Ahmedabad ...................................................................................................................... 42
Current Scenario ................................................................................................... 44
Research question ................................................................................................. 45
Aim ....................................................................................................................... 45
Objectives ............................................................................................................. 45
Conceptual framework ......................................................................................... 46
Structure ............................................................................................................... 47
Research Methodology: ........................................................................................ 48
4 City Profile .................................................................................................................. 51
Background .......................................................................................................... 51
Location and regional setting ............................................................................... 52
Growth of Ahmedabad ......................................................................................... 53
Planning area and Administrative Framework ..................................................... 54
Peri- urban villages, scenario in Ahmedabad ....................................................... 56
Review of Development Plan ............................................................................... 58
Development plan 2011 ........................................................................................ 58
Development plan 2021 ........................................................................................ 59
Bopal-Ghuma ....................................................................................................... 61
Demographics ....................................................................................................... 67
5 Functional domain ....................................................................................................... 71
Organizational structure of Bopal-Ghuma Nagarpalika ....................................... 71
Functional matrix and comparison ....................................................................... 72
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Institutional mapping ............................................................................................ 77
6 Financial status of Bopal-Ghuma Nagarpalika ............................................................ 83
Budget trends ........................................................................................................ 83
Income .................................................................................................................. 84
Expenditure .......................................................................................................... 87
Comparison .......................................................................................................... 91
7 Conclusions .................................................................................................................. 95
Overview .............................................................................................................. 95
Challenges ............................................................................................................ 95
Future prospects ................................................................................................... 97
8 Annex ......................................................................................................................... 101
Gujarat Governments to the Gujarat Municipalities Act, 1963 and to the BPMC
Act, 1949. The provisions under the amendments in Gujarat are: ................................ 101
Functions of gram panchayat by federal governemnt ........................................ 101
Functions Assigned by the State Government for gram panchayat: .................. 102
Functions of Municipality in Gujarat ................................................................. 103
Building tax rate of Bopal area ........................................................................... 106
Population Details .............................................................................................. 109
Institutional Mapping Form ................................................................................ 111
Budget of Bopal .................................................................................................. 114
Budget of Ghuma ............................................................................................... 126
................................................................................................................... 133
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Chart 1: Federal Structure in India ...................................................................................... 22
Chart 2: Structure of the thesis ............................................................................................ 47
Chart 3: Conceptual Framework ......................................... Error! Bookmark not defined.
Chart 4: Demographics of Bopal and Ghuma ..................................................................... 67
Chart 5: CAGR over the years ............................................................................................ 67
Chart 6: Organization structure of Municipality ................................................................. 71
Chart 7: Sources of income V/S Building tax and dependency ratio .................................. 85
Chart 8: Income from various tax sources .......................................................................... 86
Chart 9: Income from various tax sources .......................................................................... 86
Chart 10: Income of taxes in year 2008-2009 ..................................................................... 86
Chart 11: Expenditure of Bopal and Ghuma Nagarpalika .................................................. 87
Chart 12: development and non-development expenditure breakup of Bopal and Ghuma
gram panchayat ................................................................................................................... 87
Chart 13: Expenditure and development expenditure ......................................................... 88
Chart 14: Total development expenditure ........................................................................... 88
Chart 15: Breakup of development expenditure ................................................................. 89
Chart 16: Total development expenditure of Bopal and Ghuma Gram panchayat ............. 89
Chart 17: Total no. of properties and population ................................................................ 90
Chart 18: Budget of ULB's in 2011-2012 ........................................................................... 91
Map 1: Bopal - Ghuma and its proximity to Ahmedabad 7
Map 2: Map of AUDA boundary 54
Map 3: Administrative boundaries of various authorities 55
Map 4: Delineation of contiguous growth of Ahmedabad 56
Map 5: Bopal and Ghuma administrative boundaries 62
Map 6: Amenities and infrastructure 65
Map 7: Map of institutional overlap in Bopal-Ghuma for service delivery 82
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Figure 1: Rural- Urban Dynamics 1
Figure 2: Peri urban areas 1
Figure 3: Spatial and Sectoral overflows 2
Figure 4: issues in peri-urban areas 3
Figure 5: Issues in peri-urban areas 4
Figure 6: Increasing peri-urbanization 17
Figure 7: Nagar Panchayat in India 23
Figure 8: Map of Ghuma Village 37
Figure 9: Map of Bopal Village 41
Figure 10: Map of Gujarat with districts 51
Figure 11: Ahmedabad district in context of Gujarat State 52
Figure 12: Growth of Ahmedabad 53
Figure 13:AUDA DP 2011 58
Figure 14: AUDA DP 2011 Bopal area 58
Figure 15: Zoning in Development plan 60
Figure 16: Map of Ahmedabad and relation of Bopal-Ghuma 61
Figure 17: Daskroi taluka and its proximity to city core 61
Figure 18: Bopal-Ghuma BRTS 63
Figure 19: Google imagery year 2001 64
Figure 20: Google imagery year 2006 64
Figure 21: Google imagery year 2003 64
Figure 22: Google imagery year 2010 64
Figure 23: Google imagery year 2016 64
Figure 24: Infrastructure in Bopal-Ghuma 79
Figure 25: Roads in Bopal 79
Figure 26: Existence of private water markets 80
Figure 27: Use of bottled water even by street vendors 80
Figure 28: Digging of roads for lines 80
Figure 29: Lake in Bopal 81
Figure 30: Ghuma lake front development by AUDA 81
Figure 31: Gamtal area of Bopal and Ghuma 82
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Table 1: Classification of Municipalities in Gujarat 24
Table 2: Conceptual framework for research 46
Table 3: Field visits and key person’s interview 50
Table 4: Population chart as per Census India for Bopal and Ghuma 68
Table 5: Decadal Compound Annual Growth rate 68
Table 6: Comparison of functions 76
Table 7: Institutional Mapping 78
Table 8: Budget actuals in lakhs of Bopal and Ghuma gram panchayat over last five years
83
Table 9: Budget surplus of Bopal and Ghuma gram panchayats 83
Table 10: Income of Bopal and Ghuma gram panchayat 84
Table 11: Tax and Non-tax income of Bopal and Ghuma gram panchayat 85
Table 12: List of expenditure for collective development plans and public construction. 90
Table 13: Total number of properties 90
Table 14: Comparison of Bopal-Ghuma gram panchayat budget with other ULB's of Gujarat
in 11-12 91
AUDA: Ahmedabad Urban development Authority
AMC: Ahmedabad Municipal Corporation
BGN: Bopal Ghuma Nagarpalika
CAA: Constitutional Amendment Act
DoM: Directorate of Municipality
GMFB: Gujarat Municipal Finance Board
GSFC: Gujarat State Finance Commission
GUDC: Gujarat Urban Development Company Limited
GUDM: Gujarat Urban Development Mission
SFC: State Finance Commission
SLN: State level nodal agency ULB: Urban local body
Introduction
1.1. Background
1.2. Peri-urbanization
1.3. Characteristics of Peri-Urban areas
1.4. Issues
1.5. Context
1.6. Concern
1.7. Report structuring
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Background Rapid urbanization creates a definitive pressure on the core urbanized area falling under the
jurisdiction of some urban local government. Also there is a phenomenal increase in urban
population in third world nations especially in the metropolitan areas which is due to high
migration from rural areas and small towns. This pressure results into spill out areas outside
the city limits which could be then classified as fringe zone area with a distinct and
dynamically varying space in the overall context of the core urbanized area. While
developing the rural settlements are being absorbed within the urbanized areas, moreover
these can also be termed as urban villages while lying on fringe of a large cities. This urban
sprawl induces the spreading of land uses of urban nature into the surrounding urban villages
in the fringes drawing large population into the urban-rural interface.
Figure 1: Rural- Urban Dynamics
Source:http://2.bp.blogspot.com/-HGOH4Dmtv9M/VdKoHXWeanI/AAAAAAAACKo/XhubVoDdEI4/s1600/rural-urban-600x250.jpg
Peri-urbanization Peri-urban area are the
transitional zones between the
true urban and true rural
landscape, laying on the
periphery of town and its
surrounding. These changes in
diverse sectors has specific
Figure 2: Peri urban areas
Source:http://www.cityfarmer.info/2009/11/05/contribution-of-urban-agriculture-to-
food-security-biodiversity-conservation-and-reducing-agricultural-c-foot-print/
Institutional changes in Peri-urban area its Challenges and prospects- A case of Bopal-Ghuma Nagarpalika
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influence on the lives of the residents in social, economic and political context. Peri-urban
area is the transitional area which is the passage between the rural area i.e. the village on
one side and the urban core i.e. it is city on another between true urban and true rural area
including feature of both these areas. It exhibits key role in structural and morphological
transformation of the urban agglomeration area. Characteristics of these areas may vary
from place to place in their existence and intensity on the basis of physical and cultural and
economic aspects of the place.
Characteristics of peri-urban areas Various parameters are used to define Urban areas which are broadly classified as
demographic components (i.e., increase of density and population size), economic sectoral
component (i.e., a primarily non-agricultural labor force) and psychological -social-
component (i.e., awareness for the meaning of Urban) as identified by (Iaquinta & Drescher,
2000). Which has indicators such as population, population density, gender ratio, agriculture
activities, primary activities, non-agriculture, urban activities, built up area, literacy,
infrastructure services, commuting population, etc. one of the characteristics is the change
in demographic pattern i.e. rapid increase in population and with that increase in workforce
involved with non-primacy occupation. Change in physical characteristics in the form of the
range of land uses found in peri-urban areas is very wide as it includes rural, urban and
Spatial Flows
Migration and remitances
goods serices and waste
Information
Resource/Water and nutrients
Sectoral flows
Crop/livestock for local use
Input markets
High value agricultre trade
Peri-urbana and multi functional agriculture
Very rural
Rural
Small town
Peri-urban
Very urban
Figure 3: Spatial and Sectoral overflows
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transitional character. Moreover there is an intermingling of both the characters in form of
population and land use as the land uses may be urbanized but the population may still be
rural. There is a mix of agricultural activities e.g. cash crops are linked to rural areas and
commercially grown crops such as horticulture and flowers which has a direct link to urban
areas. Other types of land like industrial setups, warehouses, have more obvious urban
dimensions. The vacant land in such areas has an intermediary land use. The built up land
for residential purposes etc., lie in the urban end of the rural- urban continuum. Change in
spatial character of the area is depended on the surrounding activities and its urbanness
determines the scale and nature of change. (Patel)
Issues in urban fringes Attempts of satisfying economic and social needs of a large majority of growing world
population happens in an urban context. This is followed by a huge amount of migration of
people in the urban area with a possibility of uncontrollable urban explosion with an
unprecedented increase in population, pressure on urban infrastructure and resulting
decrease of standard of living.
In the wake of rapid expansion of metropolitan cities, the local governments can barely
cope up with just maintenance of the existing services within their Jurisdiction. While
serviced' urban land may indeed be far below the requirement of the urban area, the
processes of speculative purchase and land conversion from agriculture to Non-agricultural
use continue unabated in the fringe areas.
Urbanisation, a process of
concentration of people and socio-
economic activities within limited
geographical areas, created a
pattern of interpersonal
dependencies, unknown in the rural
areas. This creates a situation where
provision of infrastructural
facilities, law and order, shelter
becomes a difficult task. The forces
of the free market have often been
found inadequate to fulfil this responsibility. In the rural setting, it may be possible to leave
the decisions pertaining to housing and residential environment etc. to the private
Figure 4: Issues in peri-urban areas
Source: http://steps-centre.org/2010/blog/peri-urban-futures-and-sustainability/
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individuals, with certain amount of financial and administrative support from the state. In
urban areas, however, such decisions necessarily call for significant exogenous
intervention.The local governing body in the peri-urban area is incapable of handling the
complex issues arising from the process of urbanization. The major issues arising at the peri-
urban areas are listed below.
1.4.1 Physical issues
Physical issues revolves around the
poor quality or total lack of physical
infrastructure in the area. Lack of
amenities like fire station, main post,
Govt. hospital, Gardens, Schools,
playgrounds, etc. Lack of physical
infrastructure such as water supply,
sewage system, solid waste
management. (Saxena & Sharma,
2015) Moreover this issue amplifies as
there is piece meal non-contiguous
development in absence of governing
authority. With no proper governing institution in place there is violation of Building
regulation or total absence of them.
1.4.2 Organizational issues
Most common issue found in service delivery of the overlapping of functions of concerned
authorities and multiplicity of authorities. This ambiguity creates lack of co-ordination
between various agencies. Urban authorities ignore problems of these transitional areas as
they are outside there administrative boundaries. Gram panchayat or rural governing body
is incapable and inefficient to deal with complex issues arising from urbanization.
Overlapping of functions creates confusions and results into lack of service provision.
Collecting and assigning revenues. Moreover there is no legal binding on different agencies
to supply the regular feedback to each other involved in the process. No punitive measures
taken for any type of violation. (Maloo & Pandagre)
1.4.3 Financial issues:
Incorporation in fringe areas within municipal limits will require more initial investments
than returns to the municipal corporation. Panchayat will lack in financial resources and
Ph
ysi
cal
Org
aniz
atio
nal
Envir
onm
enta
l
Fin
anci
al
Figure 5: Issues in peri-urban areas
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technical expertise. Infrastructure development works are not playing and there is not much
provision to recover their costs from consumers.
1.4.4 Environmental
Per-Urban area have more environmental elements compared to a rural area due to other
transitional Peri-urban areas being in transition would be under tremendous change of land
uses which has a severe effect on environment and ecosystems of the area. Urbanization at
these places comes with the cost of depletion of environment resulting into serious
disruptions of ecosystems. Many a times there have been cases when the region has lost its
complete natural characteristics. This might result into deforestation, depletion of water,
grasslands etc. Moreover at time these areas are conveniently selected as the landfill and
dumping sites hurrying the process. Astonishingly there is not enough care taken by the
authority to conserve or protect the environmental characteristics in the run for urbanisation.
Context Ahmedabad is one of the thriving urban core of Gujarat state. In the case of Ahmedabad,
peri-urban areas are developing just outside the Municipal Corporation limit at places
having good connectivity with the city center in terms of roads and public transport system.
Bopal –Ghuma falls on the fringes of the administrative boundary of Ahmedabad city. The
approval and permissions for development are relatively easy to obtain. Since the last
decade, they are passing through the tremendous growth development which has made it a
prime location for investments and attracting new individuals to work and live. This also
brings in transformations in rural landscape and issues followed by it. There is a recent
institutional change happening in this region where merger of Bopal and Ghuma villages
are done to form a new Nagarpalika. This institutional change in the transitioning peri-urban
area is the focus of the study.
Concern
With the recent institutional change there are certain challenges that the Nagarpalika will
face in service delivery, also there will be added functions which would be difficult to cope
up with, but the bright side is that they will receive new grants under multiple urban
development schemes. There are chances that with so much to handle with only limited
capacity these new functions would not be managed or performed even with improved
finances.
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Many peri-urban problems result from lack of clear local government system. The peri-
urban area is an area which is part of neighboring city or is autonomous. Unplanned,
unregulated fast growth in city outskirts or peri-urban area is very common. Development
along transportation corridors outside the boundary of the master plan of a large city is a
natural fallout and this happens in peri-urban areas. Absence of any institutional structure
for proper governance and development of peri-urban area leads to weak infrastructure.
Panchayat’s jurisdiction being a rural governing body is not sufficient and effective to
resolve the problems of city expansion with its meager financial capacity. The need to assign
the responsibility of providing infrastructure of controlling and Co-ordinating the decision
of the inhabitants, entrepreneurs etc. in the cities and towns to certain exogenous agency,
say state, therefore, becomes amply difficult. Hence the focus of the study is to understand
the challenges arising from the recent institutional change followed by changes in
governance and to map out the future prospects of the same.
Report Structuring The report has been structured in the chronological manner with background study and
literature study being in the initial chapters followed by chapters that emerged from my
research and analysis.
Chapter 1: Introduction
This chapter has the basic introduction to the subject of study the context and why both
combined together are a big concern. It gives the background of the peri-urbanization
process, characteristics of such an area. Moreover issues in peri-urban areas have been
enlisted. And the chapter ends with sketching out the context and major concern for the
same.
Chapter 2: Literature review
Introductory study of the subject based on the literature review covers this chapter. This
includes definition of what peri-urban areas are, what the common issues are. Understanding
of what is common setup for governance national and state framework for the peri-urban
areas.
Chapter 3: Aim objective and methodology
This chapter gives overall idea of how the research is formulated. It includes the relevance
and the need of the study. It is then followed by formation of research question, defining the
aim and objectives and ultimately ending in with what the scope and limitations of the study.
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Chapter 4: City profile
This chapter focuses on contextual analysis of the city of Ahmedabad and discusses the
growth pattern and situation of peri-urban villages. Further the chapter discusses about
Bopal and Ghuma specifically and discusses its demographic patterns in detail.
Chapter 5: Institutional framework for Service Delivery
The main research in the functional domain and the institutional framework for service
delivery has been discussed in this chapter through comparison of functions at various levels
and preparing an institutional matrix. Further this matrix is mapped understand the spatial
relation of the authorities and service delivery.
Chapter 6: Financial status of Bopal-Ghuma Nagarpalika
Here in this chapter a detailed financial and statistical analysis has been done on the Bopal
and Ghuma’s budget documents of past five years. It the budget trends. This is followed by
comparing the budget statistic with other ULB’s of Gujarat state.
Chapter 7: Conclusion
This is the concluding chapter which highlights the key findings of this research. Which is
followed by summing up challenges and future prospects arising from the institutional
changes in Bopal and Ghuma. Moreover the research is concluded by giving the idea of
what next to do.
Map 1: Bopal - Ghuma and its proximity to Ahmedabad
Literature review 2.1. Defining Peri-urban
2.2. Institutional Landscape
2.3. Key challenges
2.4. Constitutional Framework
2.5. 73rd and 74th CAA
2.6. Constitution and composition
2.7. Classification of ULB
2.8. Powers and functions
2.9. Legal framework in Gujarat
2.10. Gujarat municipalities Act
2.11. Functions
2.12. Functions of municipality in Gujarat
2.13. Municipal financing in Gujarat
2.14. Institutional arrangement
2.15. DOM
2.16. GMFB
2.17. State level nodal agencies
2.18. GSFC
2.19. Sources of funds for ULB
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Defining peri-urban The complications of contemporary land use occurs in peri-urban areas. The prime cause
lies is in the unclear and ambiguous meanings of these areas, are they rural are they urban,
are they to be preserved or to become the platform of dynamics and development. Moreover
its complexities increases because of its transitional nature and are characterized by neglect
and ignorance particularly in the developing countries. And being neither completely urban
nor completely rural, it falls outside the domain of planner on either side, but continues to
cater to the spill over population without basic infrastructural provisions resulting into
increasing disparities. (Sarkar & Bandhopadhyay, 2013)
Many researchers across the globe have described peri-urban using contradictory
environments and process from multiple disciplines. But unfortunately there is a difference
observed in the definitions as the process of peri-urbanization for one was consequence for
the other. Subsequently, the concept of peri urban has become underestimated and
repetitive, its analytical and practical utility severely compromised. The concept of peri
urban emerged due to restrictions in the separation between rural and urban. (Rambaud,
1973)
There is a strong criticism
by (RUPRI, 1998) on the
dichotomy on the basis of
"urban" and "rural"
definitions, and
arguments that the so
called rural characteristics
also occur in the rural-
urban continuum where
there is settlement.
Prominently peri-urban areas are vibrant and dynamic in case of social forms which are
structured, arranged, adjusted and discarded.
Figure 6: Increasing peri-urbanization
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2.1.1 Various transitional areas and its characteristics
(1) Rural: The character of rural village is reflected as predominantly agricultural, very low
population growth pattern, low density pattern, Kachcha structures and low level of facilities
and inadequate or absent physical infrastructure. Since the pressure is not much on the land,
the quality of life is settled and traditionally rural.
(2) Pre-transition: During this stage, there is a gradual change is observed in characteristics
of village near an area of urban extension which is reflected in:
Medium population growth, with gradually increasing migration patterns.
The dominance of agriculture starts diminishing
The land subdivision takes place outside the municipal boundary and under the urban
authority boundary, but occupancy still remains low.
(3) Transition: Villages in this stage is under the umbrella of urban extension and are
characterized by extremely high land subdivision beyond the Municipal boundary resulting
into diminishing agriculture domain.
(4) Post-transition: During this stage, inter-dependence of village surrounding the planned
development area is increased on each other as the village becomes part and parcel of the
later due to its proximity with the metropolitan core. This stage is characterized by:
Very high population and increasing migration close to a problem situation
Change in employment structure
Change in land use from residential to mix land use, and emergence of small
manufacturing units
(5) Urban: During this stage, villages are fully surrounded by planned development. They
are identified as high density, over congestion, highly stressed area with inadequate
infrastructure and facilities. In absence of building byelaws and development controls, this
area becomes a buffer for the planned area. With increasing pressure on urban land and strict
regulations, urban villages form a cushion to receive the priced out low-income population
and activities, depending. Complementing to the ones proposed in planned areas. (Kumar,
2002)
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Institutional landscape Institutional scenario of peri-urban area is relevant as we can understand the limitation
emerging development, management and planning in these areas. Peri-urban areas are often
under the jurisdiction umbrella of multiple administrative institution, having fragile
relations and inadequate municipal power in service sectors such as transportation, water,
energy, solid waste management and land use planning resulting into an uncertain
environment and ambiguity into which institutes works for delivering which services. .
(Adriana , L. A. da Silva , & Corubolo, 1999).
Town that are talked about here are transiting from rural to urban. There are lot of challenges
faced due to this progression from rural to urban which require unconventional
interpretations and solutions. The process of moving from rural to urban throws up some
unique challenges that require more than standard solutions. An example is managing solid
waste disposal in towns where dairy cattle are kept in residential areas. The absence of basic
infrastructure, such as reliable electric power, limits the usefulness of such technology.
Small towns are potentially more easily governable than large cities. The 74th Constitutional
Amendment Act in 1992 was designed to provide this by devolving powers to local
governments. While it has facilitated the creation of elected urban local bodies even in the
smallest of such towns, many of them do not have the capacity, or even the knowledge, to
use the powers they have to improve conditions in these towns. Municipal bodies in small
towns are caught in a pernicious vicious cycle of low capability, resulting in low collection
of revenue leading to poor performance in the delivery of all basic services.
Key challenges due to poor institutional Setup are There are series of challenges that are posed due to the transformations in rural landscape.
The challenges lies in governing the population, as to who will govern them, who decides
the decision making authority and who has the control. How will there be sharing of roles
and responsibilities between the old rural actors and the new actors in the emerging urban
scenario. In crux of all what will be the politics of governance and how the newly governed
peri-urban spaces will emerge.
2.3.1 Lack of Capacity
Being upgraded from the rural governing body they are not competent enough to handle
complex issues arising from unruly and uncontrolled urbanization happening in the area.
Moreover the functions gram panchayat as per (Act, 1993) are very limited and not at all
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upgraded as per the current need. Up gradation of Bopal and Ghuma gram panchayat to
Nagar Palika would add to the problems of low capacity and performance.
2.3.2 Shortage of funds
The gram panchayat does not have the capacity to reap in the benefits from various rural
development funds declared by government and as the area is not recognized as urban by
the state they do not get urban development funds either. Devolution of powers to urban
local bodies were to be done with the passing of the 74th amendment was meant to devolve
powers to urban local bodies. But unfortunately even a passing observation regarding the
situation in multiple small and medium towns suggests that it has not happened
homogenously. Although officially on paper ULB’s have been granted the power as per 74th
CAA. Besides the fact that there is political autonomy at some places, financial autonomy
has yet not trickled down completely till the ULB. (Sharma, 2012)
2.3.3 Multiplicity of authorities
In an urban setup land is most amenable to political and bureaucratic maneuvers. The
administrative overlap, involving several government departments, like State Revenue
Department, State Town Planning Departments, urban local bodies and even village
Panchayats, in situations where the fringe area is not inside corporation limits, often result
in inadequate appreciation and isolated interpretations of a plethora of changing rules that
remain un-enacted. (Kankaria)
2.3.4 Revenue Generation
Residents in tax and penalties received by comparing a result in hand to leave the city to
provide services figure very meager amount of urban area is much less. In the small towns
of the city. In addition local authorities often cannot collect them the right to collect such
taxes several property tax, water tax, business tax and automobile tax. They simply do not
have the task of manpower. As a result, they are almost entirely dependent on the state
government, or centrally sponsored program funding to finance basic services or even
delivery. In turn, the poor conditions prevalent in small towns and their dismal urban
infrastructure to bring fresh investment to prevent this type of urban private investors from
other parts of the country. Since Janjgir Chairman of the City Council, Motilal Dahariya, he
explained that they have no source of income. Without a strong economic structure or
mechanism to collect from taxes, there is no property tax or Mandy (Quote tax) and water
tax is fixed at 50 rupees. Month, because there is no Shuimi. Since the City Council to use
the funds to pay off the loan in most places it took interest in the establishment of a water
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filtration plant, which runs out of money to pay wages last month of the fiscal year. (Sharma,
2012)
2.3.5 Lack of technical expertise
As per (Saxena & Sharma, 2015) nagar Palika lack technical expertise that would enable
them to provide better services and infrastructure also operation and maintenance of the
same is difficult at times.
2.3.6 Information Gap
Lack of information hampers the local bodies’ capabilities to effectively plan and manage
their administrative area. Even if data are available with concerned agencies they are either
not readiy usable and/or accessible for planning or management purposes, or there are
serious problems with them. (Shivanand Swamy & Mukundan)
Constitutional framework
73rd and 74th Constitutional Amendment Acts At 73 and 74 constitutional amendment bill in early 1990 it has been introduced in an
attempt to achieve equality of decentralization and local self-government bodies to provide
constitutional recognition. Revision of national parliaments, confer these powers, giving
Panchayats and municipalities such powers and functions, it may be necessary to enable
them to become self-organization - government. Responsibility For this purpose,
Panchayats and municipalities have been responsible for the formulation and
implementation of economic development and social justice, including the constitutional
articles 11 and 12 of the matters listed in Schedule Program
India has a three tier system where at the top most level is the Federal or the central
government. It is followed by state government and lastly it is urban local body or ULB.
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2.5.1 Panchayat
Under Article 243G there is provision
that, with regards to provision of
constitution, any State legislature has the
liberty that they may grant such necessary
powers and authority to the panchayat so
that they can work as the institution of
self-government. Moreover the law of
these type can also contain requirements
for the devolution of powers and
responsibilities upon Panchayat at the
suitable level.
This amendment if followed it can give political as well as fiscal autonomy to a rural
governing body i.e. gram panchayat under Panchayati raj. But unfortunately there is a loop
hole in the amendment. It does not compel the state to follow this but gives liberty that they
may follow this and hence they are not mandated by the constitution to follow the
amendment resulting into failure of decentralization.
2.5.2 Municipalities
Under Article 243W there is provision that, with regards to provision of constitution, any
State legislature has the liberty that they may grant such necessary powers and authority to
the Municipality so that they can work as the institution of self-government. Moreover the
law of these type can also contain requirements for the devolution of powers and
responsibilities upon the ULB at the suitable level.
This article is same as 243G only this is for an urban governing body. This amendment if
followed it can give political as well as fiscal autonomy to an Urban Local Body i.e.
Municipality. But unfortunately there is a loop hole in the amendment. It does not mandate
the state to follow this but gives liberty that they may follow this and hence they are not
compelled by the constitution to follow the amendment resulting into failure of
decentralization. Consequently the powers, functions or finances does not trickle down to
the ULB leaving it depended on the state for its finances and powers.
State
Union
Panchayati Raj
Zilla panchayat
Block/Taluka Panchyat
Village Panchayat
Gram sabha
Municipality
Municipal Corporations
Municipal council
Nagar Panchayat
Ward Meetings
Chart 1: Federal Structure in India
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Constitution and Composition of the Panchayats and
Municipalities A Gram Panchayat is established for any local area comprising of revenue village or a group
of revenue villages or hamlets the population of which is not ordinarily less than 500 and
not more than 10,000. (Panchayati Raj In Gujarat, Government Of Gujarat, 1973)
Furthermore the amendment for an urban settlement has laid that every state shall constitute
the following:
2.6.1.1 Constitution of three types of Municipalities
a. A Nagar Panchayat (Nagarpalika in case of Gujarat)for a transitional area, that is to
say, an area in transition from a rural area to an urban area or a peri-urban area
b. A municipal council for a smaller urban area, and (municipality as in Gujarat)
c. A municipal corporation for a larger area.
As per the Article 243 (Q) (2) the governor of the state is given with the powers to grade an
area into small, large or into transitional area. This gradation depends on the factors such as
population, area, density, revenue generated for local administration, employment in non-
agricultural activities, and other factors that point to the economic importance of the area.
Gujarat follows similar criteria in grading and these were also used in formation of Bopal-
Ghuma Nagarpalika.
As of April 1998 Gujarat is having one of the lowest number of Nagar Panchayats as
compared to the state of Tamil Nadu, Uttar
Pradesh and Madhya Pradesh. Also the
percentage of Nagar/Town Panchayat to
total ULBs is the lowest in Gujarat as
compared to other states of India. This
implies the weak implementation of the
74th Constitutional Amendment Act.
(Structure and size of Urban local bodies in
India)
Urban center with a population range
between 30,000 and 100,000 inhabitants
should have Nagar Panchayats as their
governing body. Nevertheless, there are
Figure 7: Nagar Panchayat in India
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some exceptions where all the previous town area committees (urban centers with a
population range of 5,000 to 20,000) would be reclassified as Nagar panchayat.
Organizational structure of Nagar panchayats include ward members and have a chairman
with ward members. These members comprises of minimum 3 nominated members and
10 elected members. Chief of all the administration is a lock development officer also
commonly called as Executive Officer. (Urban Local Government: Municipal governance:
main features, structures, finance and problem areas; 74th Constitutional Amendment;
Global Local debate; New localism; Development dynamics, politics and administration
with special reference to city management, n.d.)
Classification of Urban Local Bodies in Gujarat
Table 1: Classification of Municipalities in Gujarat
Administratively Gujarat has classified Urban local bodies into A, B, C and D classes.
Currently there are 170 urban local bodies in Gujarat of which, 8 are Municipal corporations
and 162 are municipalities. All 8 municipal corporations of the state include urban
population of 150 lakhs. Whereas 22 A class, 29 B class and 45 C class and 66 D class
municipalities include population of nearly 60 lakhs.
With the 74th CAA, 1992, all the elected bodies of the state are governed under the Gujarat
Municipalities Act, 1963 which is administered and supervised by the Directorate of
Municipalities (DoM). The Municipal Corporations are empowered under BPMC Act,
1949. (Directorate Of Municipalities) Bopal and Ghuma Nagarpalika whose total
population as per census data is 53,000 approx. falls under class B municipality.
Classification Population Total
Municipalit
ies
As per
census
Municipal Corporations Above 2.5 lacs 8 8
Class More than 1 Lac 18 22
Class 50,000 to 1,00,000 33 29
Class 25,000 to 50,000 45 45
Class 15,000 to 25,000 63 66
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Powers and Functions of Municipality as per CAA Along with matters included in the 11th schedule 73rd CAA have passed on responsibility of
implementing schemes related to social justice and also for economic development in their
area of jurisdiction.
Along with matters included in the 12th schedule 73rd CAA have passed on responsibility of
implementing schemes related to social justice and economic development in their area of
jurisdiction. Twelfth schedule apart from the ones mentioned above also includes following
matters:
Urban planning and town planning
Regulation of land-use and construction of buildings
Planning for social and economic development
Slum improvement and up gradation
Provision of urban amenities and facilities such as parks, gardens, playgrounds
Public amenities including street lighting, parking lots, bus stops and public
conveniences. (under 12th schedule of 74th Constitutional Amendment act)
A district level planning committee is to be formed under the article 243ZD of 74th CAA
which will prepare a plan for District development. It has the powers to prepare a draft
district development plans which amalgamates the plans prepared by all the smaller
governing bodies i.e. panchayats and municipalities. These plans have considerations for all
the matter of common interests such as spatial planning, integrated development of trunk
infrastructure, sharing of water and other natural resources and last but not the least
environmental considerations. Furthermore these plans should be prepared such that they
consolidate the plans prepared by panchayats and municipalities.
A metropolitan planning committee is to be formed as stated under article 243ZE for
metropolitan areas such that it constitutes of members elected by and from the members of
the municipalities and chairpersons of the panchayat that lie within the metropolitan area.
The proportion is taken with regards to proportion of population of the municipalities and
Panchayats in the metropolitan areas and are having same mandate as mentioned above for
district planning committee.
There is a provision under the Article 243N and Article 243ZF which states that any
provision of any law that relates to Panchayats and Municipalities respectively, is in force
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at the time of the of the amendments, which are varying with the provisions of this
amendment, would be continued to be in force until amended or repealed by a competent
legislature or other competent authority or until one year from such commencement,
whichever is earlier.
Once the ULB’s and panchayats are granted autonomy and powers at appropriate levels
these articles ensured that there is a cohesion when it comes to planning. Urban and town
planning being the function of the ULB as per the 12th schedule if done individually by each
institution may consequently lead to chaos and confusion as the resources may be spreaded
across multiple administrative boundaries and leads to inefficient management of the same.
Moreover some trunk infrastructure like highways, water canals have to be provided at a
much larger scale than a ULB. This can be achieved through Metropolitan Planning
Committee and District Planning Committee which makes certain that all the smaller level
plans are consolidated to form a single cohesive plan through Metropolitan Development
Plan and District Development Plans.
Legal Framework in Gujarat With the 74th CAA, imposed upon the state, states have shown great indifference towards
State Finance Commissions and have provided them with administrative or technical
assistance. In lines with the 74th CAA and its notification, amendments were executed by
the Gujarat Governments to the Gujarat Municipalities Act, 1963 and to the BPMC Act,
1949. The provisions under the amendments in Gujarat can be referred in section 8.1 of
annex. The provision has looked into the following mater:
2.9.1 Structural
It includes provisions for fair and regular conduct of elections to the municipalities by
statutory constituted State Election Commissions. Once in every five years a Finance
Commission should be constituted to recommend to the Central Finance Commission,
measures to improve the financial health of municipal bodies.
This ensures that the municipalities observe clear democracy through all the elected
members. Moreover a body like state finance commission greatly helps in maintaining the
financial balance of the municipality.
2.9.2 Functional
The provisions of Gujarat Municipalities Act, 1963 and the BPMC Act, 1949 have been
amended in 1993 but there was a total ignorance towards actual devolution which should
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have took place like regulation of land- use, town planning with development authorities,
safeguarding the interests of weaker sections, promotion of cultural, educational and
aesthetic aspects have still not been devolved fully.
This results into lack of political as well as fiscal devolution of power and failure of
decentralization. This also leaves the municipality depended on the state government for its
efficient functioning.
2.9.3 Planning
As highlighted by 74th CAA there should be a metropolitan planning committee but their
absence in Gujarat have limited the functional role of ULB in management and planning to
a varying sectoral departmental plans and programs which could never lead to a
consolidated planning and cohesive development of the ULB’s.
This ineffective planning results in inefficiency in working of the ULB. Their proper
functioning could be hampered due to lack of vision and planning.
Gujarat Municipalities Act, 1963 The Gujarat Municipalities Act, 1963 was reviewed and amended in accordance with the
74th CAA; however the involvement of municipalities in the decentralization process is
very vague. The observations on the implementations status and reforms have been analyzed
from the study done by P.Bindu, 2007. The main shortfalls in the act pointed by her are:
a. High involvement of parastatal bodies due to lack of technical personnel in the
municipalities
b. Low resource mobilization initiatives and hence highly dependency of ULBs on
grants
c. State and state agencies control on major decision making, as a result no actual
decentralization is seen
Functions
2.11.1 Functions of gram panchayat by federal governemnt
Functions as per the federal government can be referred from section 8.2 in annex. These
functions broadly look efficient at the functioning of a rural governing body i.e. gram
panchayat. It addresses issues of infrastructure such as water supply and sanitation. It also
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specifies in creating an environment which is hygienic and would not result in spread of
epidemic. Construction, maintenance and repairs of public streets, parks, etc are under their
purview. Organizing voluntary labor for upliftment of its area is also important function.
Moreover there should be control and administration of the Gram Panchayat Fund and nyay
panchayat. The imposition, assessment and collection of the taxes, rates or fees; The
maintenance and control of Dafadars and Chowkidars.
These functions as mentioned above help in an overall development as required by the rural
body. Moreover it is important to study these functions as the Nagarpalika is upgraded from
these function to the ones conducted by the municipalities.
2.11.2 Functions Assigned by the State Government for gram panchayat
Functions of the gram panchayat as assigned by the state can be referred in section 8.3 in
annex. These functions were prepared in lines of the functions mentioned in the CAA. But
the state has pretty much an exhaustive list compared to the ones by the federal government.
The areas where gram panchayat have to functions starts with education department which
include formal and non-formal education. Then comes health where the panchayat have to
maintain rural dispensaries, health centers, maternity and child welfare centers, etc. then
other areas are transportation, irrigation and water supply, Grow-more-food campaign
looking after weaker sections of the society, improving breeding of cattle, etc. improving
cultivation though usage of waste lands, promoting forestry, and arranging for co-operative
management of land. Issues like rural housing, rural electrification, women and child
development, etc. should be addressed. Implementation of such other schemes as entrusted
to the Gram Panchayats by the Government, etc. these functions take care in an all-round
development of the rural area.
Discretionary functions include construction, maintenance, repair and development of
infrastructure such as street lights, public streets, sources of water such as lakes, wells, etc.
it also include plantation on the streets , regulating markets. The construction and
maintenance of dharmasalas, rest houses, cattle sheds and cart sheds, The establishment and
maintenance of libraries and reading rooms. The elevation and reinforcement of cottage,
khadi, village and small-scale which includes food processing industries. Stopping of
academics, destruction of rabid or ownerless dogs, and disposal of unclaimed cattle.
Encouraging dairy farming, poultry, fisheries whichever is applicable. Cultural activities
including the sports and games and Maintenance of community assets.
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Functions of Municipality in Gujarat The Municipalities have been given enormous powers and functions and they are classified
as under:
a. Obligatory functions;
b. Discretionary functions and
c. Functions delegated by the State Government. (Rana, 2014)
As per the Gujarat Municipalities act 1963 the functions are assigned to municipalities
which can be referred in section 8.4 in annex. The functions under Gujarat Municipalities
act 1963 have been divided in various areas of work. They are as follows:
2.12.1 In the Sphere of public works and education
This area includes maintaining public streets, naming and numbering them and to give relief
to person who has been immediately affected and rendered homeless by natural disaster
such as fire, floods, earthquake, draught etc. within the municipal borough. Also
construction, establishment and maintaining primary schools.
2.12.2 In the Sphere of Public health and sanitation
Under this section there are various functions which includes prohibition and regulating
dangerous and offensive trade practices. Removal or securing of dangerous buildings and
places and reclaiming unhealthy localities. Securing or removing dangerous buildings or
places and Obtaining a supply or additional supply of water, proper and sufficient for
preventing danger to the health of inhabitants from the insufficiently or unwholesomeness
of the existing supply, when such supply or additional supply can be obtained at a reasonable
cost. Watering public streets, public vaccination, Cleansing public streets and places and
sewers and all places not being private property which are open to the enjoyment of the
public whether such places are vested in the municipalities or not, removing noxious
vegetation and abating all public nuisances. Introducing and maintaining the system of
water closet to dispense with the removal of night soil by carrying the same in a receptacle
cart or other means. Disposing of night soil and rubbish and if so required by the state
government, preparation of compost nature from such night soil and rubbish. Constructing
and altering and maintaining public latrines and urinals. Acquiring and maintaining
changing and regulating places for disposal of the dead and disposal of unclaimed dead
bodies and carcasses of dead animals. Providing special medical aid accommodating for the
sick in time of dangerous disease and taking such measures as may be required to prevent
the outbreak or to suppress and prevent the recurrence of such disease. Establishing and
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maintaining public hospitals and dispensaries and family planning centers and providing
public medical relief. Overall this is the section with most exhaustive list having maximum
function related to health and sanitation covered here. They are even more then the once as
delineated by the 74th CAA. This would ensure smooth working of the municipality
regarding basic activities.
2.12.3 In the sphere of development and town planning
Constructing and altering and maintaining public streets, culverts, municipal boundaries
marks, markets, slaughter house, privies, drains, sewers, drainage works, sewage works,
baths, washing places, drinking fountains, tanks, wells, dams and the like. Suitable
accommodation for calves, cows or buffaloes required within the municipal borough for the
supply of animal lymph. Printing of such animal reports of the municipal administration of
borough as may be required by the general or special order of the state government. Paying
the salary and the contingent expenditure on account of such police and guards as may be
required by the municipality for the purposes of this act or for the protection of any
municipal properties. Imparting agriculture by suitable measures including crop protection
and crop experiments. Devising town planning within the limits of the borough according
to the law relating to town planning for the time being in force.
Lighting public streets, places and buildings. Extinguishing fires and protecting life and
property when fire occurs. Removing obstruction and projection in public streets or places
and in spaces not being private property which are open to the environment of the public
whether such spaces vest in municipality or in government. Erecting substantial boundary
marks of such description and in such position as shall be approved by collector, defining
the limits or any alteration in the limits of the municipal borough. Registering births,
marriages and deaths.
From the above instances we can see that tremendous importance is given to the area of
public health, sanitation, development and town planning. But if a quick comparison is
made with the 74th CAA we can’t help but notice that here is an exhaustive list for above,
mentioned areas but unfortunately there is no indication of social and environmental issues.
Urban areas in 3rd world countries have pressing issues regarding housing, strengthening o
weaker sections of the society, environmental conservation, depletion of natural resources,
deforestation, etc. these have been completely neglected by the state in provisions mad
under Gujarat Municipalities act 1963.
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Municipal finance in Gujarat Urban local bodies known as Municipalities and Municipal corporations and are working
on the principle of local self-government in their respective local areas. Municipalities and
Municipal corporations are governed by the Gujarat Municipalities Act, 1963 and Bombay
Provincial Municipal Corporation Act, 1949 respectively. The urban local bodies formed on
the principle of local self-government are expected to cater to the civic needs of people in
their jurisdiction such as water supply, drainage public health, sanitation, recreation,
amenities and others.
Local resources with appropriate external help, are vital and crucial for the growth and
development of local areas. At present urban local bodies are financially helped by State
government by way of grant-in-aid, subsidies and loans etc. Gujarat Municipal Finance
Board was established by the State Government in Year 1979. This renders help and
guidance to the local authorities in respect of their financial resources and advises
Government to lay down criteria for giving various grants and loans.
Institutional Arrangement for Fund Transfer within the State The state government constituted the Urban Development and Urban Housing Department
(UD&UHD) to support planned development in the state. It came into existence in July,
1983. Gujarat Urban Development Mission (GUDM), Gujarat Urban Development
Company Limited (GUDC), Directorate of Municipalities (DoM) and Gujarat Municipal
Finance Board (GMFB) are the State Level Agencies which comes under UD&UHD. Apart
from this Gujarat Water Supply and Sewerage Board (GWSSB) is a State Level Nodal
Agency (SLNA) which helps in implementing schemes for urban water supply and
sanitation to ULBs.
Directorate of Municipalities (DoM)
2.15.1.1.1 Administrative Role:
1. Approval of Municipality Rules / Sub-rules.
2. Approval of staff/Pay scales.
3. Administrative inspection of Municipalities
4. Primary investigation of the charges against the officers of Municipality.
2.15.1.1.2 Semi- judicial Role
About removing the Municipality President / Vice-president / Members and deciding their
roles and responsibilities appealing under Gujarat Municipalities Act, 1963
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Gujarat Municipal Finance Board (GMFB) It was established in 1979 under the legislation passed by Government of Gujarat. The main
objectives of GMFB are as follows:
Encouraging ULBs in provision of civic amenities by advising on augmenting
financial resources and arranging institutional finance for ULBs. Distributing SFC
funds and grants and implementing centrally – sponsored schemes are under the
control of GMFB.
It also helps in bringing about administrative efficiency and discipline as well as in
improving infrastructure in the state and handling urban problems.
State Level Nodal Agencies (SLNAs) State Level Nodal Agencies are the administrative department of the State Government
responsible for implementations of programmes. Gujarat Urban Development Mission
(GUDM) and Gujarat Urban Development Company Limited (GUDC) are the state level
nodal agencies. Both the agencies have been formed to facilitate urban development
especially in regards to infrastructure building, capacity building and project financing.
2.17.1.1 Gujarat Urban Development Mission (GUDM)
GUDM in "City Year - 2005" at the end in order to continue to pursue efforts to Gujarat
Urban Development established. The goal of the mission is to support the development of
urban renewal and urban infrastructure in a given time schedule in order to achieve a better
standard of living, facilities, creating a suitable environment for people to live and work in
urban areas of Gujarat. GUDM main objectives are:
To support organizations and urban local communities to plan, build, operate,
manage and maintain basic urban infrastructure
To extend the technology, financial coordination, equipment and planning support
for UWB
To get the support of private enterprise and the public for the implementation and
maintenance of projects
To support and provide financial and technical assistance to the slums and informal
settlements
To strengthen the urban transport system by adopting new integrated transport
network technologies and traffic management
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To strengthen regional and networking of regional city to allow small cities access
to best practices worldwide planning
Development of heritage sites and allow cities to re-discover their unique philosophy
and identity
2.17.1.2 Gujarat Urban Development Company Limited (GUDC)
GUDC is positioned to facilitate urban development by helping the Government of the State
and the existing agencies in the formulation of policies, institutional capacity building and
implementation of the project, and assist in the financing and implementation implementing
projects. GUDCs role is to assist the state government in terms of preparation of the policy
and strategy for urban development, the upstream collection To- database of current
information on urban development and channelizing subsidies / additional tax sharing
between the state and the ULB on the basis of agreed criteria. Apart from using the state
government, it also helps ULB and UDAs in the identification, removal and viability of new
development areas. ULB UDAs and help in the identification, preparation, structuring and
execution of projects in local infrastructure with / without help from the private sector. The
projects in sectors such as roads, storm water drains, water supply and sanitation, solid waste
management, street lighting and slum upgradation would be given emphasis. Also, provide
advisory support to urban local bodies (ULB) in various aspects of capacity building,
especially upgradation management systems. Support will be provided for institutional
development in accounting, computerization, training and equipment needs, and reforms of
the state-level agencies, including the pool-funding mechanism of municipal bonds in the
markets capital
Gujarat State Finance Commission (GSFC) Gujarat state has only one SFC so far, which was formulated on 15th September 1994 in the
development of the state government notification. Interim report in September 1997 and
October urban local bodies in the final report of the Committee, the first report of 98 Gujarat
State Financial Committee is very preliminary, because it lacks experience. Significantly,
the first of the Finance Committee, composed in 1994, which lasted four years, with
decentralized funds to local agencies to submit reports. It makes 63 recommendations for
rural institutions, and institutions for the city's 76 recommendations. Among them, the State
fully accepted 42 recommendations and eight parts of rural local bodies. As the main city,
46 recommendations were accepted fully, three-part, 12 with some modifications. Gujarat
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FSFC report is a documentary nature, fiscal decentralization framework, mainly
concentrated in the fight for the source of information about the existing taxes.
Sources of Funds for ULBs As discussed in the earlier chapter, ULBs have a high dependency on state and central funds
for provision of basic Urban Infrastructure to the cities. The figure below shows the flow
pattern coming to ULBs in different forms. The sources of funds for ULBs are in two forms,
firstly sharing of revenue taxes and secondly sharing through grants- in- aids. The tax
revenue sharing depends on different devolution criteria. The grants- in- aid are largely
through various centrally/ state sponsored schemes and programme.
Aim, Objective and Methodology
3.1. Need for study
3.2. Development in urban fringes
3.3. Rural to urban transformation
3.4. Evolution of growth dynamics
3.5. Study of growth pattern
3.6. Current scenario
3.7. Research question
3.8. Aim
3.9. Objectives
3.10. Conceptual framework
3.11. Structure
3.12. Research methodology
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Need for study Peri-urban areas have remained focus of study of researchers across many disciplines since
many years. Similarly Peri-urban areas of Ahmedabad have also been studied and a
summary of the previous researches done for the Bopal and Ghuma village related to their
growth and governance have been presented below. In-depth study was conducted so as to
understand the existing study and create a background and it also gives the scope of further
research.
Development of urban fringes – a case of Ghuma village
The growth of any City, Village or Settlement is totally depend on, the opportunities it gives
to the people in terms of the
economic development and
accommodation. Apart form these
internal factors, there are certain
external factors like the locational
advantages, which is unique in each
case. Urban sprawl promotes the
spread of urban land use into the
urban finges drawing a larger
number of people into the rural-
urban interface, mostly because of
these internal and external factors.
In such situation, the pressure
increases in the urban area, the
demand of land increases, the land
prices goes up, even the sharing of
basic infrastructure like road network, water supply, sewerage; and natural resources like
land, ground water increases. Apart form that the local authority also tries to imply the
planning framework for the guided development with the control regulations.
The focus of study was to understand the reasons behind the development of urban fringes
of the city and its impacts and study the development trend, intensity of growth in the
Figure 8: Map of Ghuma Village
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fringes, find out the issues related to the physical development, infrastructure and the
administrative systems in these areas.
The development trend of the peripheral areas can be studied by referring the various
government data and records. There will be the major dependency on the records and these
records are not properly maintained. The scope of work geographically restricted to Ghuma
village. The method for collection of information about land development process is based
on the informal discussion with the major decision-makers.
Major objectives of the study was to identify growth pattern of city and fringe area, situation
when they are included in authority jurisdiction, and to understand the existing institutional
framework for administration and management of the fringe areas and the discrepancy
existing during its development process.
Issues identified were as follows:
Panchayats in the fringe areas generally lack the financial resources as well as
technical expertise to plan and manage the speedily developing fringe areas.
Taxation: The taxes (property and service) are relatively higher in the city than in
the fringe area and therefore attract industries which intensifies development.
Political considerations: At present decisions regarding the extension of civic limits
in fringe areas are mostly on political consideration, and not based on certain survey
analysis of ground reality situation.
Weak or no compliance of 74th CAA: Compliance of 74th CAA in terms of
constitution of MPC/DPC and prepare Metropolitan and District Development
Plans.
Weak enforcement of the plan: Regional plans are prepared but the enforcement of
these plans is weak. This is because civic bodies have no effective jurisdiction
beyond the master plan of their area and the village Panchayat officers do not bother
to see the statutory provisions of the regional plans while permitting development in
the urban fringes resulting in large unauthorized haphazard development takes place
in the first belt of the green zones.
Organization for fringe: It may be the existing civic body or a new development
agency or a private cooperative agency depending upon the prevailing local
condition and the most suitable strategy option tested at that time.
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Dichotomy of the Census: There are two kind of urban definition: one, administrative
criteria, that it, all statutory towns and urban local bodies are considered as urban;
second, demographic and economic criteria. The latter are termed as “Census
Town”. However only statutory towns are accorded urban status and the Census
Towns are not granted urban civic status and are governed by rural local bodies.
(Bagat,2003)
Multiplicity of authority: In an urban setup land is most amenable to political and
bureaucratic maneuvers. The administrative overlap, involving several government
departments, like State Revenue Department, State Town Planning Departments,
urban local bodies and even village Panchayats, in situations where the fringe area
is not inside corporation limits, often result in inadequate appreciation and isolated
interpretations of a plethora of changing rules that remain un-enacted.
3.2.1.1 Major Findings of the study are
In Ghuma transformation has happened majorly
Because of low land price in the area
Location on S.P. Ring Road & on way to Sanand
Strong connectivity with Ahmedabad city
3.2.1.1.1 Land value is plot wise calculated like happening in urban areas. In the Transformation
process, we can say that Ghuma is reached till “Urban Village” (Post Transition) with
High Population Growth Rate
Change in Employment Sector
Change in Land use
3.2.1.1.2 Positive Inferences
With the inclusion in AUDA the village would be facilitated with physical
infrastructure facilities such as proper road network, street lights, sewage.
Storm water drainage has already been done for the village by AUDA.
Land prices are observed to increase due to services planned for the area.
Ghuma lake and garden development is a project which is taking place since a year.
3.2.1.1.3 Negative Inferences
Farmer’s community such as Bakshpanch, Thakor have loose because they didn’t
plan for their future.
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Solid waste is being dumped along the roads and open areas.
Ground water of the area is getting affected.
Panchayat does not have sufficient funds to cater the needs of the entire village
development. (Kankaria)
Rural to urban transformation in case of Bopal village
Ahmedabad The study is carried out for the western fringe of Ahmedabad looking to the pressure of
physical development on the western fringe of Ahmedabad. Selection of the area was based
on these criteria: Location around Ahmedabad city, higher rate of growth of population,
higher growth of Real Estate Development, Occupational Shifts.
The scope is limited to selecting the
study area of village from the
periphery of Ahmedabad. Bopal
village located in the western fringe
area of the Ahmedabad city is
selected as a study area. The entire
focus is to study the growth and
development of the Bopal and its
causes and impacts and the major
issues related to it. Also the study
will focus the development trend,
intensity of growth of the Bopal, and
find out the problems related to the
physical development of the area,
infrastructural services and the
administrative systems of the Bopal.
Since the last decade, Bopal is passing through the tremendous growth development. In last
one decade became one of the very popular places for the investment for the Real Estate
Developer. The area has experienced an enormous growth of population and decrease in
agricultural activities and a consequent increase in non-agricultural land. The study area is
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outside the Ahmedabad Municipal Corporation boundary and has developed drastically. The
study helps to understand the growth and development of fringe area as follows:
The study has helped to understand the process of development of fringe area in
various stages of development with the valuable data the land transactions and
NABP in the study area.
This study indicates the problems related to infrastructure facilities and new
development process in fringe
area of Ahmedabad city outside
A.M.C. limit, which will be part of the city in the near future; also it has given
suggestions to solve these problems.
The inadequate facilities of infrastructure and social amenities in the fringe area also
have been identified in this study. So, this will help planners/ competent authority to
plan for the future development of infrastructure in the fringe area.
3.3.1.1 Main issue of the study are is as below:
Lack of physical infrastructure like water supply, sewage, solid waste management
and proper road network.
Lack of social infrastructure like consolidated open spaces, Public Gardens
Increasing the no. of haphazard and unauthorized development
Lack of development Control Mechanism and Monitoring system
3.3.1.2 Development of Alternative Planning Approaches
Urban and peri urban area are the confusion of the administrative boundary. In terms of
administration it is very difficult and in terms of growth pattern the difference cannot be
clearly distinguished. Proper Planning framework and institutional approach is also needed
for the peri- urban villages.
Extending the AUDA (Urban Development Authority) limit
Restricted Development Permissions in Peri- urban Villages
Regional Development Plan
Village Development Plan
Proposed schematic & Conceptual Plan (Yadav)
Figure 9: Map of Bopal Village
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Evolution and growth dynamics of rural and urban fringe zone:
a case of Ahmedabad agglomeration
Rural settlements absorbs in urban limits during the process of development, and also those
located in the fringe areas of large cities, can be termed as urban villages. These settlements
area are in rural transformation stage because of core city or the changing livelihood pattern
and change in land use. In particular the fringe areas of the city, especially along the major
roads and corridor are characterized high speculation of land price on agriculture land with
development of residential colonies and industries. Infringe area physical planning is being
more dominating then the socio-economic development strategies. The urban areas are
expands significantly towards its fringe areas and the more and more villages accommodates
rapidly over a period of time and the issues of urban villages regarding the haphazard
physical development and infrastructure services and finally to the quality of life of the
villagers increases.
Primary Research objectives were to understand of relative functional importance of fringe
area as per the strategic in action. Morphological and structural dynamics of change in
growth. To study the intensity of impact of urban growth on different category of settlement
in fringe area. To study the nature of change in livelihood and to understand the appropriate
scale of amenities and services to be delivered in the fringe zone as per category. (Patel)
Study of growth pattern in peri-urban area: a case of peripheral
areas of Ahmedabad Extraordinary population growth and rapid changes in population distribution are two of the
most phenomena of our times. The rapid urbanization process and the concentration of
population in metropolitan areas is a result of development in periphery area of the core
urban area. This rapid growth in urban and metropolitan areas has resulted in a number of
paradoxes. In spite of the increase in national wealth and personal income, the condition of
urban areas is declining.
Also because of population growth and rapid changes in population distribution the demand
for land also increases for different purpose as follows 1).industries, 2).individual
plot/private housing as result city growth happen it goes in specific manner or different
stages of development as follows : 1)Traditional development, 2)Industrial development,
3)Technological development. With the different types of growth pattern as follows: 1)
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leapfrog, 2) infill, 3) strip. in the different types of area as follows: 1) Urban, 2) Suburban,
3) Peri-urban. Study focus on the different types of growth of physical patterns in peri –
urban areas.
The developing countries are causing and exceptionally rapid increase in the demand for
urban land. Land location is specific and existing urban plots cannot be reproduced. Of
these, the most important transition for the rapidly rural to urban use. The lack of proper
guidelines and monitoring systems at the institution level in the peri-urban areas often
attracts the people and developers to concentrate or to invest in these areas, particularly in
the immediate peripheral area of the urban limit. Gradually, the area develops but without
planning or land use specification.
The unfortunate thing about these peri – urban areas is that there are no planning agencies
working here. Herewith, the village level local body (village panchayat) which only deal
with the administration of the village and revenue matters. The peri - urban areas in general
are frequently ignored as a specific area within the study of urbanization.
The study is concerned with Ahmedabad city. The rapidly growing major economic and
education center in Gujarat state where prior to land development was carried out through
the public sector. But as a result of the subsequent rapid growth in population, the public
sector has been unable to keep up with the demand for shelter and development of land.
Now public, private and cooperative sector have taken the initiative to cope up housing
demand and land development in the urban area. While many cooperative schemes and
private land developer has been in the public interest but the prime motive of the most
promoters has been profit oriented as the land is seen as a commodity.
The agricultural lands in close proximity of the built-up areas of Ahmedabad are slowly
being converted to urban use. While some of the conversation is part of the planned growth,
the rest of it is haphazard and is being carried out by private co-operative societies, property
agents, land spectators, individual owners and developers. Speculation of urban land by
private developers for vested is leading to haphazard, unplanned and illegal development on
the land. This is also resulting into a reduction in the supply of serviced land for the public
sector. (Rathod)
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Current Scenario
3.6.1 Bopal to come under AUDA a ray of Hope
After Bopal was announced to come under the jurisdiction of AUDA, residents and
developer have seen a ray hope when it comes to infrastructure development. As the past
work of road widening along BRTS corridor has seen a rise in property development.
Drainage line which was a big issues earlier is also now sorted out as now most of the
properties are connected to Drainage facilities after intervention from AUDA.Also, rain
water pipe line is a huge plus point for the region. But he issue of High TDS in water still
remains unresolved. (TNN, 2008)
3.6.2 Danger of unorganized development in Ghuma same as Bopal
With the High Court to put a stay on the sale of the non-agricultural land Bopal and AUDA
cap construction, builders and home buyers are Ahmedabad neighboring suburb Ghuma and
Sanand area is unregulated construction. The High Court will on non-agricultural land for
sale Bhopal Ahmedabad Ahmedabad suburb Accommodation and Urban Development
Authority (AUDA) decided to stop in these areas, and drainage infrastructure until all the
buildings improvement, builders are in a straight line to Ghuma and Sanand near suburbs.
As each of the prominent developer of affordable housing market is the ideal choice for the
majority of customers, but most of them are now building toward stagnation Ghuma move
there without restriction. Buyers, however, is skeptical of the unregulated construction.
They believe that unless AUDA, which, at present, eager to get the government nod for
Bopal field of urban planning, focusing on Ghuma, these areas may have the same fate as
the former accord (Service, 2008)
3.6.3 Sill lack infrastructure
Bopal is said to have been constantly neglected by the ruling party i.e. BJP and Ahmedabad
urban development authority and hence is facing several issues related to drainage, drinking
water, and traffic created due to construction work going for BRTS. Old bopal area is
neglected by AUDA as they want to levy betterment charges for any further work they take
up on the residents. As per the source the reporter interviewed, a bungalow resident will be
required to pay around Rs 80,000 to Rs 1,00,000 as betterment charge, and for a flat it will
be ranging from Rs 40,000-Rs 60,000 per flat. This area is the only place where AUDA is
gong to collect the betterment charges.. As per a local resident Jayshree Patel drinking water
is a major issue she says that “ there is hardly any development in the Bopal gam. Water
supply is erratic as there is no adequate water supply provision with the panchayat”. The
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residents have to consume water of very high (i.e. 2,500 to 3,000) TDS (Total Dissolved
Solids) drawn from a single borewell. Bhagvatibenpatel a resident of Bhavyapark said that
the society water tank has to be cleaned in every three months as the high salinity of water
sets in. this water quality have pushed people to find out some other solution creating a
maximum privater RO suppliers and water markets. Talk to both the major political party
leaders i.e. the BJP and Congress leaders and they would say that roughly only 25% of the
area lack drainage connection, but an official of the Nagar Palika requesting anonymity said
that the drainage lines have been laid in the area and even the individual bungalows and
society have laid their lines. However, these societies are yet to be given official
connections. Around 80% of the societies have taken illegal connections. (Kaushik, 2015)
Research question "What are the challenges faced in the governance of peri-urban areas that are transiting from
rural to urban government structures?
What are future prospects of improvement?
Aim "To study the changes in governance institutions in Bopal Ghuma area, the challenges faced
and future prospects"
Objectives To understand governance for peri-urban areas in Gujarat.
To study changes in functional and financial domain of Bhopal-Ghuma due to the
transition from gram-panchayat to a Nagarpalika.
To analyze the existing institutional framework of governance and service delivery
in Bopal-Ghuma in reference to the provisions under the Act
To identify the opportunities arising from the change and emerging problems due to
this transition.
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Conceptual framework
Objective Sub-objective Tasks Data Sources
To study changes
in functional
domain of Bopal-
Ghuma
Nagarpalika due
to transition from
rural-government
to urban
Study functions performed by
Bopal and Ghuma gram panchayat
in their administration area.
Bopal-Ghuma
Nagar
panchayat
office
Directorate of
municipalities
State election
website for
Gujarat
Municipalities
act 1963
Document of
CAA
Primary Survey
Study functions mandated under
CAA
Study state government norms for
municipalities
Comparing the functions
performed by gram panchayat and
additions of functions from this
transition.
Detailed institutional mapping and
various agencies involved in
providing services.
Detailed
institutional
mapping of
infrastructural
services
To study changes
in financial
domain of Bopal-
Ghuma
Nagarpalika due
to transition from
rural-government
to urban
Study panchayat budgets of Bopal
and Ghuma of past three years
Study budget
docs
Study trends from the panchayat
budget
Do a statistical
analysis
Comparing it to the budgets of
other Nagarpalika
Comparison and
analysis of
budgets
List of new sources of revenue
generation from the transition
Studying
innovative mode
of funding and
other municipal
budget revenue
generation
Table 2: Conceptual framework for research
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Structure
Structuring the subject
Contextual Study Studying the legal framework
Defining Aims and Objectives
Department Visit Spatially mapping the services
Preparation of study framework
Comparative study Finding major issues
Enlisting the challenges faced
Develop an approach to solve the problem
Future prospects
Chart 2: Structure of the thesis
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Research Methodology:
3.12.1 Literature study
A detailed study of available literature was done to understand the research done on the
similar lines and conducted over the selected site and. Study of the literature related to peri-
urban issues and areas under transition from rural to urban. From the initial study it was
realized that this transition creates issues related to provision of services, governance as
there are changes in institutional structure. The various theories and case studies were
referred for the understanding of various issues related to the governance changes in peri-
urban areas, to define the Peri-Urban Villages, to study the challenges and prospects for the
same. Moreover extensive literature study is done on resources available on Bopal and
Ghuma and transition happening in that area. The study create a base for my research and
have laid out scope for further research. This includes articles written related to transitional,
issues in small towns of India, decentralization and its efficiency, constitutional framework
to understand powers and functions of municipality. Moreover newspaper articles on current
scenarios was also study the issues face by the residents. Further studying the unpublished
thesis available at CEPT university library related to the context as well as the subject
proved to be very helpful.
3.12.2 Data collection
The findings of this study are majorly dependent on the detailed study of secondary data.
Study of government records and documents as well as the budget documents were studied
in depth. To understand the working of the institution as stated by the federal government
under 74th CAA which defines functions for a ULB’s. Timely and appropriate following of
this act meant devolution of powers and functions efficient decentralization. There is major
dependency on state as this law did not abide any compulsion, but left on the state
government to decide. This was the biggest loop hole in the 74th CAA. Hence it became
inevitable to study the functions for the municipality as delineated by the state government.
This was studied through the comparative study of Gujarat municipality’s act 1963, Gujarat
panchayats Act 1993. With this budget documents of past five financial years were collected
to analyses the fiscal capacity of the ULB even when it was a gram panchayat. Moreover
data for institutional matrix was done to understand functions performed by various
institutions. Also census data will be used to find out the population statistics for Bopal and
Ghuma
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3.12.3 Field visits:
Field visits were primarily done to understand the new governance structure, the functions
performed, efficiency in service delivery and the fiscal domain. Moreover interview of the
old and the new key actors in the system would be conducted. Observations were made
during detailed study of the secondary document.
Key person’s interviews: No of visits were made to the Bopal-Ghuma Nagarpalika for
varying reasons. Gradually through snow ball sampling information and data were collected.
1st visit: Initially I met the staff at the office to understand the working of the institution. I
met the clerks and others to acquire basic information. During this visit discussions were
done to understand the working of the Nagarpalika. Questions were asked to figure out the
effects of transition and how it was handled by the staff. Prominent effects due to these
changes were observed and noted after the discussion.
2nd visit: It was made to collect information regarding the roles and responsibilities of the
Nagarpalika. The functions that they took up were listed and later on compared to functions
enlisted in Gujarat municipalities’ act 1963. This also gave an idea of working and
efficiency of the gram panchayat. Its peri urban characteristics were clearly noticed here.
During this visit a meeting with the clerk was done to gain information.
3rd visit: This visit was made to collect records of the previous budgets. Moreover questions
were asked so as to know that whether fiscal decentralization was exercised or not. Also
understanding of the procedure for demanding a grant was understood.
4th visit: In this visit discussion with the officials was made to delineate new boundary as
there was no map present with the municipality. This was done using google imagery as the
base map and old cadastral maps of both the gram panchayats. The map prepared then was
digitized using Arc GIS. This map was then used for all future references and spatial
mapping.
5th visit: with the base map ready an effort was done to create an institutional matrix and
to map it spatially. This was followed by a making a detailed institutional matrix for service
delivery and comparing it with the acts. Here I met the office superintendent to gain data.
6th and 7th visit: these visits were made in the entire administrative area of Bopal and
Ghuma to physical check the data of service delivery and for spatial mapping of the same.
This also helped in understanding the area better. Also observations were done along with
visual survey for the services.
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8th visit: revisited the office to clear doubts regarding service delivery, gain detailed
information and also rechecking the information gained from previous site visits in the area.
9th visits: A detailed understanding was made during discussion with the Accounting staff
regarding the fiscal capabilities of the Nagarpalika, challenges faced and future
expectations.
10th visit: this visit was made to discuss the findings of my analysis and research and to
confirm if I was missing anything. This meeting was made with the office superintendent.
3.12.3.1 Key persons interview
No. of visit Key person Designation
1st Entire staff -
2nd Abhimanyu Chudasama Clerk
3rd Urmilaben Patel Head clerk
4th Multiple officials -
5th Rajesh Patel Office Superintendent
6th and 7th Local residents -
8th Jatinbhai Office Superintendent
9th Rameshbhai shah Head of accounts department
10th Jatinbhai and Rajesh Patel Superintendent officer
Table 3: Field visits and key person’s interview
3.12.4 Observations
During the site visit to check the service delivery of the area and to spatially map those a no
of observations were made. Moreover a visual survey was conducted alongside.
Observations for built-environment were made to understand the physical characteristics of
the area. During this interview with the local residents was conducted to have a different
perspective. Moreover these observations were also made for transition in the area from
rural to urban.
3.12.5 Analysis
Analysis was done through in-depth study of the secondary government documents such as
Gujarat municipalities s act, 74th CAA. roles and responsibilities of Gram panchayat,
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government orders, etc. were done to understand the expected government setup as per
national and state laws. Moreover documents collected from the Nagarpalika include
Budget documents of last five years. And other documents related to collection of taxes and
other such data. Spatial mapping of institutional responsibilities for service delivery in the
area and budget document analysis. The secondary data would be used to trace the changes
in the institutional setup corresponding to the transformation in the area.
3.12.6 Scope & Limitation
The entire focus is to study the institutional changes happening in Bopal-Ghuma after their
merger to form a new Nagarpalika. Also the study focuses emerging challenges from this
transition and future prospects. Due to time constraints study is conducted only on
institutional changes for Bopal and Ghuma Nagarpalika only. Administrative aspects of
functionaries and capacity are not in purview of this research. The research based on
secondary materials, available government data and records and there was major
dependency on records. There was major dependency on government records, and primary
data.
City Profile
4.1. Background
4.2. Location and regional setting
4.3. Growth of Ahmedabad
4.4. Planning area
4.5. Peri-urban areas of Ahmedabad
4.6. Review of development plan
4.7. DP 2001
4.8. DP 2011
4.9. Bopal-Ghuma
4.10. Demographics
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Background Gujarat is one of India's most developed countries. The state is endowed with huge mineral
reserves, and has a high industrialization. It has a high growth of GDP and contributes nearly
20% to India's total industrial output. The main share of the power, construction and trade
contributed to the prosperity of the country. Gujarat is standing on the 5th to the country's
total GDP contribution.
Figure 10: Map of Gujarat with districts
Source:https://upload.wikimedia.org/wikipedia/commons/0/0a/Map_Gujarat_state_and_di
stricts.png
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Gujarat shares its north western international
boundary with Pakistan. It has the longest
coastline of about 1600kms. Compared to all
states in the country. With the 2001 census one
can say that Gujarat has 25 districts and 225
taluka which are composed of total 18066
villages and 242 towns. Gujarat’s accounts 6.19
percent of area of the total area of the country
with actual geographical area being of 1.96 lakh
sq. kms. The state of Gujarat a present has a
total of 27 districts.
As of Population Census-2011, State’s
urbanization worked out to 42.59% and it
ranked at 6th amongst all the states of India.
State’s urbanization 42.59% is higher than
national average of 31.16%. There are 8-Municipal corporations and 159 Municipalities in
the State. As of population census-2011, out of 60.43 million population of the state 25.74
million (42.59%) of population resides in Municipal corporations and Municipalities. All
municipal corporations and Municipalities have electricity, water supply and street light
facility.
For Gujarat and Western part of India Ahmedabad has turned out to be an important
economic and political center. It was a major trade and commerce hub during 16th and 18th
century. It was rightly called the Manchester of India during the British rule due to presence
of several textile mills. Even today it turns out to be a major industrial and trade hub. Gujarat
state comprises of 8 municipal corporations and 9 urban development authorities, wherein
Ahmedabad is the largest city in Gujarat with its area as well as population count. IT is third
fastest growing cities of India and the seventh largest metropolitan area.
Location and regional setting Ahmedabad is situated in the heart of Gujarat in the Sabarmati river basin. River Sabarmati
divides the city into two halves and the city has developed around it. Moreover it has been
a major transport and trade connection. There is a strong transportation connections to the
neighbouring states and also to the surrounding major cities within the Gujarat state via rail,
road and air.
Figure 11: Ahmedabad district in context of
Gujarat State
Source: http://www.veethi.com/places/gujarat-ahmedabad-
district-277.htm
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Growth of Ahmedabad Ahmedabad has periodically developed with the passage of time in about a period of 600
years. The rapid development of Ahmedabad began after independence. A major increase
in the area is noticed between the years of 1932 and 1949. Further a very rapid growth was
observed, almost with 43% from the year 1996 to 2005 in the urbanized area of Ahmedabad.
The greater Ahmedabad area has grown at a moderate rate. Growth rates have declined from
3.2% to 2.2% in this decade and a decade prior to this. Nevertheless, there is variation in
rates the rates vary over diverse spatial units. Stabilization level have been approaching for
population within the limits of AMC. Moreover within the AUDA limits which is in close
proximity to AMC limits, have been showing rapid growth.
In the peripheral areas, the population growth is more rapid than the areas within the city
limits. This is because of the congestion of population within the city area and rapidly
increasing large scale housing development in the peripheral areas of the city. The
contrasting spatial patterns observed in the eastern and western areas of AMC have extended
into the peripheral areas in the same manner. The western part is experiencing more rapid
growth than the eastern part.
Figure 12: Growth of Ahmedabad
Source: Ahmedabad Municipality Corporation (Secondary source: Thesis by Priyanka Kankaria)
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Ribbon development is the form of rapid growth happening along Sarkhej-Gandhinagar
Highway which has been observed throughout 1990’s.. trends like these exaggerate in the
forthcoming decades. Moreover it should be noted that the spatial expansion feature of
Ahmedabad is principally contiguous and moderately compact. The population of
Ahmedabad in 2011 was about 65 lakh and the density was 500 sq. km whereas this
population is expected to grow upto 1 Crore in 2035 and density 800 - 900 sq. Km.
(Ahmedabad CDP, 2006 - 2012)According to Vaidya, the projected population Ahmedabad
by 2026 is going to be the second highest in India after Mumbai (Vaidya, 2009)
Planning area and Administrative Framework Based on the Administrative entities the AUDA area can be categorized in three distinct
areas:
1. Ahmedabad Municipal Corporation
a. Municipal Corporation in July 1950 under the Bombay Provincial Municipal
Corporation Act (BPMC). The AMC area was divided into 43 wards and 5 zones,
namely Central, North, South, East, and West covering an area of 190 sq km before
year 2008.
Map 2: Map of AUDA boundary
Source: AUDA DP, 2021
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a. Since 1980’s peripheral areas began its expansion and has still continue to do so.
Initially the eastern part and the predominantly the Eastern periphery showed growth
rate on a faster pace, but the trends changed from 1980’s as the western periphery
has also showed growth at faster pace.
2. Growth centers (Five Municipalities)
a. Five Nagar Palikas namely Kalol, Sanand, Bareja, Mehmedabad and Dehgam are
identified as growth centres. These centers are expected to experience population
growth due to the industrial and economic development coming in to the
surrounding areas, such as Special
b. Investment Region (SIR), (Special Economic Zone) SEZs and industrial corridors.
3. Rest of AUDA
a. Rest of AUDA includes villages surrounding Ahmedabad Municipal Corporation
area other than Growth Centers within the AUDA
b. The notified Ahmedabad Urban Development Authodity area is carved out of the
four districts and nine talukas which include Ahmedabad city, Sanand and Daskroi
Map 3: Administrative boundaries of various authorities
Source: AUDA DP
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talukas from Ahmedabad district, Dehgam, Gandhinagar and Kalol talukas from
Gandhinagar district, Kheda and Mehmedabad talukas from Kheda district and Kadi
talukas from Mehsana district. AUDA is surrounded by the Sanand, Viramgam
special investment region (SIR) on the western periphery and the Changodar SIR on
the south western periphery and GUDA to the north. The Dedicated Freight corridor
(DFC) passes through AUDA on the western side of the city of Ahmedabad.
c. Auda was formed with the prime objective that they can carry out a sustained and
planned development for the area outside the periphery of Ahmedabad. Primary
function of this organization is preparing of physical plan that includes preparing
draft town planning schemes and to control developmemnt activities for Ahmedabad
agglomeration area.
d. Moreover development of infrasructure like, sewarage, road, water supply and other
basic amenities is under their responsibility.
Peri- urban villages, scenario in Ahmedabad It has been identified
through satellite
imaginary and through
land conversion
documents that the peri-
urban development in
case of Ahmedabad is
occurring around
villages like Bopal,
Ghuma, Rancharda, etc.
These villages are just
outside the AMC limit
as well as AUDA limit.
While much of the peri-
urban development is of
residential in nature,
Map 4: Delineation of contiguous growth of Ahmedabad
Source: http://utbenchmark.in/UsersidePages/CityProfile.aspx?City=1
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sizable industrial development has also taken place especially in the periphery areas, which
are eligible for incentives in the form of subsidies etc.
Since these villages are outside the municipal limit as well as they were outside AUDA
limits no overall plan exists to guide the development process. As a result the development
is taking place at random and in haphazard manner. There is no institutional mechanism to
provide roads, infrastructures and social facilities of the kind available in Ahmedabad Urban
Development Authority Areas. The Gram Panchayats having jurisdiction over this
development have neither the technical manpower nor the resources needed for the task. As
a result even when resources and manpower becomes available it may be very difficult, if
not impossible to provide infrastructure and services in these areas at the later stage. The
random and haphazard nature of development will also make the provision of basic services
extreme ly expensive. Quite a few of the residential areas are occupied by the upper middle
and middle class working the university, Indian Space Research Organisation and other
institutions in the western areas of Ahmedabad.
Lower price of land has also led to development of some lower income housing. The element
of speculation is reflected in the number of societies and schemes where plots are sold but
are lying vacant. Some of the schemes have facilities like clubs etc., which are frequently
used by the members mostly during the weekends. While the overall urban growth is the
major cause of growth in peri-urban areas, more detailed scrutiny reveals that the population
in peri-urban areas consists of mainly:
a. Rural-Urban Migration (Surplus agricultural manpower attracted by opportunities in
urban areas)
b. Urban-Urban Migration (Movement of people from smaller towns to larger ones)
c. Natural Growth of population within the city resulting in demand for additional
space.
d. Changing attitudes, life style, standards of living causing movement away from high
density and congested areas.
e. Socio-economic factors like communal harmony, law and order situations leading
to the shift of population to the outer areas.
f. Restriction on development within the city on account of Urban Land Ceiling Act,
DCR, long and cumbersome procedures for obtaining approval and permission for
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development, high land prices within the municipal areas. This encourages
development happening in peri-urban areas.
e. Administrative Boundary. It includes 169 villages combining with 1866 sq km of
land.
Review of Development Plan
Development plan 2011 The overall development
plan prepared by AUDA
for year 2011, published
in 1997 and later revised.
Whereas detailed land
use of western part of
Ahmedabad. As per this
plan the areas between
SP ring road and SG
highway are designed as
R2 zone (orange) and R3
zone (green).As per development control regulation in these areas allow low rise, low
density residential use only. As per this decision the development in this area has limited to
a particular residential typology reduces the density per hectare. On the one hand city
population in increasing, asking more land to accommodate added population, whereas this
decision reduces the possibility to accommodate more number of people within the 2011
AUDA limits. Regulations forced to grow even beyond SP ring road. As a result the city
has started to utilize areas beyond SP ring road which are majorly agriculture in use and
were even outside the AUDA limits as per the 2011 DP. (Rathod) The area under which
Bopal and Ghuma falls. And hence this was the factor that had influenced the sudden
developemnt after the year 2000.
Figure 14: AUDA DP 2011 Bopal
area
Figure 13:AUDA DP 2011
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Development plan 2021
AUDA was constituted on 01/02/1978 under the Gujarat Town Planning and Urban
Development Act (GTPUD Act) - 1976. The area under jurisdiction of AUDA was 1295 sq
km. The first expansion was done in the year 2008 that included the village of Bopal on the
western side with an area of 5 sq Km. and the second expansion was done in the year
2009that included 69 villages on the western side covering an area of 566 sq km. the
following table shows the manner in which AUDA is constituted. The AUDA jurisdictional
area comprises of four districts, namely, Ahmedabad, Gandhinagar, Mehasana, and Kheda.
The area under its jurisdiction is now about 1866 sq km, which was 1295sqkm since its
inception. The 2008 revision included Bopal area of 5 sq Km. and the next expansion of 69
villages covering an area of 566 sq km was included in 2009. The overall development plan
prepared by AUDA for 2021. Whereas detailed land use of Ahmedabad. In DP 2021 has
covered/added more area on western side. Also reviewing the development plans (2011,
2021) – The city is spreading on the western side more than the eastern side – there are
number of reasons for much directional spread, particularly on the western side. Some
reasons may be better living standards as compared Ahmedabad, more open spaces,
increasing social amenities like shopping complexes, malls, multiplexes, etc. better
connectivity due to the Sarkhej – Gandhinagar highway. SP ring road.
As result of these benefits more number of residential/town ship project with better
amenities have come up on the western periphery of the city and still May more are coming.
Development control regulation prepared by AUDA have also played major role in
developing these areas. Because of the city spreading on the western side and more
Figure 3:AUDA DP 2021 Bopal Ghuma area Figure 4: AUDA DP 2021
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development already come up since 1990. Moreover even after recognition of development
in Bopal and Ghuma it was left out as the gamtal extension and not any specific zone and is
still outside the A.M.C. limit but fortunately it fall under jurisdiction of Ahmedabad Urban
Development Authority which can provide the basic infrastructure needed.
In AMC area, the network coverage is not completed for the newly merged areas for the
urban services which are under progress and taken according to the TP Scheme
development.
Development outside the zoned areas- In the past decade, significant development has
occurred in the newly added areas within the AUDA area. These peripheral areas did not
have a proper regulatory authority before they were added to AUDA and had haphazard
development
The dependency on ground water continues to be high in the periphery. Apart from the
Municipal bores, a large number of private bores supply water in various peripheral area of
the city. This has affected the groundwater level, which is depleting.
Figure 15: Zoning in Development plan
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Bopal-Ghuma
Bopal and Ghuma are a part of Daskroi
taluka of Ahmedabad district and
located on western periphery of
Ahmedabad. It has Ambli village on the
east. It is abutted by the S.P ring road.
Bopal and Ghuma were individual gram
panchayats before 2015 and were taken
under AUDA in 2008 and 2011
respectively.
Figure 16: Map of Ahmedabad and relation of Bopal-Ghuma
http://utbenchmark.in/UsersidePages/CityProfile.aspx?City=1
Bopal- Ghuma
Figure 17: Daskroi taluka and its proximity to
city core
Source:
http://www.onefivenine.com/india/villa
g/ahmadabad
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4.9.1 Location
Bopal and Ghuma were formulated in 1951. Area of Bopal gram panchayat boundary limit
is 564.98 ha and Ghuma gram panchayat is 600.05 ha. They are located in the Daskroi
Taluka, of Ahmedabad District rural territory, in the State of Gujarat. Daskroi Taluka is one
of the, 12 Taluka of Ahmedabad District, there are total 92 villages comes under the
jurisdiction of Daskroi Taluka. Geographically Bopal-Ghuma is one of the villages, situated
in the outskirts of Ahmedabad city very near to some major highways and ring roads. Bopal
and Ghuma were included in the Ahmedabad Urban Development Authority jurisdiction in
the year 2008 and 2011 respectively. Ghuma is located in the western periphery of the
Ahmedabad, at distance of2kms from Sardar Patel ring road, 5 kms from the NH-8C,
Sarkhej-Gandhinagar Highway and 8kms away from Sanand. Whereas south end of Bopal
is abutted by Sardar Patel ring road and is only 2.5 kms away from commercial district of
Prahladnagar.
Map 5: Bopal and Ghuma administrative boundaries
Source: Google imagery and discussion with Nagarpalika officials
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4.9.2 History
Earlier Bopal- Ghuma were only limited to its
village surroundings. Before 40 years ago
Thakor, Patel were land lords for the land of the
revenue & Parmars used to do labour work in the
agriculture fields. Tuwer, Mung, Gower, Bajra,
Oil seeds, etc were the major crops of the area.
In the year 1982, founder of Inductotherm
Groups (famous for melting, heating, welding
and mass heating equipments) bought the land
for an industry in Bopal which has consolidated
its position as market leader in induction
Technology. Since 1983-84 land lords of the
area started selling out their land to builders
through mediators. Since 1985-86, development
of the area has started with societies like Green
City & Krishna Heart hospital now known as
Shalby Hospital. Panchayat has come to the area
for administration & management of the area.
Bopal and Ghuma village developed from an
area as small as 8-10 kms. From the given
progressive images we can see that the
tremendous growth happening over the years is
much more in Bopal than in Ghuma. Key factor
being its proximity to S P ring road, and areas
developed areas of Ahmedabad like
Figure 18: Bopal-Ghuma BRTS
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Prahladnagar and Shivranjini. Sardar Patel
ring road’s 1st phase was operational from
2003 which improved the connectivity to
Ahmedabad and other villages around greatly
from Bopal. Moreover BRTS system which
connects the city of Ahmedabad very well was
extended to Bopal-Ghuma in January 2014
accentuating the process of development. All
this can be evidently seen in Google imagery.
Bopal and Ghuma are very near to each other
and difficult to differentiate. Hence
development in Bopal will affect directly to
Ghuma too.
Ghuma is passing through the tremendous
growth and development. In last one decade
became one of the very popular place for
investment for the real estate developers.
Bopal was a part of Ahmedabad-Rural, but
now this area and its nearby Ghuma village
have been merged to form a municipality in
February 2015.
Figure 19: Google imagery year 2001
Figure 22: Google imagery year 2003
Figure 20: Google imagery year 2006
Figure 21: Google imagery year 2010
Figure 23: Google imagery year 2016
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4.9.3 Infrastructure and amenities
Bopal and Ghuma have only recently been declared as a Nagarpalika but the amenities are
far beyond the one from the rural areas. Some of those are shown in the map below which
includes schools, banks, hospitals, etc. 4km Bopal-Ghuma stretch as well as gala gymkhana
road which is also called Basant bihar road have seen lo of properties coming around the
area since 2005 followed by south bopal road also known as SoBo center a current
investment hotspot. The well-known road of North Bopal area is the 'Chocolate' road which
passes goes through Bopal lake, DPS, ISRO (Indian Space Research Org) colony, GEB
Electrical supply office, and connects with Shela Road. There are high number of private
and public sector banks in the area. The Bopal Lake and Ghuma Lake have also been
developed in 2014, and these are attracting local visitors. Both these lakes are large in size
and have a temple in the lake's center as an added attraction. Sarkari Tubewell and Umiya
Mata Temple are two famus landmarks on Bopal Main Road. There is an active community
health center functional since mid-2015.
ISRO Guest house
DPS
Bopal Lake
Sterling ciy
Map 6: Amenities and infrastructure
Source: Google imagery and primary survey
Inductotherm
Ghuma Lake
SoBo center
CHC
Umiya mata
temple
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4.9.4 Institutional Change
Merger of the two gram panchayat is done
under article 243Q of the constitution of
India by the government of Gujarat. They
were declared to be called smaller urban
area.
It is done based on the following criteria:
a. Population of the area
b. The density of the population
c. Revenue generated for local
administration
d. Economic importance of the area
Wherein for census there are only
three criteria’s i.e. population, density
and percentage male working
population involved in non-
agricultural activities. Here they have
nowhere specified the revenue
generation by the institution for their own local administration. When this is added as a
criteria it ensures fiscal independence to a level compared to other peri-urban or rural
areas.
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Demographics Population of Bopal in
1961 was 1556 and
Ghuma was 2373. For
the case of Bopal we can
see that there was a
constant increase in
decadal growth rate with
it reaching its apex in
year 2001-10. This was
because of connectivity from S P ring road and it being included under jurisdiction of
AUDA. This also affected the growth rate of Ghuma because of its proximity to Sanand and
it was also under the influence of the development happening in Bopal as the time frame
coincides. From the figures of decadal growth rate of Ahmedabad district and Gujarat state
we could say that both of them are growing simultaneously well. Moreover we can see that
in last decade Ahmedabad has grown more than the state. Besides it crossed the population
over 5000 criteria of Census India only in 2001.
Chart 4: CAGR over the years
0.00
20.00
40.00
60.00
80.00
100.00
120.00
Bopal Ghuma Gujarat Ahmedabad
CAGR
1981 1991 2001 2011
0
10000
20000
30000
40000
Po
pu
lati
on
Year
Demographics
Bopal Ghuma
1961 1971 1981 1991 2001 2011
Chart 3: Demographics of Bopal and Ghuma
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4.10.1 Population of Bopal and Ghuma over the years as per census
4.10.2 CAGR of Bopal and Ghuma in comparison with city and state
Growth rate per decade 1981 1991 2001 2011
Bopal 2.39 7.79 9.54 11.94
Ghuma 0.89 1.31 1.71 13.44
Gujarat 27.67 21.19 22.66 19.17
Ahmedabad 33.17 23.89 21.13 23.93
Table 5: Decadal Compound Annual Growth rate
Source: Census of India, Bopal & Ghuma Gram Panchayat
Year 1961 1971 1981 1991 2001 2011
For Bopal
Population Male 807 966 1183 2577 6465 19619
Population Female 749 860 1130 2321 5716 18016
Total Households 326 372 436 1032 2611 8801
Population Totals 1556 1826 2313 4898 12181 37635
For Ghuma
Population Male 1230 1537 1679 1912 2256 7990
Population Female 1143 1428 1560 1779 2106 7432
Total Households 496 620 678 772 914 3226
Population Totals 2373 2965 3239 3691 4362 15422
Total
Population Male 2037 2503 2862 4489 8721 27609
Population Female 1892 2288 2690 4100 7822 25448
Total Households 822 992 1114 1804 3525 12027
Population Totals 3929 4791 5552 8589 16543 53057
CAGR 2.00 1.49 4.46 6.77 12.36
Table 4: Population chart as per Census India for Bopal and Ghuma
Functional domain
5.1. Organizational structure
5.2. Functional Matrix
5.3. Institutional Mapping
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Organizational structure of Bopal-Ghuma Nagarpalika Prior to the implementation of the 1992
Act, the definition and understanding for
the ULB,s of the city was given by the
Municipal Corporation, Municipal
Council, Town Area Committees and
notified area council committees.
Therefore, the organization, structure and
configuration of municipalities varies
considerably, huge differences between
across the state in definitions and
structures.
1992 Act which they classified as
municipal charter companies in the cities
bring uniformity municipal institutions,
municipal councils for smaller cities,
followed by suburban government
agencies and Nagar Panchayats.
Newly formed Bopal-Ghuma
Nagarpalika has the head as president followed by Vice president and Chief Officer. In all
there are 17-18 staff members at the Nagarpalika office and they employ 47 members in
total. Out of the above mentioned members some are elected also some are deployed by the
ruling party.
President
Vice president
Standing committee chairman
Councilors(36, 4 per ward)
Party minister
Mediator (Ruling party
Chief officer
Chart 5: Organization structure of Municipality
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Functional matrix and comparison As per the constitution of India 74th Constitutional Amendment act there are 18 function
listed which are in state list and there are others in union list. Efficient following of the act
ensures decentralization and devolution of powers to the ULB. The 74th CAA des not
compel the following of the 12th schedule but it is left on the state to go according to the 74th
CAA, partially follow it or not follow it at all. This can be studied by comparing the state
laws and functions delineated for the municipalities with the functions in the 12th schedule
of 74th CAA. Give below is a comparison of the functions in the 12th schedule, Gujarat
municipalities act 1963 and Gujarat Panchayat Act 1993. The comparison is done between
the functions of similar domain or services.
5.2.1 Comparitive analysis of functions delineated under various acts
12th schedule of 74th CAA State Government Gram
panchayat
Sphere of town planning
Urban planning including
town planning
Devising town planning within the limits of
the borrow according to the law relating to
town planning for time being in force
In the sphere of
development
Regulation of land-use
and construction of
buildings
Constructing and altering and maintaining
public streets, culverts, municipal
boundaries marks, markets, slaughter
house, privies, drains, sewers, drainage
works, sewage works, baths, washing
places, drinking fountains, tanks, wells,
dams and the like.
The
maintenance,
repair,
construction
and protection
of public
streets
Roads and bridges Suitable accommodation for calves, cows or
buffaloes required within the municipal
borough for the supply of animal lymph.
Cattle pounds; prevention
of cruelty to animals
Provision of urban
amenities and facilities
Printing of such animal reports of the
municipal administration of borough as may
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be required by the general or special order
of the state government.
`Paying the salary and the contingent
expenditure on account of such police and
guards as may be required by the
municipality for the purposes of this act or
for the protection of any municipal
properties.
Imparting agriculture by suitable measures
including crop protection and crop
experiments
In the sphere of education
Promotion of cultural,
educational and aesthetic
aspects.
Establishing and maintaining primary
schools
In the sphere of public
health and sanitation
Planning for economic
and social development
Regulating or abating offensive or
dangerous trades or practices
Securing or removing dangerous buildings
or places and reclaiming unhealthy
localities.
Curative and
preventive
measures in
respect of any
epidemic
Water supply for
domestic, industrial and
commercial purposes:
Obtaining a supply or additional supply of
water, proper and sufficient for preventing
danger to the health of inhabitants from the
insufficiently or unwholesomeness of the
existing supply, when such supply or
Sanitation,
conservancy
and drainage
and the
prevention of
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structures, leading to poor
outcomes
additional supply can be obtained at a
reasonable cost.
public
nuisances
Supply of
drinking water
and
disinfecting
the sources of
supply and
storage of
water.
The
management
and care of
public tanks
Public vaccination.
Watering public streets and places.
Burials and burial
grounds;
Cleansing public streets and places and
sewers and all places not being private
property which are open to the enjoyment of
the public whether such places are vested in
the municipalities or not, removing noxious
vegetation and abating all public nuisances.
Public health, sanitation
conservancy and solid
waste management
Introducing and maintaining the system of
water closet to dispense with the removal of
night soil by carrying the same in a
receptacle cart or other means.
Disposing of night soil and rubbish and if
so required by the state government,
preparation of compost nature from such
night soil and rubbish.
Providing special medical aid
Accommodating for the sick in time of
dangerous disease and taking such measures
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Regulation of slaughter
houses and tanneries.
as may be required to prevent the outbreak
or to suppress and prevent the recurrence of
such diseases.
Establishing and maintaining public
hospitals and dispensaries and family
planning centers and providing public
medical relief.
Acquiring and maintaining changing and
regulating places for disposal of the dead
and disposal of unclaimed dead bodies and
carcasses of dead animals.
Constructing and altering and maintaining
public latrines and urinals
In the sphere of
administration
Lighting public streets, places and
buildings.
The
maintenance
and control of
Dafadars and
Chowkidars
Fire services Extinguishing fires and protecting life and
property when fire occurs.
Removing obstruction and projection in
public streets or places and in spaces not
being private property which are open to the
environment of the public whether such
spaces vest in municipality or in
government.
The removal of
encroachments
of public
streets or
public places
Erecting substantial boundary marks of
such description and in such position as
shall be approved by collector, defining the
limits or any alteration in the limits of the
municipal borough
Administration
of Nyay
Panchayat, etc.
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Vital statistics Registering births, marriages and deaths.
Safeguarding the interests
of weaker sections of
society
Organizing
voluntary
labor for up-
liftment of its
area
Urban poverty alleviation
Urban forestry The control
and
administration
of the Gram
Panchayat
Fund
Slum improvement and
up-gradation
The
imposition,
assessment
and collection
of the taxes,
rates or fees
Table 6: Comparison of functions
5.2.2 Analysis of comparitive list
Town planning is one aspect that in not present in the functions for gram panchayats which
is also justifiable as there are more pressing issues in the rural jurisdiction. State of Gujarat
has been active when it comes to town planning but it is majorly done by various urban
development authorities. This was also observed in site during the physical survey and key
person interviews.
For works related to development both the acts for urban jurisdiction have quite an extensive
list which if followed can solve lot of issues related to physical infrastructure. Moreover the
act by state is a step ahead.
It is clearly observed from the above table that most of the functions from the 12th schedule
have been covered by the state list under Gujarat Municipalities act 1965. But most
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astonishing fact is the most sensitive issues have been ignored and are totally absent from
the list described by the state. Issues such as environmental conservation, urban forestry,
Poverty alleviation, safeguarding weaker section of society, etc. are not looked at in the act
by the state. Ignorance of these issues and not regulating them as obligatory functions shows
state governments lack of total seriousness towards tangible and sensitive issues mentioned
above. Comparison with the acts for rural jurisdiction gives the clear picture for the
transition from rural to urban via peri-urban in the form of functions and expected efficiency
in service delivery. Besides it is very unfortunate that there is no distinct law that take care
of the specific needs of the peri-urban areas. It is only limited to giving the title of
Nagarpalika and sensitivity towards its special needs is not reflected in these acts.
Institutional mapping Service delivery of all the basic physical and social infrastructure is not just done by the
urban local body governing that particular administrative boundary though they play a
crucial role in bridging the gap between demand and need. Provision of basic infrastructure
is a function under the 12th schedule of CAA but often it is provided by the parastatals under
the state government. This results in existence of multiple institutions providing
infrastructure over a given administrative boundary and creating a chaos that can be mapped
through institutional overlap.
Multiple institutions involved in service delivery not only creates confusion but also creates
institutional gaps. In this section Bopal-Ghuma have been studied from the point of view of
acting institutions and their respective services provided for the given areas. Functions of
CAA includes provision of physical infrastructure like roads, sewerage lines, street lights
etc. It also includes provision of social infrastructure such as schools, hospitals, gardens etc.
After a detailed inquire from the Nagarpalika office one can see from the below given
institutional matrix that except for a handful functions everything else is handled by
parastatals such as AUDA and DDO of education and Health department. Also in some
cases AUDA does the installation while Bopal-Ghuma Nagarpalika does the Operation and
Maintenance. This is graphically shown on a map of Bopal-Ghuma.
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5.3.1 Institutional matrix for service delivery
Served areas Under T.P schemes Gamtal
Services
B-G
N
AUD
A
Educ
ation
depa
rtme
nt
Health
Depart
ment
(DDO) B-G N
AUD
A
Edu
cati
on
dep
art
men
t
Hea
lth
Dep
art
men
t
Roads
Water ( for other uses)
Drinking water
Drainage
Street lights
Health facilities
Solid Waste
Public Amenities
Education facilities
Table 7: Institutional Mapping
Institutional matrix helps to understand as to which institution is providing what. Moreover
we can compare responsibilities versus actual scenario for the given institutions. From the
study of related literature it was found that at times multiplicity of authority creates chaos
and confusion on ground. But quite contradictor to what is commonly found in plethora of
literature on peri-urbanization there was no confusion found for this case. Of course there
is more than one institute acting to provide services but their roles are clear with a mutual
understanding. Confusion is not created due to this mutual understanding and hence a better
quality infrastructure is provide with minimal issues. Major trunk infrastructure is provided
by AUDA in all the areas although was observed that Bopal-Ghuma provides all the
necessary infrastructure to the gamtal area and partly does in other than gamtal area too. To
support the matrix a detailed spatial mapping of these services is done on the administrative
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map of the Bopal-Ghuma Nagarpalika. Superimposition of both these data will give a
distinct list of services, the institutions responsible and their physical areas of functions.
Figure 24: Infrastructure in Bopal-Ghuma
5.3.2 Roads
Works such as building of roads
it taken up by AUDA under the
Town planning scheme
mechanisms and for the areas
where T.P. scheme is not done
i.e in Gamtal areas this is taken
up by Bopal-Ghuma
Nagarpalika. For this case
whichever institute puts in the
capital cost is also responsible
for planning, laying, funding,
operation and maintenance.
Moreover Bopal Ghuma
Nagarpalika also lacks the
technical capabilities in terms of
human resources and
equipment. Very high criticism
was done as the roads were dug
up only after six months of
construction for BRTS. All the
taxes under this head are
collected by Bopal Ghuma Nagarpalika and not. For detailed list please refer to the Annex.
Figure 25: Roads in Bopal
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5.3.3 Water supply
Water for other uses and supply of potable drinking water is entirely handled and done by
Bopal-Ghuma Nagarpalika. Nagarpalika has a no. of bore wells which are used as sources
of water. Though water is efficiently provided across the region quality of water is an issue.
This was found through reports in newspaper articles and interviews of local residents. This
has resulted in the existence of private water markets and numerous private bore wells at
the society level. Collection of water taxes is done by Bopal-Ghuma Nagarpalika under
general water tax and special water tax. Moreover fees is also charged for each connection.
5.3.4 Sewerage
Drainage line is provided by the AUDA under
the TP scheme mechanism and their O&M is
done by them same as roads the areas where
there is no TP scheme it is provided by BGN
for which it also collects the connection
charges and the taxes. But still the issue of
drainage exists which was again confirmed
through observation and newspaper reports.
This trend changes when it comes to provision
of street lights. They are provided by AUDA
Figure 27: Use of bottled water even by street vendors Figure 26: Existence of private water
markets
Figure 28: Digging of roads for lines
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but their operation and maintenance is done y BGN. Later also collects the light (divabatti)
tax for the same.
5.3.5 Others
Solid waste collection
and management is done
by the BGN and
surprisingly they also
collect the cleaning tax.
Education and health
related functions are all
handled by district
development office’s
education and health
department. There is a
community health
centers active in Bopal
after 2015. With a
handful of municipal
schools a heath centers
there are lot of private
schools like DPS and
other multi-specialty
hospitals too. They
provide for the entire
area in general.
Major public amenities
are provided by AUDA and their maintenance is done by the Nagarpalika. Amenities like
gardens and lake front development are done by the same. Also there is very sparse
recreational amenities again proving that it falls under the peri-urban areas.
Figure 30: Ghuma lake front development by AUDA
Figure 29: Lake in Bopal
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s
5.3.6 Spatial mapping
Spatial mapping was done to understand how these services have been divided across the
region. In the above given map we can clearly see that maximum area of service delivery
have been covered by AUDA. Gamtal areas have been taken up only by Bopal-Ghuma gram
panchayat. For areas other than gamtal some services such as water supply have been taken
up by BGN. From the map we can also see that for majority of the area of Ghuma village is
still under agriculture hence we can see a transition of land uses here and where there are
rural uses service delivery is hardly a question.
Map 7: Map of institutional overlap in Bopal-Ghuma for service delivery
Source: Primary survey and discussions with the officials
Figure 31: Gamtal area of Bopal and Ghuma
Financial status of B-G N
6.1. Budget trends
6.2. Income
6.3. Expenditure
6.4. Comparison
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A detailed analysis of the gram-panchayat budget gives a clear picture of the functions
performed by the institution. With that we can also find cost incurred for the same and
revenue generated. Budget analysis given below has been analyzed on the basis of income
and expenditure of the then gram panchayat. Also observations are done on the basis of
surplus/deficit, tax-non-tax income and others.
Budget trends Budget actuals of Bopal and Ghuma gram panchayats
Total Budget (in Lakhs)
08-09 09-10 10-11 11-12 12-13 13-14
Income 109.31 171.59 292.63 423.46 719.40 741.21
Expenditure 83.82 134.49 217.22 315.86 634.05 647.64
Surplus 25.48 37.09 75.42 107.61 85.35 93.58 Table 8: Budget actuals in lakhs of Bopal and Ghuma gram panchayat over last five years
Table 9: Budget surplus of Bopal and Ghuma gram panchayats
Budget of Bopal and Ghuma has been analyzed to understand their fiscal capacity. From the
above given table it can be clearly seen that the income has been always more than the
expenditure leaving the budget surplus which has been more than tripled over the years i.e.
from 25 lakhs to 93 lakhs. This trend has been followed over the years suggesting that the
excess availability of funds. During the literature review it was observed that issue of
0.00
100.00
200.00
300.00
400.00
500.00
600.00
700.00
800.00
Budget surplus
Income (in Lakhs) Expenditure (in Lakhs) Surplus08-09 09-10 10-11 11-12 12-13 13-14
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shortage of funds was frequently found in peri-urban areas. But this issue is not fund for
Bopal-Ghuma Nagarpalika suggesting their efficiency in fiscal management.
Income Income of a ULB gives an indication of the revenue generation capacity of that institution.
A detailed analysis of the same would give an overview of what is the share among these
sources. Moreover income from external sources suggests institute’s dependency over
grants and loans.
6.2.1 Income of Gram panchayats
Income (in Lakhs) 08-09 09-10 10-11 11-12 12-13 13-14
Bopal 65.05 108.41 216.82 309.75 433.31 446.50
Ghuma 44.26 63.17 75.81 113.71 286.09 294.71
Total income 109.31 171.59 292.63 423.46 719.40 741.21
Table 10: Income of Bopal and Ghuma gram panchayat
Form the above given table it is evident that income of Bopal and Ghuma have increased
over time. Moreover we can see that it has tremendously increased after the making of S.P.
ring road and coming of AUDA. Moreover its own development is the prime reason for the
increase in the income for both the gram panchayats. Also we can see that income of Ghuma
is rising as well as Bopal. Income of a gram panchayat indicated the revenue generation
capacity of a ULB. Furthermore it will also suggest how independent the ULB can be to
take up its own expenditures. We can see that total income in the financial year 2008-2009
is around 109 lakhs which has increased 7times to 741.21 in just six years. This is
tremendous leap for a peri-urban area. Furthermore income of Bopal village in year 2008-
2009 has been only 65 lakhs which has been increased 7 times to 446.50 and with this
income of Ghuma village panchayat has also increased by 6-7 times in just six years. This
is mind blowing for a peri-urban area.
6.2.2 Sources of Income of Gram panchayat
Here we can see from the above table that the income from various tax sources have been
higher in percentage than any other sources of income. Income from taxes was around 58%
in the year 08-09 which reduces to roughly 37% in the last financial year. This shows that
gram panchayat have developed a capacity to generate revenue other than tax income. It has
reduced is loan to 0 and have increased its income from grants up to 28%. This increase in
income from grants for have increase their dependency ratio from 0.18 to 0.28 over just last
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five years. It also suggests their capacity to capture benefits from available grants. And their
non-tax revenues which includes fees and fines etc. have also reduced over time.
Yield and Income 08-09 09-10 10-11 11-12 12-13 13-14
Income from own sources (in lakhs)
Tax revenue 63.32 80.08 140.14 202.34 300.74 288.49
Non-tax revenue 26.10 35.09 68.46 97.99 66.19 32.55
Income from external sources (in lakhs)
Income from loans 0.16 0.26 0.52 0.74 0.40 0.00
Income from grants 19.00 46.00 70.39 102.88 255.87 212.71
Total income 113.89 179.30 308.06 445.51 810.70 766.65
% increase in income 0.57 0.72 0.45 0.82 -0.05
Income from own sources (in percentage)
Total tax revenue 55.59 44.66 45.49 45.42 37.10 37.63
Total non-tax revenue
22.92 19.57 22.22 22.00 8.16 4.25
Income from external sources (in percentage)
Total income from loans
0.82 0.56 0.74 0.72 0.16 0.00
Total income from grants
16.68 25.65 22.85 23.09 31.56 27.74
Dependency ratio 0.17 0.26 0.23 0.23 0.32 0.28
Table 11: Tax and Non-tax income of Bopal and Ghuma gram panchayat
Chart 6: Sources of income V/S Building tax and dependency ratio
0
50
100
150
200
250
300
350
Am
ou
nt
in la
khs
Finanacial years
Sources of incomes
Tax Revenue Non tax sources" income from grants Building Tax
08-09 09-10 10-11 11-12 12-13 13-14
Institutional changes in Peri-urban area its Challenges and prospects- A case of Bopal-Ghuma Nagarpalika
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6.2.3 Income from taxes
Income from taxes (in lakhs)
08-09 09-10 10-11 11-12 12-13 13-14
Building tax 34.34 49.59 81.62 118.48 167.20 154.56
Light tax 2.26 3.58 6.80 9.76 21.22 19.19
Cleaning tax 3.25 5.36 10.63 15.20 28.15 22.92
Security charge 4.34 6.68 11.70 16.89 6.17 55.02
Business tax 6.33 10.35 20.47 29.26 49.97 8.37
general water tax 10.06 0.11 0.16 0.23 0.21 17.19
special water tax 2.71 4.40 8.76 12.51 27.80 11.24
Cheque return charge 0.03 0.00 0.00 0.00 0.01 0.00
Total tax 63.31 80.07 140.13 202.34 300.74 288.49
in percentage
Building tax 54.23 61.93 58.24 58.55 55.60 53.58
Light tax 3.57 4.47 4.85 4.82 7.06 6.65
Cleaning tax 5.13 6.69 7.59 7.51 9.36 7.95
Security charge 6.86 8.35 8.35 8.35 2.05 19.07
Business tax 9.99 12.93 14.60 14.46 16.62 2.90
general water tax 15.89 0.14 0.11 0.12 0.07 5.96
special water tax 4.28 5.49 6.25 6.18 9.24 3.90
Cheque return charge 0.05 0.00 0.00 0.00 0.00 0.00
Chart 7: Income from various tax sources
It can be deduced from the above
table that the tax collecting capacity
of these gram panchayats is
astonishing. It is observed from the
charts that the percentage share of
Building tax has been above 50
percent on an average over the years.
0.00
20.00
40.00
60.00
80.00
100.00
120.00Income from taxes
Building tax Light tax Cleaning tax Security charge
Business tax general watertax special water tax Cheque return charge
54%
4%5%
7%
10%
16%
4%0%
Income from taxesBuilding tax
Light tax
Cleaning tax
Security charge
Business tax
general watertax
special water tax
Cheque return charge
Chart 9: Income of taxes in year 2008-2009
08-09 09-10 10-11 11-12 12-13 13-14
Chart 8: Income from various tax sources
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87 | Page Riddhi Vakharia PP0008714
Expenditure Expenditure (in Lakhs)
08-09 09-10 10-11 11-12 12-13 13-14
Bopal 41.87 69.78 139.57 199.38 423.31 337.13
Ghuma 41.95 64.71 77.65 116.47 210.74 310.50
Total 83.82 134.49 217.22 315.86 634.05 647.64
Chart 10: Expenditure of Bopal and Ghuma Nagarpalika
Expenditure of Bopal-Ghuma gram panchayat gives an overview of the expenses of the
institute and the area of spending. From the above table it is evident that the expenses of
Bopal and have been constantly rising. For the case of Bopal it has increased from 41 lakhs
to 337 lakhs which is approximately 8 times. Similarity is seen in the expenses of Ghuma
too. A dangerous leap is seen in year in year 10-11 and 11-12. This is because this time
coincides with the time the area was taken under AUDA for development and provision of
infrastructure. Budget of both the panchayats adds to a total of 647 lakhs in year 13-14. Such
huge expenditure amount is a big concern for a small Nagarpalika if this figure is studied
alone. But for better understanding this should be studied in reference to development and
non-development breakup.
6.3.1 Expenditure breakup of Bopal Ghuma gram panchayat
Total Expenditure (in Lakhs)
08-09 09-10 10-11 11-12 12-13 13-14
Development 78.93 122.77 196.63 286.14 594.70 613.24
Non-Development 4.89 11.72 20.59 29.71 39.35 34.40
Total Expenditure 83.82 134.49 217.22 315.86 634.05 647.64
% development 94.16 91.29 90.52 90.59 93.79 94.69
Chart 11: development and non-development expenditure breakup of Bopal and Ghuma gram
panchayat
Increasing expenditure turned out to be a big concern in the expenditure table. But when we
study the breakup of the same budget as the development expenditure and non-development
expenditure we can see that most of the expenditure has been in the development section.
This is an affirmative thing as the money spend on development works helps in achieving
better infrastructure and built-environment for the area under jurisdiction. We can observe
from the table that since year 2008-2009 the percentage development expenditure have been
more than 90 percent. There is hardly any money spend on general administration or other
non-development areas. From the chat given below it is evident that with increase in
expenditure there has been a constant increase in development expenditure. Moreover a lap
in figures is seen after year 2011 -2012. Again AUDA has a major role to play here. With
AUDA developing the trunk infrastructure maintenance was added.
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Chart 12: Expenditure and development expenditure
6.3.2 Development expenditure of Bopal and Ghuma Gram panchayat
Total Development Expenditure (in Lakhs)
08-09 09-10 10-11 11-12 12-13 13-14
Total Health and Improvement
9.65 13.85 21.98 32.01 20.97 31.45
Total education 0.60 0.35 0.52 0.76 0.75 2.29
Total Medical 0.00 0.00 0.00 0.00 0.86 1.02
Total agriculture 0.00 0.00 0.00 0.00 0.00 0.00
Total cattle rearing 0.00 0.00 0.00 0.00 0.00 0.00
Total co-operation 0.57 0.69 0.83 1.24 0.48 0.72
Total industries 0.01 0.02 0.04 0.05 0.01 0.03
Total Collective development plans
49.77 48.34 87.24 125.65 186.38 194.90
Total Society welfare 4.62 7.73 15.30 21.87 35.00 25.34
Total Public construction 13.20 50.78 68.86 101.88 345.39 348.82
Total miscellaneous 0.52 1.01 1.86 2.68 4.86 8.67
Total 78.93 122.77 196.63 286.14 594.70 613.24
in percentage 94.16 91.29 90.52 90.59 93.79 94.69
Total Health and Improvement
12.23 11.28 11.18 11.19 3.53 5.13
Total education 0.75 0.29 0.26 0.27 0.13 0.37
Total Medical 0.00 0.00 0.00 0.00 0.14 0.17
Total agriculture 0.00 0.00 0.00 0.00 0.00 0.00
Total cattle rearing 0.00 0.00 0.00 0.00 0.00 0.00
Total co-operation 0.73 0.56 0.42 0.43 0.08 0.12
Total industries 0.01 0.02 0.02 0.02 0.00 0.00
Total Collective development plans
63.06 39.38 44.37 43.91 31.34 31.78
Total Society welfare 5.85 6.29 7.78 7.64 5.89 4.13
Total Public construction 16.72 41.36 35.02 35.60 58.08 56.88
Total miscellaneous 0.66 0.82 0.95 0.94 0.82 1.41
Chart 13: Total development expenditure
0.00
100.00
200.00
300.00
400.00
500.00
600.00
700.00
Exp
en
dit
ure
in la
khs
Finanacial year
Developemnt expenditure
Development Total Expenditure (in Lakhs)
08-09 09-10 10-11 11-12 12-13 13-14
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Chart 15: Total development expenditure of Bopal and Ghuma Gram panchayat
A lot has been talked in the previous section about the concerns and benefits of increase in
expenditure in the development area. However it is important to note that what exactly is
being developed by the development expenditure. It is seen that the share of collective
development plans have been the highest in all the years. This section included development
of infrastructure.
12%1%
1%
63%
6%
17%
Development expenditure
Totall Health and Improvement
Total education
Total Medical
Total agriculture
Total cattle reariing
Total co-operation
Total industries
Total Collective development plans
Total Society welfare
Total Public construction
Total miscellaneous
0.00
50.00
100.00
150.00Development expenditure
Totall Health and Improvement Total education Total Medical
Total agriculture Total cattle reariing Total co-operation
Total industries Total Collective development plans Total Society welfare
Total Public construction Total miscellaneous
08-09 09-10 10-11 11-12 12-13 13-14
Chart 14: Breakup of development expenditure
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Collective development plans Public construction
Road expense Panchayat property, auditorium expense
Pipeline repairing Security expense
Cleaning expense Road repairing Expense
Diesel expense R.C.C. road expense and Bench
Water Supply Flooring works, Paver block
Tractor expense Sewerage pipeline expense
Table 12: List of expenditure for collective development plans and public construction.
6.3.3 No. of properties in Bopal and Ghuma
year 02-03 03-04 04-05 05-06 06-07 10-11 13-14 14-15
properties in Bopal
1000 2100 5700 7500 11000 13250 16000 17700
properties in Ghuma
738 1697 4243 8910 9801 10781 11859 13045
Total no. of properties
1738 3797 9943 16410 20801 24031 27859 30745
Table 13: Total number of properties
We can see from
the above table
and chart that
with constant
increase in
income from
taxes there is also
rise in Building
tax. Moreover
from table of no.
of properties we
can see that it is
clear that there is
a tremendous rise
in
properties
in both the gram panchayats resulting into increasing property rates. Moreover one can relate
this to property rates as given in the table or property rates in annex to project future increase
in income from building taxes.
02000400060008000
100001200014000160001800020000
Total Properties
total no. of properties
Chart 16: Total no. of properties and population
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Comparison Comparison of budget of Bopal and Ghuma with other ULB’s
Ahmedabad Gandhinagar Kalol Himmatnagar Sanand Bopal-Ghuma
Population 5577940 206167 113153 81137 41530 53057
Area 464.16 0 17.23 8.82 40.42 11.47
Budget In Lakhs
Tax income 74375.4 2520.8 1452.8 1098.8 309.6 202.3
Grants 92745.6 199.8 695.1 1897.7 198.9 102.9
Total Income 320306.7 2898.4 2208.9 4266.9 634.9 445.5
Dependency 29.0 6.9 31.5 44.5 31.3 23.1
Common Administration
53353.5 0.0 257.1 113.1 100.7 26.6
Public construction
62390.5 41151.0 65.5 0.0 83.5 101.9
Total expenditure
333489.0 819.5 2325.6 3466.7 538.7 315.9
Table 14: Comparison of Bopal-Ghuma gram panchayat budget with other ULB's of Gujarat in 11-12
It is evident from the table above and the chart given bellow that Bopal and Ghuma have
been doing very well even when they were gram panchayats in 2011. We can see from the
table that dependency ratio of Bopal-Ghuma is 23% which is even lesser than that of the
Ahmedabad municipal corporation. Similarly from the chart it is observed that the
expenditure on public construction by Bopal-Ghuma is way more than that of all the other
ULB’s. Currently it is class B municipality as per classification by Gujarat government. But
if the estimation by Nagarpalika officials is to be believed they will be Class A after the next
census. t 17: Budget of ULB's in 2011-2012
Kalol Himmatnagar Sanand Bopal-Ghuma
0.0
20.0
40.0
60.0
80.0
100.0
120.0
140.0
0.0
500.0
1000.0
1500.0
2000.0
2500.0
3000.0
3500.0
4000.0
4500.0
Budget in other ULB's of Gujarat
Total Income Total expenditure Dependency Public construction
Conclusion
7.1. Overview
7.2. Challenges
7.3. Future Prospects
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Overview Analysis of documents of finances of gram panchayats of Bopal and Ghuma of past six
financial years and mapping the functions performed by the panchayats gives a clear picture
of the working of the panchayats in these domains. Moreover an interesting turning point is
observed in the trends with the entry of AUDA for service delivery.
Comparing the functions performed by the gram panchayat overtime to the budget
documents we can see that they coincide as in the taxes collected for various services
provided are also justified by provision of those services.
Challenges State government have given a quite an extensive list of functions to be performed by the
urban local bodies for the area under their jurisdiction. Well the biggest concern regarding
is the ignorance of the State government towards the fact that requirements and
performances capacities of each ULB’s is unique and can’t be generalized. In spite of the
fact the government has classified the municipalities on the basis of population in four
categories but this classification is not extended to consider the variation in their roles and
responsibilities. Moreover the fact that special attention is required to ULB’s in transition
as in case of Bopal and Ghuma is not reflected anywhere in the Acts and rules. Following
were the key challenges faced by the Bopal-Ghuma Nagarpalika for their functional and
financial domain.
7.2.1 Lack of technical expertise and caapcity
Issues related to lack of technical expertise for efficient service delivery is often seen in peri
urban areas and small and medium towns. This leads to either dependency of other bigger
authorities for provision of infrastructure or else inefficiency of the same. Also no special
consideration from the side of government have been made for capacity building of human
resources. Hence even if they have enough funds execution of the technical job is difficult
7.2.2 Multiplicity of Authorities
If the inefficiency of the governing urban local body has been established there is a need to
bring in other institutions which can suffice the basic needs of the locality. For peri-urban
areas typically we can see there are multiple parastatals including urban development
authorities which are expected to work for providing trunk infrastructure. This anticipated
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co-ordination is challenging to achieve as they are multiple authorities with a varying
organizational structure and method of working. Subsequently there is confusion and chaos.
For case of Bopal Ghuma Nagarpalika there is existence of multiple authorities such as
BGN, AUDA, and DDO but division of roles and responsibilities regarding the service
delivery by each area and are also mutually understood and managed divided well spatially
with clearly earmarked area of jurisdiction. Consequently there is a better quality of
infrastructure with the minimal chaos.
7.2.3 Lack of planning
Traditionally planning is done by the bigger municipal corporations or only class A
municipalities. Small and medium towns do merger planning at some places of it or don’t
do it at all. This results into a chaotic and unorganized situation in provision of services.
Besides town and urban planning is the first function listed under 12th schedule of 74th CAA
and also Gujarat municipalities act but it is hardly taken up by all municipalities.
7.2.4 Information Gap
Being a smaller municipality and a transitional area there is lack of awareness and
information. There is lack of responsibilities regarding the roles and responsibilities.
Moreover sufficient information to gain benefits form grants and aids under various
schemes. This affects their availability of funds right away.
7.2.5 Lacuna of awareness regarding social and environmental issues
Sensitivity towards the social and environmental issue would prove fatal in long run. These
pressing issues are a part of the 74th amendment act but they are nowhere to be found in the
Gujarat municipalities act. This ignorance raises a red flag on the state when turning a blind
eye towards the need of the weaker sections of the society. Environment conservations
becomes even more important when it comes to peri-urban areas as these areas have more
natural features that need to be taken care of. In case of Bopal and Ghuma they also have
several natural lakes but due to lack of authorities care they have turned into the dumping
grounds or in an extremely deteriorated condition.
7.2.6 Lack of innovative methods of revenue generation
Though Bopal and Ghuma have been managed with quite efficiency in finances but there is
high dependency on the income from taxes and other source that are found very common in
other Nagarpalika. But if they need to gain financial independence than there is need to think
for income from conventional tax sources. This could be done through innovative methods
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of revenue generation which includes land based fiscal tools, municipal bonds and public
private partnership, etc. This methods if employed and are successful then it would lead to
a better working of the Nagarpalika with financial independence over a given period of time.
7.2.7 Gram panchayat to Nagarplaika
For the peri-urban areas institutional changes happens suddenly contrary to the changes in
land uses and other physical characteristics. Hence there is very less or no time for the
institution to adjust and upgrade itself to the standards of the urban governing institute.
Retrofitting of the same becomes difficult. Besides there is an issue of mindset. The working
of gram panchayat is very limited even if there are changes made in institutional status but
the mindset of the people working there doesn’t. There is a need to change the later for
improved working of the institution.
The issues listed above coincide with the issues noted in the literature review. Moreover
these are the issues that are found in most of transitional areas. Typically issues are arising
from lack of technical capacity and lack of funds. Surprisingly lack of funds was not an
issues with Bopal-Ghuma and also it won’t be a problem in future as the Nagarpalika has
receive lots of funds from the ruling party and by state government via GMFB under
Swarnim Jayanti grants.
Future prospects Transition of Bopal-Ghuma in terms its physical characteristics started long back but it was
speeded up after the construction of Sardar Patel Ring Road which established a transport
connection link with Ahmedabad city core area. Ghuma was affected directly by
development in Bopal and Sanand. Transition of Institutional status of Bopal and Ghuma
have been recently updated to a Nagarpalika from gram panchayat a rural governing body.
Currently AUDA is actively involved in service delivery in Bopal and Ghuma which is
clearly seen in institutional mapping. For now installation of trunk infrastructure in the areas
under T.P. Scheme is taken up by AUDA both technically and financially. Its operation and
maintenance is also done by the same parastatals. But would the funds that they have in
hand be sufficient if these services were to be provided by Bopal-Ghuma Nagarpalika single
handedly. Moreover clearly their currently available technical capacity of the Nagarpalika
seems to be inefficient to support the operation and maintenance of the same. Following are
the future prospects of the Nagarpalika.
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7.3.1 Already doing much more than gram panchayat
Functions performed by the Nagarpalika after only a year of transition are done more
efficiently than many other small municipalities. This gives them an upper edge as the leap
for a developed Nagarpalika is reduced. This happened as they were performing functions
beyond their responsibilities during their jurisdiction as a gram panchayat.
7.3.2 Can be independent over the years with technical support and capacity
building
Efficiency can be accentuated by strengthening the technical staff and capacity building of
the existing one. This can be done by help from parastatals and Municipal Corporation.
Capacity building is evident for proper working of any institution more so for an urban local
body transition who is responsible for service delivery. Moreover the Nagarpalika acts as
the bridge and a mediator between the users or population and the Parasatal institution who
provides the infrastructure in the given peri-urban area. Enhancing the capacity also ensures
better communication of needs in the area. This would also gradually help the Nagarpalika
to be independent in service delivery and finances.
7.3.3 More grants to come in
With the transition from a rural governing body to an urban one they are now eligible for
grants under various urban development funds. Moreover the ruling party has also declared
in a hefty amount of grants for infrastructure development and GMFB has also declared
grants for the newly formed Nagarpalika under swarnim jayantii yojna. All this together
adds up to a huge amount which can be handy for further development required for the area.
7.3.4 Increasing no. of properties
Increasing no of properties which can be noted in the table given in the annex is a sign of
development. Moreover these new properties also brings a lot of revenue in the form of
property tax, municipality tax, commercial tax, etc. apart from direct revenue generation
with new residential property in the locality there is an increase of demand of various
commodities. Moreover increasing commercial properties comes in with multiplier effect
and also brings in lot of development and employment for the locals making the area
economically independent of the metropolitan core.
7.3.5 Availibility of ample of land for develoment
Development have hit Bopal only after 2000 i.e. only 16 years back and it started in a very
slow pace. It speeded up after construction of Sardar Patel ring road. This reached Ghuma
way later. This gives ample of time to control future growth and development.
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Quintessentially only half of Ghuma have been under the influence of urbanization. Giving
in lot of available land in hand for planned development.
Annex
Acts and Amendments
Budget documents
Other data
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Gujarat Governments to the Gujarat Municipalities Act, 1963
and to the BPMC Act, 1949. The provisions under the
amendments in Gujarat are:
a) Structural: Provision for regular and fair conduct of elections to municipalities
by statutory constituted State Election Commissions. Constitution of a Finance
Commission, once in every five years to recommend to the Central Finance
Commission, measures to improve the financial health of municipal bodies.
b) Functional: the Gujarat Municipalities Act, 1963 and the BPMC Act, 1949 have
been amended in 1993 but no actual devolution took place as functions like
regulation of land- use, town planning with development authorities,
safeguarding the interests of weaker sections, promotion of cultural, educational
and aesthetic aspects have still not been devolved fully
c) Planning: the absence of Metropolitan Planning Committees in Gujarat, as
highlighted by the 74th CAA has limited the functional role of the ULBs in
planning and management to a series of sectoral and departmental plans and
programs which under no circumstances can lead to integrated planning and
development of ULBs
Functions of gram panchayat by federal governemnt Functions as per the federal government are as follows
a. Sanitation, conservancy and drainage and the prevention of public nuisances;
b. Curative and preventive measures in respect of any epidemic;
c. Supply of drinking water and disinfecting the sources of supply and storage of water;
d. The maintenance, repair, construction and protection of public streets;
e. The removal of encroachments of public streets or public places;
f. The management and care of public tanks;
g. Organizing voluntary labor for upliftment of its area;
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h. The control and administration of the Gram Panchayat Fund;
i. The imposition, assessment and collection of the taxes, rates or fees;
j. The maintenance and control of Dafadars and Chowkidars;
k. Administration of Nyay Panchayat, etc.
These functions as mentioned above help in an overall development as required by the
rural body.
Functions Assigned by the State Government for gram
panchayat: A Gram Panchayat is to perform such functions in respect of:
a. Primary, social, technical, vocational, adult or non-formal education;
b. Management of any public ferry;
c. Irrigation;
d. Grow-more-food campaign;
e. Rehabilitation of displaced persons;
f. Improved breeding of cattle;
g. Bringing waste land under cultivation through land improvement and soil
conservation;
h. Promotion of village plantations, social forestry and farm forestry;
i. Arranging for co-operative management of land;
j. Assisting the implementation of land reform measures;
k. Rural housing programs;
l. Rural electrification;
m. Women and child development;
n. Implementation of such other schemes as entrusted to the Gram Panchayats by the
Government, etc.
8.3.1 Discretionary Functions:
A Gram Panchayat may make provision for:
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a. Maintenance of lighting of public streets;
b. Planting and maintaining of trees on the sides of public streets;
c. The sinking of wells and excavation of ponds and tanks;
d. The introduction and promotion of cooperative farming and enterprises;
e. The construction and regulation of markets;
f. The promotion and encouragement of cottage, khadi, village and small-scale
including food processing industries;
g. The destruction of rabid or ownerless dogs;
h. The disposal of unclaimed cattle’s;
i. The construction and maintenance of dharmasalas, rest houses, cattle sheds and cart
sheds;
j. The establishment and maintenance of libraries and reading rooms;
k. Promotion of dairy-farming and poultry;
l. Promotion of fishery;
m. Cultural activities including the sports and games;
n. Social welfare of the handicapped and mentally retarded;
o. Welfare of socially and educationally backward classes;
p. Maintenance of community assets, etc.
Functions of Municipality in Gujarat The Municipalities have been given enormous powers and functions and they are classified
as under:
a. Obligatory functions;
b. Discretionary functions and
c. Functions delegated by the State Government. (Rana, 2014)
As per the Gujarat Municipalities act 1963 the functions are as follows:
A. In the Sphere of public works
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a) Naming streets and numbering of premises
b) Giving immediate relief to persons rendered destitute by such natural calamity
as floods, fire and earthquake within the municipal borough.
B. In the sphere of education
a) Establishing and maintaining primary schools
C. In the Sphere of Public health and sanitation
a) Regulating or abating offensive or dangerous trades or practices
b) Securing or removing dangerous buildings or places and reclaiming unhealthy
localities.
c) Obtaining a supply or additional supply of water, proper and sufficient for
preventing danger to the health of inhabitants from the insufficiently or
unwholesomeness of the existing supply, when such supply or additional supply
can be obtained at a reasonable cost.
d) Public vaccination.
e) Watering public streets and places.
f) Cleansing public streets and places and sewers and all places not being private
property which are open to the enjoyment of the public whether such places are
vested in the municipalities or not, removing noxious vegetation and abating all
public nuisances.
g) Introducing and maintaining the system of water closet to dispense with the
removal of night soil by carrying the same in a receptacle cart or other means.
h) Disposing of night soil and rubbish and if so required by the state government,
preparation of compost nature from such night soil and rubbish.
i) Providing special medical aid accommodating for the sick in time of dangerous
disease and taking such measures as may be required to prevent the outbreak or
to suppress and prevent the recurrence of such disease.
j) Establishing and maintaining public hospitals and dispensaries and family
planning centers and providing public medical relief.
k) Acquiring and maintaining changing and regulating places for disposal of the
dead and disposal of unclaimed dead bodies and carcasses of dead animals.
l) Constructing and altering and maintaining public latrines and urinals.
D. In the sphere of development
a) Constructing and altering and maintaining public streets, culverts, municipal
boundaries marks, markets, slaughter house, privies, drains, sewers, drainage
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works, sewage works, baths, washing places, drinking fountains, tanks, wells,
dams and the like.
b) Suitable accommodation for calves, cows or buffaloes required within the
municipal borough for the supply of animal lymph.
c) Printing of such animal reports of the municipal administration of borough as
may be required by the general or special order of the state government.
d) Paying the salary and the contingent expenditure on account of such police and
guards as may be required by the municipality for the purposes of this act or for
the protection of any municipal properties.
e) Imparting agriculture by suitable measures including crop protection and crop
experiments,
E. In the sphere of town planning
a) Devising town planning within the limits of the borough according to the law
relating to town planning for the time being in force.
F. In the sphere of education
a) Lighting public streets, places and buildings.
b) Extinguishing fires and protecting life and property when fire occurs.
c) Removing obstruction and projection in public streets or places and in spaces not
being private property which are open to the environment of the public whether
such spaces vest in municipality or in government.
d) Erecting substantial boundary marks of such description and in such position as
shall be approved by collector, defining the limits or any alteration in the limits
of the municipal borough.
e) Registering births, marriages and deaths.
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Building tax rate of Bopal area
Sq ft GF
ft rate /Rs. tax /Rs. other tax /Rs. Total /Rs.
0 50 1.00 50 650 700
51 100 1.25 125 650 775
101 150 1.50 225 650 875
151 200 1.75 350 650 1000
201 250 2.00 500 650 1150
251 300 2.25 675 650 1325
301 400 3.00 1200 650 1850
401 500 4.00 2000 650 2650
501 600 5.00 3000 650 3650
601 700 6.00 4200 650 4850
701 800 7.00 5600 650 6250
801 900 8.00 7200 650 7850
901 1000 9.00 9000 650 9650
1001 1100 10.00 11000 650 11650
1101 1200 11.00 13200 650 13850
1201 1300 12.00 15600 650 16250
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Sq ft FF
ft /Rs. tax /Rs. other tax /Rs. Total /Rs.
0 50 0.50 25 650 675
51 100 0.75 75 650 725
101 150 1.00 150 650 800
151 200 1.25 250 650 900
201 250 1.50 375 650 1025
251 300 1.75 525 650 1175
301 400 2.00 800 650 1450
401 500 3.00 1500 650 2150
501 600 4.00 2400 650 3050
601 700 5.00 3500 650 4150
701 800 6.00 4800 650 5450
801 900 7.00 6300 650 6950
901 1000 8.00 8000 650 8650
1001 1100 9.00 9900 650 10550
1101 1200 10.00 12000 650 12650
1201 1300 11.00 14300 650 14950
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Sq ft SF And ABOVE
ft /Rs. tax /Rs. other tax /Rs. Total /Rs.
0 50 0.25 13 650 663
51 100 0.50 50 650 700
101 150 0.75 113 650 763
151 200 1.00 200 650 850
201 250 1.25 313 650 963
251 300 1.50 450 650 1100
301 400 1.75 700 650 1350
401 500 2.50 1250 650 1900
501 600 3.00 1800 650 2450
601 700 3.50 2450 650 3100
701 800 4.00 3200 650 3850
801 900 4.50 4050 650 4700
901 1000 5.00 5000 650 5650
1001 1100 5.50 6050 650 6700
1101 1200 6.00 7200 650 7850
1201 1300 6.50 8450 650 9100
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Population Details
year 1961 1971 1981 1991 2001 2011
population(in
nos.) for BOPAL
1556 1826 2313 4898 12181 37635
Growth rate (per
decade)
1.61 2.39 7.79 9.54 11.94
population(in
nos.) for
GHUMA
2373 2965 3239 3691 4371 15422
Growth rate (per
decade)
2.25 0.89 1.31 1.71 13.44
Total Population
of Bopal and
Ghuma
3929 4791 5552 8589 16552 53057
Pop/Density
(ppl/Ha.)
3.37 4.11 4.77 7.37 14.20 45.54
For Bopal
Year 1961 1971 1981 1991 2001 2011
Population Male 807 966 1183 2577 6465 19619
Population
Female
749 860 1130 2321 5716 18016
Total
Households
326 372 436 1032 2611 8801
Population
Totals
1556 1826 2313 4898 12181 37635
For Ghuma
Year 1961 1971 1981 1991 2001 2011
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Population Male 1230 1537 1679 1912 2256 7990
Population
Female
1143 1428 1560 1779 2106 7432
Total
Households
496 620 678 772 914 3226
Population
Totals
2373 2965 3239 3691 4362 15422
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Institutional Mapping Form
Served areas Under T.P schemes Gamtal
Services
B-G
N
AUD
A
Educ
ation
depa
rtme
nt
Health
Depart
ment
(DDO) B-G N
AUD
A
Edu
cati
on
dep
art
men
t
Hea
lth
Dep
art
men
t
Roads
Planning
Laying
Expansion
Operation
Maintenance
Funding
Water ( for other uses)
Planning
Laying of pipelines
Funding for laying
Treatment
Operation
Maintenance
Drinking water
Planning
Laying of pipelines
Funding for laying
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Treatment
Operation
Maintenance
collection of water tax
Drainage
Planning
Laying
Expansion
Operation
Maintenance
Funding
Street lights
Planning
Laying
Operation
Maintenance
Electricity from
Funding
collection of lighting
tax
Health facilities
Planning
Construction
Operation
Maintenance
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Funding
Solid Waste
Planning the routes
Collection of SW
Operation
Maintenance
Funding
collection of cleaning
tax
Public Amenities
Planning
Construction
Operation
Maintenance
Funding
Education facilities
Planning
Construction
Operation
Maintenance
Funding
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Budget of Bopal
Yield and Income Budget
actuals(Bopal)
(2008-2009)
Budget actuals(Bopal)
(2009-2010)
Budget actuals(Bopal)
(2010-2011)
Budget actuals(Bopal)
(2011-2012)
Budget actuals(Bopal)
(2012-2013)
Budget actuals(Bopal)
(2013-2014)
1. Land revenue
a. Rent 17974 29956 59912 85588 233509 509934
b. Sand and Stone quarry
c. Miscellaneous 529134 881890 1763780 2519686 4744306 2245575
Total land revenue 547108 911846 1823692 2605274 4977815 2755509
2. Land Revenue
a. Service on land
b. Water Rate
Total local rate
3. Other taxes
a. Taxes
i. Building and land tax 1658056 2763426 5526851 7895501 12995102 9868491
ii. Octroi 188002 313336 626672 895246 1950184 1661331
iii. Pilgrim tax 315394 525656 1051311 1501873 2803954 2275219
iv. Fair and celebration and other entertainment tax
276041 460069 920138 1314483 52410 4654164
v. tax on animal pulled vehicles
and cycles 603132 1005220 2010439 2872055 4444521
7640
vi. Business tax 1579 2632 5264 7520 10000 1702137
vii. Health and education tax 261271 435452 870904 1244148 2032638 3200
viii. Water tax 26 44 88 125 500 100
ix. Miscellaneous
Total tax 3303501 5505835 11011667 15730951 24289309 20172282
b. Fee 197739 329565 659129 941613 655407 956612
i. Market fee 113386 188976 377951 539930 506220 670090
ii. Licensing fee 6047 10078 20156 28794 24887 28810
iii. Animal registration fee 23992 39987 79974 114249 146894.5 143552
iv. Miscellaneous 86 143 286 408 310 1231
Total fee 341249 568748 1137496 1624994 1333718.5 1800295
Total other taxes and fee 3644750 6074583 12149163 17355945 25623027.5 21972577
4. Legitimate grants
i. Grant as per Gujarat panchayat
act 1961 section 19 72602 121003 242005 345721 147396
ii. Grant as per Gujarat panchayat act 1961 section 200
692559 395873
iii. Grant as per Gujarat Panchayat
act 1961 section 201 10395 17325 34650 49500
98991
iv. Other legitimate grants 15474
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Total legitimate grants 82997 138328 276655 395221 839955 510338
5. Grants from legitimate funds
i. Grant from common state
funds
District common fund grants
ii. District excited fund grant 241891 403151 806301 1151858 4584989 1271962
iii. Grant for panchayat
schemes and activities
iv. Grant for health centers etc.
v. Grant from education and
health dept. of district panchayat
Grant from total legitimate
funds 241891 403151 806301 1151858 4584989 1271962
5. Grants for state govt. schemes and
activities as per section 157(2) of
Gujarat panchayat act 1961
i. Agriculture 310310 517184 1034368 1477669 2844534 196950
ii. Cattle rearing
iii. Public health 10000 4045668
iv. Medical
v. Public construction 11500
vi. Irrigation
vii. Society betterment 21000 35000 70000 100000 147510
viii. Statistics 336677
ix. Grant given to district
panchayat for subsidiary panchayat
Total grants for state government 331310 552184 1104368 1577669 2854534 4738305
6. Interest
i. Interest of other additional
investment of panchayat 15342
ii. Interest on panchayat's finance
and advance 8530 14216 28431 40616 22144
iii. Interest on 12000
a. advance of farmers
b. Society's improvement work
c. Miscellaneous loans
iv. Loans given to panchayats
servants 1573
v. other 1887.2
Total interest 8530 14216 28431 40616 24031.2 28915
7. Police
i. Fine levied under section 161 of
Gujarat panchayat act 1961
ii. Fee and expence on locking up
cattle
Total police
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8. Education
i. Income of primary education account
ii. Income of secondary education
account
iii. Donation and contribution
iv. Income from permanent funds
v. Miscellaneous
Total education
9. Medical
i. Hospital income
ii. Medicine distribution
iii. Income from insect study expert and laboratory
iv. Income from permanent funds
v. Donation and contribution
vi. Miscellaneous
Total Medical
10. Public healh and improvement
i. Donation and contribution 7455 12425 24850 35500 7000 272706
ii. Income from permanent funds 1514570 2524283 5048566 7212237 2660818
iii. Miscellaneous 3570 5950 11900 17000 30
Total health 1525595 2542658 5085316 7264737 2667848 272706
11. Agriculture
i. income from agriculture
ii. Miscellaneous
Total Agriculture
12. Cattle Rearing
i. Cattle hospital income
ii. Donation and contribution
iii. Miscellaneous
Total cattle rearing
13. Industries
i. Home based industries and small scale industries
ii. Handicraft schemes
iii. Miscellaneous
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Total industries
14. Community development plans
i. Community development plans
ii. Central increment help 29169 48615 97230 138900
iii. Local development works
iv. Donation and contribution
v. Miscellaneous
Total community development plans 29169 48615 97230 138900
15. Irrigation
i. Water rate
ii. Income from boat rate
iii. Income from canal and boat
iv. Miscellaneous
Total irrigation
16. Public constructions
i. Water rate
ii. Sale of buildings and land
iii. Sale of tools and materials
iv. Donations and contributions
v. Miscellaneous
Total public constructions
17. Miscellaneous
i. Sale of materials and tools other
than public constructions
ii. Sunk properties (anamato)
iii. Other fee, funds and
confescated amounts 3062
iv. Miscellaneous 72502 120836 241672 345245 1719140 917741
Total miscellaneous 72502 120836 241672 345245 1719140 920803
Total yield (turnover)
Debt Department
1. Government Debt
i. Loan for interest
ii. State government Loan
iii. Other types of loan
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Total government debt
2. Loan and reserves given by panchayat
i. Advance given to farmers 15554 25923 51846 74065 40000
ii.Loan given to co-operative society
iii. Loan given to group
development schemes
iv. Miscellaneous loans and Advances
Total loans and advances given by
panchayat 15554 25923 51846 74065 40000
3. Reserved advances and surplus
amount
a. reserved 5250 8750 17500 25000
i. Reserved funds
ii. Provident Fund
iii. District common fund
iv. District village development
funds
v. Security Reserves
vi. Public construction deposit
vii. Reserves without proprietersip
viii. Miscellaneous reserves
Total reserved
b. Advances
i. Permanent advances
ii. Permanent advances
iii. Miscellanous advances
Total advances
c. Surplus Account
1. Surplus Accounts
Surplus Accounts
Total reserved advances and Surplus
accounts
Total debt department
Total income and debt 6504656 10841090 21682174 30974530 43331339.7 32471115
1st April ni baki 550292 917154 1834307 2620437.86 1984134.21 2010305.28
Grant Total 7054948 11758244 23516481 33594967.86 45315473.91 34481420.28
Expenditure
Budget
actuals(Bopal)(2008-2009)
Budget
actuals(Bopal)(2009-2010)
Budget
actuals(Bopal)(2010-2011)
Budget
actuals(Bopal)(2011-2012)
Budget
actuals(Bopal)(2012-2013)
Budget
actuals(Bopal)
(2013-2014)
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1. Common Administrative 196279 327131 654262 934660 1481167 1783713
19 common administrative 3457 5761 11521 16459
Honorary salary and allowance 25717 42861 85722 122460 91375 98400
a. President, vice president,
chairman etc. 104 174 347 496.35
i. Honorary salary of president and chairman of education
committee
7478 21040
ii. Honorary allowance of
president and chairman of education committee
i. Travel allowance of president
and chairman of education committee
57725 96209 192417 274881
Total salary and allowance 283282 472136 944269 1348956.35 1580020 1903153
b. General eshtablishment
administrative
i. District development officer and officers working in his office
and staff's salary and allowance from
which depertmental officer such as executive engineer and district
agriculture officer's salary and
allowance related accounts should be mentioned under this column
21537 35895 71789 102556 156571 275516
55731 92885 185770 265385 704931 17150
6568 10947 21893 31275 147203 123509
195856
2100
55919 93198 186396 266280 422058 65534
1622
Total b coulmn staff grade 139755 232925 465848 665496 1626619 485431
Total common administrative 423037 705061 1410117 2014452.35 3206639 2388584
2. Interests 652.65
1. Intersts on loan from state govt.
2. Intersts on panchayat ppf
3. others 1127 1878 3756 5366 2562.78
Total interests 1127 1878 3756 5366 652.65 2562.78
3. Education
a. Gram paanchayat activities and
schemes / primary education
i. Primary schools 4714 7857 15714 22448 12779 18334
ii. Schemes for educated unemployed
iii. Grants for institutions giving
primary education
iv. Secondary education
1. secondry education 17100
a. common failed scholorship 100000
b. State schemes and activities 2541 4235 8470 12100
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c. Five year plans
d. Other schemes
Total education 7255 12092 24184 34548 12779 135434
4. Medical 28 medical
a. Panchayat schemes and activities
i. Medical staff group 85995 102000
ii. Hospitals and clinics
iii. Ayurvedic clinics
iv. Alopathy clinics
v. Grant for medical purposes
vi. State activities and
schemes
vii.. Five year schemes
viii. Others
Total Medical 85995 102000
5. Health and improvement
30 Public health 420 700 1400 2000
a. panchayat activities and schemes
113096 188493 376986 538552
i. Public health 288698 481163 962325 1374750
ii. Expense related to
contageous diseases
iii. Health protection
b. State activities and schemes
c. Five year schemes
d. Other schemes
Total health and improvement 402214 670356 1340711 1915302 0
6. Agriculture (3 agriculture) 15148 25246 50492 72131 14025
a. panchayat activities and schemes
i. Supervision
ii. Supporting and qualified
staff 39700
iii. Exhibition related to agriculture and propoganda that
includes ehibition and fairs
iv. Experiments and research related to farming and agriculture
24000
b. Agriculture engineering
c. Five year schemes
d. Other schems
Total agriculture 15148 25246 50492 72131 38025 39700
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7. Animal Care (cattle rearing)
a. panchayat activities and schemes
i. supervision
ii. Suporting staff
iii. Hospital and clinics
iv. Works related to cattle
rearing
v. Other grneral expences
b. State activities and plans
c. Five year schemes
Total cattle reariing
8. Co-operation (34 Co-operation)
a. panchayat activities and
schemes
i. Supervision
ii. Grant, aid and activities of Co-operative society
b. State activities and plans
c. Five year schemes
d. Other schems
Total co-operation 0
9. Industries (38 industries)
a. Panchayat activities and schemes
i. Small scale industries
ii. Miscellaneous
b. State activities and plans
c. Five year schemes
d. Other schems
Total industries
10. Collective development plans,
state vistran schemes and local
developemnt works which has 37 collective development projects etc.
10500 17500 35000 50000 132046
a. Collective development plans 1020007 1700012 3400023 4857176 133650 276025
i. supervision 342000 2680176
ii. Agriculture and cattle rearing 53140 4736742
iii. Vistran 3200695 390912
iv. Irrigation 3592509 194980
v. Land improvement 889274 1482123 2964246 4234637
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vi. Heatlh 1680 2800 5600 8000 98010 147510
vii.Education 270992 451653 903306 1290437
viii. Eduction of society 4584334 5519616
ix. Message vyavahar
x. Rural art, skill and industries 333310
xi. Various projects 3991996
xii. Housing
xiii. Training
xiv. Construction works 98001 1539520
xv. Surplus 184140
Total Collective development plans 2192453 3654088 7308175 10440250 16278475 15950837
b. State visrtran seva
c. local development works
d. Panchayat activities and schemes
11. Society welfare
39 miscellaneous development
organization
a. Panchayat activities and
schemes
i. Statistics 451655 752758 1505516 2150737 3446352 2436208
ii. Anti-addiction propognda
iii. Backward class welfare
iv. Rural construcion
v. Miscellaneous
b. State activities and plans
c. Five year schemes 17000
d. Other schems
Total Society welfare 451655 752758 1505516 2150737 3446352 2453208
12. Irrigation
a. Panchayat activities and
schemes
i. Irrigation works vistran and improvement
ii. department and improvement
staff class
iii. Tools and machines
iv. Miscellaneous
Total irrigation 0
13. Public construction 1895968 2410330
a. Base works 8778 14630 29260 41800
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i. Building common
development department.
ii. Communication systems 685630 391842
iii. Base works miscllaneous 137610
iv. Improvement and small
constructions 575088 958480 1916960 2738514 6040770
v. staff members 12512797 1761026
vi.Tools and small innovation
factory 2718893
vii. Raachrasilu 98010
viii.Surplus 167489
b. State activities and plans 48395 98001
c. Five year schemes 10291 17152 34304 49005 439089
d. Other schems 889278
Total Public construction 594157 990262 1980524 2829319 18888571 11406557
14.Draught relief
i. relief works
ii. Relief to people other than ones blocked in relief works
iii. Free relief
iv. Miscellaneous
Total Draught relief
15. Pension
i. activities before and after completion of time
ii. Salary
iii. Help pension
iv. Graduties
v. Family
vi.Pension
Total pension
16. forests
a. Panchayat activities and
schemes
i. Cleaning works
ii. Staff menbers
b. State activities and plans
c. Five year schemes
d. Other schems
Total Forests
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17. Miscellaneous
a. Panchayat activities and schemes
i. Donation for welfare intentions 105 175 350 500
ii. Contribution for district
develoment 231 385 770 1100
iii. Loan that is not returned 0 0
iv. Welcome and entertainment
expenses 14559 24265 48530 69329 37500
5000
v. Miscellaneous 541008
b. State activities and plans 33777 56295 112589 160842 234647
c. Five year schemes
Total miscellaneous 48672 81120 162239 231771 272147 546008
Debt Department
1. Government Debt
i. Loan for interest
ii. State government Loan
iii. Other types of loan
Total government debt
2. Loan and advances given by panchayat
i. Advance given to farmers 187968
ii.Loan given to co-operative society
89051
iii. Loan given to group
development schemes
iv. Miscellaneous loans and Advances
Total loans and advances given by
panchayat
277019
3. Reserved advances and surplus
amount
a. Reserved
i.Provident Fund
ii. Security Reserves
iii. State common fund
iv. District gram panchayat
v. Security Reserves 222 370 739 1056
vi. Public construction deposit 3074 5124 10248 14640
vii. Reserves without
proprietersip 56755 94591 189182 270260 98593
448641
viii. Miscellaneous reserves 5250 8750 17500 25000 40000
Total(a) reserved 65301 108835 217669 310956 138593 725660
b. Advances
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i. Permanent advances
ii. Permanent advances
iii. Miscellanous advances
Total(b) advances
c. Surplus Account
i. Surplus Accounts
Surplus (c) Accounts
Total deposit reserves
and surplus accounts
Total debt department
Total expnditure and debt department
3847476 6412460 12824911 18321301.35 42368228.65 34296558.78
in hand on 31st march 416668 694447 1388894 1984134.21 2010305.29 730870.01
Grant Total 4264144 7106907 14213805 20305435.56 44378533.94 35027428.79
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Budget of Ghuma
Yield and Income
Budget
actuals(GHUMA
)(2008-2009)
Budget
actuals(GHUMA
)(2009-2010)
Budget
actuals(GHUMA
)(2010-2011)
Budget
actuals(GHUMA
)(2011-2012)
Budget
actuals(GHUMA
)(2012-213)
Budget
actuals(GHUMA
)(2013-2104)
1. Land revenue
a. Rent 13621786 20432679
b. Sand and Stone quarry
c. Miscellaneous
Total land revenue 0 13621786 20432679
2. Land Revenue
a. Service on land 902612 1083134 1624701
b. Water Rate
Total local rate 902612 1083134 1624701 0 0
3. Other taxes
a. Taxes
i. Building and land tax 1775769 2195696 2634835 3952253 3725290 5587935
ii. Octroi 37772 44668 53602 80403 172075 258113
iii. Pilgrim tax 9595 10070 12084 18126 11349 17024
iv. Fair and celebration and other
entertainment tax 158090 208193 249832 374748 565060 847590
v. tax on animal pulled vehicals and
cycles 29680 30150 36180 54270 552762 829143
vi. Business tax 1004235 8778 10534 15801 11172 16758
vii. Health and education tax 9576 4062 4874 7311 747096 1120644
viii. Water tax 3412 100 120 180
ix. Miscellaneous
Total tax 3028129 2501717 3002061 4503092 5784804 8677207
b. Fee 143500 61250 73500 110250
i. Market fee 36700 84100 100920 151380 208630 312945
ii. Licensing fee 100 21 25 38 462750 694125
iii. Animal registration fee 23 6034 7241 10862 3592 5388
iv. Miscellaneous 5690 51 77
Total fee 186013 151405 181686 272529 675023
Total other taxes and fee 3214142 2653122 3183747 4775621 6459827 8677207
4. Legitimate grants
i. Grant as per Gujarat panchayat act
1961 section 19
ii. Grant as per Gujarat panchayat act
1961 section 200 524190 629028 943542 1415313 2122970
iii. Grant as per Gujarat Panchayat act
1961 section 201
iv. Other legitimate grants 264120
Total legitimate grants 264120 524190 629028 943542 1415313 2122970
5. Grants from legitimate funds
i. Grant from common state funds 10000 12000 18000 27000 40500
District common fund grants 10000 12000 18000 27000 40500
ii. District excited fund grant 5000 6000 9000 13500 20250
iii. Grant for panchayat schemes and activities
iv. Grant for health centers etc.
v. Grant from education and health
dept. of district panchayat
Grant from total legitimate funds 0 25000 30000 45000 67500 101250
5. Grants for state govt. schemes and
activities as per section 157(2) of Gujarat panchayat act 1961
i. Agriculture
ii. Cattle rearing 302949 363539 545309 1485133 2227700
iii. Public health 1605979 1927175 2890763 4336145 6504218
iv. Medical 181500 272250
v. Public construction
vi. Irrigation 495833
vii. Society betterment
viii. Statistics 201438 241726 362589 543884 815826
ix. Grant given to district panchayat
for subsidiary panchayat
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Total grants for state government 495833 2150366 2580440 3870661 6654662 9981994
6. Interest
i. Interest of other additional investment of panchayat
ii. Interest on panchayat's finance and
advance 2469 300 450
iii. Interest on 67665 101498
a. advance of farmers
b. Society's improvement work
c. Miscellaneous loans 3130 3756 5634
iv. Loans given to panchayats servants
v. other
Total interest 2469 3130 3756 5634 67965 101948
7. Police
i. Fine levied under section 161 of
Gujarat panchayat act 1961
ii. Fee and expence on locking up cattle 5000
Total police 5000
8. Education
i. Income of primary education account
ii. Income of secondary education
account
iii. Donation and contribution
iv. Income from permanent funds
v. Miscellaneous
Total education
9. Medical
i. Hospital income
ii. Medicine distribution
iii. Income from insect study expert
and laboratory
iv. Income from permanent funds
v. Donation and contribution
vi. Miscellaneous
Total Medical
10. Public healh and improvement
i. Donation and contribution
ii. Income from permanent funds
iii. Miscellaneous
Total health 0 0 0 0 0 0
11. Agriculture
i. income from agriculture
ii. Miscellaneous
Total Agriculture
12. Cattle Rearing
i. Cattle hospital income
ii. Donation and contribution
iii. Miscellaneous
Total cattle rearing
13. Industries
i. Home based industries and small scale industries
ii. Handicraft schemes
iii. Miscellaneous
Total industries
14. Community development plans
i. Community development plans
ii. Central increment help
iii. Local development works
iv. Donation and contribution
v. Miscellaneous 444690
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Total community development plans 444690
15. Irrigation
i. Water rate
ii. Income from boat rate
iii. Income from canal and boat
iv. Miscellaneous
Total irrigation
16. Public constructions 191001 101498
i. Water rate
ii. Sale of buildings and land
iii. Sale of tools and materials
iv. Donations and contributions
v. Miscellaneous
Total public constructions 191001 101498
17. Miscellaneous 4566 5479 8219 10292 10292
i. Sale of materials and tools other
than public constructions
ii. Sunk properties (anamato)
iii. Other fee, funds and confescated
amounts
iv. Miscellaneous 54500 65400 98100 120500 120500
Total miscellaneous 59066 70879 106319 130792 130792
Total yield (turnover)
Debt Department
1. Government Debt
i. Loan for interest
ii. State government Loan
iii. Other types of loan
Total government debt
2. Loan and reserves given by panchayat
i. Advance given to farmers
ii.Loan given to co-operative society
iii. Loan given to group development
schemes
iv. Miscellaneous loans and Advances
Total loans and advances given by
panchayat
3. Reserved advances and surplus amount
a. reserved
i. Reserved funds
ii. Provident Fund
iii. District common fund
iv. District village development funds
v. Security Reserves
vi. Public construction deposit
vii. Reserves without proprietersip
viii. Miscellaneous reserves
Total reserved
b. Advances
i. Permanent advances
ii. Permanent advances
iii. Miscellanous advances
Total advances
c. Surplus Account
1. Surplus Accounts
Surplus Accounts
Total reserved advances and Surplus
accounts
Total debt department
Total income and debt 4426254 6317486 7580984 11371478 28608846 41650338
1st April ni baki 436588.75 436585.75 523903 785855 1237401.75 1856103
Grant Total 4862842.75 6754071.75 8104887 12157333 29846247.75 43506441
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Expenditure
Budget
actuals(GHUMA)(2008-2009)
Budget
actuals(GHUMA)(2009-2010)
Budget
actuals(GHUMA)(2010-2011)
Budget
actuals(GHUMA)(2011-2012)
Budget
actuals(GHUMA)(2012-213)
Budget
actuals(GHUMA)(2013-2104)
1. Common Administrative
19 common administrative
Honorary salary and allowance
a. President, vice president, chairman etc.
i. Honorary salary of president and
chairman of education committee
ii. Honorary allowance of president and chairman of education committee
i. Travel allowance of president and
chairman of education committee
Total salary and allowance
b. General eshtablishment
administrative 148599 222899
i. District development officer and
officers working in his office and staff's salary and allowance from which
depertmental officer such as executive
engineer and district agriculture officer's salary and allowance related accounts
should be mentioned under this column 125935 149135 178962 268443
180500 201500 241800 362700 4052 6078
14446 225 338
50 436700 93960
26000 5259 6311 9467
Total b coulmn staff grade 346931 355894 427073 640610 589576 323275
Total common administrative 355894 427073 640610 589576 323275
2. Interests
1. Intersts on loan from state govt.
2. Intersts on panchayat ppf
3. others
Total interests
3. Education
a. Gram paanchayat activities and
schemes / primary education
i. Primary schools
ii. Schemes for educated
unemployed
iii. Grants for institutions giving
primary education
iv. Secondary education
1. secondry education 52255 23200 27840 41760 62640 93960
a. common failed scholorship
b. State schemes and activities
c. Five year plans
d. Other schemes
Total education 52255 23200 27840 41760 62640 93960
4. Medical 28 medical
a. Panchayat schemes and activities
i. Medical staff group
ii. Hospitals and clinics
iii. Ayurvedic clinics
iv. Alopathy clinics
v. Grant for medical purposes
vi. State activities and schemes
vii.. Five year schemes
viii. Others
Total Medical
5. Health and improvement 562778 714499 857399 1286099
30 Public health 2096746 3145119
a. panchayat activities and schemes
i. Public health
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ii. Expense related to contageous
diseases
iii. Health protection
b. State activities and schemes
c. Five year schemes
d. Other schemes
Total health and improvement 562778 714499 857399 1286099 2096746 3145119
6. Agriculture (3 agriculture)
a. panchayat activities and schemes
i. Supervision
ii. Supporting and qualified staff
iii. Exhibition related to agriculture
and propoganda that includes ehibition and fairs
iv. Experiments and research related
to farming and agriculture
b. Agriculture engineering
c. Five year schemes
d. Other schems
Total agriculture 0 0 0 0 0
7. Animal Care (cattle rearing)
a. panchayat activities and schemes
i. supervision
ii. Suporting staff
iii. Hospital and clinics
iv. Works related to cattle rearing
v. Other grneral expences
b. State activities and plans
c. Five year schemes
Total cattle reariing 0 0 0 0 0
8. Co-operation (34 Co-operation)
a. panchayat activities and schemes 68993 82792 124188 47848 71772
i. Supervision 57321
ii. Grant, aid and activities of Co-
operative society
b. State activities and plans
c. Five year schemes
d. Other schems
Total co-operation 57321 68993 82792 124188 47848 71772
9. Industries (38 industries)
a. Panchayat activities and schemes
i. Small scale industries
ii. Miscellaneous
b. State activities and plans
c. Five year schemes
d. Other schems
Total industries
10. Collective development plans, state
vistran schemes and local development
works which has 37 collective development projects etc.
a. Collective development plans
i. supervision 302896 537356 644827 967241 112975 169463
ii. Agriculture and cattle rearing 468028 477168 572602 858903 946370 1419555
iii. Vistran 1230093 1845140
iv. Irrigation 150734 180881 271322 10000 15000
v. Land improvement 15000 18000 27000 902.78 1354
vi. Health 44000 66000
vii.Education 14870 22305
viii. Education of society
ix. Message vyavahar 629832
x. Rural art, skill and industries
xi. Various projects
xii. Housing
xiii. Training
xiv. Construction works 143336
xv. Surplus 1240420
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Total Collective development plans 2784512 1180258 1416310 2124466 2359210.78 3538817
b. State visrtran seva
c. local development works
d. Panchayat activities and schemes
11. Society welfare
39 miscellaneous development
organization 10000 20000 24000 36000 54000 81000
a. Panchayat activities and schemes
i. Statistics
ii. Anti-addiction propaganda
iii. Backward class welfare
iv. Rural construction
v. Miscellaneous
b. State activities and plans
c. Five year schemes
d. Other schemes
Total Society welfare 10000 20000 24000 36000 54000 81000
12. Irrigation
a. Panchayat activities and schemes 305615
i. Irrigation works vistran and
improvement
ii. department and improvement staff
class
iii. Tools and machines
iv. Miscellaneous
Total irrigation 305615 0 0 0 0 0
13. Public construction 4612832 6919248
a. Base works 1610424 1932509 2898764 4348146 6522219
i. Building common development
department.
ii. Communication systems 239800 594493 713392 1070088 1605132 2407698
iii. Base works miscellaneous 1408736 1690483 2535725 3803588 5705382
iv. Improvement and small
constructions 361360 433632 650448 975672 1463508
v. staff members 485618 113019 135623 203435 305153 457730
vi.Tools and small innovation factory
vii. Raachrasilu
viii.Surplus
b. State activities and plans
c. Five year schemes
d. Other schemes
Total Public construction 725418 4088032 4905639 7358460 15650523 23475785
14.Draught relief
i. relief works
ii. Relief to people other than ones blocked in relief works
iii. Free relief
iv. Miscellaneous
Total Draught relief
15. Pension
i. activities before and after
completion of time
ii. Salary
iii. Help pension
iv. gratuities
v. Family
vi. Pension
Total pension
16. forests
a. Panchayat activities and schemes
i. Cleaning works
ii. Staff members
b. State activities and plans
c. Five year schemes
d. Other schemes
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Total Forests
17. Miscellaneous
a. Panchayat activities and schemes 5600 6720 10080 15120 22680
i. Donation for welfare intentions 8350 12525
ii. Contribution for district
development 190353 285530
iii. Loan that is not returned 3150
iv. Welcome and entertainment expenses
v. Miscellaneous 2600 3120 4680
b. State activities and plans 11720 14064 21096
c. Five year schemes
Total miscellaneous 3150 19920 23904 35856 213823 320735
Debt Department
1. Government Debt
i. Loan for interest
ii. State government Loan
iii. Other types of loan
Total government debt
2. Loan and advances given by
panchayat
i. Advance given to farmers
ii.Loan given to co-operative society
iii. Loan given to group development
schemes
iv. Miscellaneous loans and Advances
Total loans and advances given by
panchayat
3. Reserved advances and surplus amount
a. Reserved
provident Fund
ii. Security Reserves
iii. State common fund
iv. District gram panchayat
v. Security Reserves
vi. Public construction deposit
vii. Reserves without proprietorship
viii. Miscellaneous reserves
Total(a) reserved 0 0 0 0 0 0
b. Advances
i. Permanent advances
ii. Permanent advances
iii. Miscellaneous advances
Total(b) advances
c. Surplus Account
i. Surplus Accounts
Surplus (c) Accounts
Total deposit reserves
and surplus accounts
Total debt department
Total expenditure and debt department 4553304 6493996 7792797 11689199 21137006.78 31144423
in hand on 31st march 436585575 293275.75 351931 527897 1103531.59 1655297
Grant Total 441138879 6787271.75 8144728 12217096 22240538.37 32799720
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133 | Page Riddhi Vakharia PP0008714
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