Institutional changes in peri urban areas A Case of Bopal Ghuma Nagarplaika

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

Institutional changes in Peri-urban area its Challenges and prospects- A case of Bopal-Ghuma Nagarpalika

III | Page Riddhi Vakharia PP0008714

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.


Riddhi Vakharia PP0008714 IV | Page

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


Riddhi Vakharia PP0008714 VIII | Page

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.


XI | Page Riddhi Vakharia PP0008714

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


Riddhi Vakharia PP0008714 8 | Page

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


9 | Page Riddhi Vakharia PP0008714

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



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



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 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



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



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/



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



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/



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



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.



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.



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



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



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)



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



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



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.



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



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



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



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



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



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



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.



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



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.



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



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



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



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



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



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.



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.



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



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



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)



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)



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



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.



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



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



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



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.



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,



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



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



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



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)



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



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



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



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



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



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



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



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



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



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



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







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



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.



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



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




Total

Population Male 2037 2503 2862 4489 8721 27609




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



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



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



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



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



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.



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



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.



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



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



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



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



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



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



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



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



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



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.



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


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



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 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



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



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



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



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



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.



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.



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

Institutional changes in Peri-urban areas: Challenges and prospects


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;

Institutional changes in peri-urban area: Challenges and Prospects


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:



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



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



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.



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



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



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



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



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



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



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



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



Budget of Bopal

Yield and Income Budget

actuals(Bopal)

(2008-2009)

Budget actuals(Bopal)

(2009-2010)


(2010-2011)


(2011-2012)


(2012-2013)


(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



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


ii. Fee and expence on locking up

cattle

Total police



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


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



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



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


Budget


Budget


Budget


Budget

actuals(Bopal)

(2013-2014)



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



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


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


d. Other schems

Total agriculture 15148 25246 50492 72131 38025 39700



7. Animal Care (cattle rearing)


i. supervision

ii. Suporting staff

iii. Hospital and clinics

iv. Works related to cattle

rearing

v. Other grneral expences

b. State activities and plans


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



d. Other schems

Total co-operation 0

9. Industries (38 industries)

a. Panchayat activities and schemes

i. Small scale industries

ii. Miscellaneous



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



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


c. Five year schemes 17000

d. Other schems

Total Society welfare 451655 752758 1505516 2150737 3446352 2453208

12. Irrigation


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



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


schemes

i. Cleaning works

ii. Staff menbers



d. Other schems

Total Forests



17. Miscellaneous


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



Debt Department

1. Government Debt





2. Loan and advances given by panchayat

i. Advance given to farmers 187968


89051

iii. Loan given to group

development schemes



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






Total(b) advances

c. Surplus Account

i. Surplus Accounts

Surplus (c) Accounts

Total deposit reserves

and surplus accounts


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



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



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


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


v. Miscellaneous

Total education

9. Medical

i. Hospital income

ii. Medicine distribution

iii. Income from insect study expert

and laboratory


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



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





2. Loan and reserves given by panchayat

i. Advance given to farmers


iii. Loan given to group development

schemes



panchayat

3. Reserved advances and surplus amount

a. reserved

i. Reserved funds

ii. Provident Fund

iii. District common fund

iv. District village development funds



vii. Reserves without proprietersip


Total reserved

b. Advances




Total advances

c. Surplus Account

1. Surplus Accounts

Surplus Accounts

Total reserved advances and Surplus

accounts


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



Expenditure

Budget

actuals(GHUMA)(2008-2009)

Budget


Budget


Budget


Budget


Budget


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


i. Public health



ii. Expense related to contageous

diseases

iii. Health protection

b. State activities and schemes


d. Other schemes

Total health and improvement 562778 714499 857399 1286099 2096746 3145119

6. Agriculture (3 agriculture)


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


d. Other schems

Total agriculture 0 0 0 0 0

7. Animal Care (cattle rearing)


i. supervision

ii. Suporting staff

iii. Hospital and clinics

iv. Works related to cattle rearing

v. Other grneral expences



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



d. Other schems

Total co-operation 57321 68993 82792 124188 47848 71772

9. Industries (38 industries)


i. Small scale industries

ii. Miscellaneous



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



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


i. Statistics

ii. Anti-addiction propaganda

iii. Backward class welfare

iv. Rural construction

v. Miscellaneous



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



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


i. Cleaning works

ii. Staff members



d. Other schemes



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



Debt Department

1. Government Debt





2. Loan and advances given by

panchayat

i. Advance given to farmers


iii. Loan given to group development

schemes



panchayat

3. Reserved advances and surplus amount

a. Reserved

provident Fund

ii. Security Reserves

iii. State common fund

iv. District gram panchayat



vii. Reserves without proprietorship


Total(a) reserved 0 0 0 0 0 0

b. Advances



iii. Miscellaneous advances

Total(b) advances

c. Surplus Account

i. Surplus Accounts

Surplus (c) Accounts

Total deposit reserves

and surplus accounts


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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