session title: urban local bodies ( municipalities and municipal corporations ) — a historical...

Session Title:Session Title:

Urban Local BodiesUrban Local Bodies((Municipalities and Municipal CorporationsMunicipalities and Municipal Corporations) — ) —

A Historical perspectiveA Historical perspective

Training Module on 'Audit of ULBs' Session 1Training Module on 'Audit of ULBs' Session 1 22

Session Overview:Session Overview: In this session we will discuss:In this session we will discuss:

the origin and evolution of urban local self the origin and evolution of urban local self

government, government,

the system of the same in ancient and present India.the system of the same in ancient and present India.

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Learning Objectives:Learning Objectives: The overview of this will enable the The overview of this will enable the

participantsparticipants to understand the role and importance of to understand the role and importance of

urban local self government in urban society.urban local self government in urban society.

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Origin of urban local self governmentOrigin of urban local self government

•Development in all its possible Development in all its possible

dimensions– social, economic and political – dimensions– social, economic and political –

is the cry of the day, not only in the is the cry of the day, not only in the

developed countries,developed countries,

• but especially in the developing countries but especially in the developing countries

of Asia, Africa and Latin America as well, of Asia, Africa and Latin America as well,

which have earned independence after the which have earned independence after the

Second World War.Second World War. Next


•These “New States” aspire for These “New States” aspire for

modernity and feel the pressing necessity modernity and feel the pressing necessity

of rapid national development.of rapid national development.

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•The tendency in the countries today is The tendency in the countries today is

towards towards organizing local governments to give them organizing local governments to give them

sound footing, andsound footing, and

to make them play a substantial role in the to make them play a substantial role in the

process of economic and political process of economic and political

transformation.transformation.

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•The industrial revolution, The industrial revolution,

•new scientific and technological advancements,new scientific and technological advancements,

• need for social and economic changesneed for social and economic changes

-- are some of the causes which have generally -- are some of the causes which have generally

widened the scope of the activities of the state, vis-à-widened the scope of the activities of the state, vis-à-

vis, local governments.vis, local governments.

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•The municipal government in the urban The municipal government in the urban

areas may be conceived asareas may be conceived as

-- an elected political institution for local -- an elected political institution for local

popular choice for local civic services.popular choice for local civic services.

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•It has been universally regarded as It has been universally regarded as

people’s government at the grass roots level people’s government at the grass roots level

in the shape of local government for the in the shape of local government for the

urban areas.urban areas.

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•A municipality, being closest to the A municipality, being closest to the

local community, is favourably suited tolocal community, is favourably suited to• respond to diverse local needs in the respond to diverse local needs in the

most economical manner.most economical manner.

•It enhances people’s participation and It enhances people’s participation and

political awarenesspolitical awareness

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•The word ‘municipality’ denotesThe word ‘municipality’ denotes a town, city or district that has its local a town, city or district that has its local

government, and government, and

•‘‘corporation’ refers to corporation’ refers to a group of people elected to govern a a group of people elected to govern a

large town or city and provide public large town or city and provide public

services.services.

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•The name city or town is given to certain The name city or town is given to certain

communitiescommunities by virtue of some legal or conventional by virtue of some legal or conventional

distinction anddistinction and

it refers to an urban area incorporated by it refers to an urban area incorporated by

special or general act of state legislature. special or general act of state legislature.

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• Its charter of incorporation prescribes the Its charter of incorporation prescribes the

extent of municipal powers and the frame of extent of municipal powers and the frame of

local government subject to constitutional local government subject to constitutional

limitation and amendment.limitation and amendment.

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•A municipal town is generally acclaimed to A municipal town is generally acclaimed to have these characteristics:have these characteristics:

• ¾¾ of the adult male population chiefly employed of the adult male population chiefly employed in pursuits other than agriculture;in pursuits other than agriculture;

• not less than 3000 residents;not less than 3000 residents;• an average number of not less than 1000 an average number of not less than 1000

inhabitants to the square miles; andinhabitants to the square miles; and• it serves as the primary school for training in the it serves as the primary school for training in the

management of the government.management of the government.

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The origin of urban development dates backThe origin of urban development dates back to the ancient age.to the ancient age.


•The earliest of man’s settlements grew in The earliest of man’s settlements grew in

the rich subtropical valleys of the Nile, the the rich subtropical valleys of the Nile, the

Tigris, the Euphrates, the Indus and the Tigris, the Euphrates, the Indus and the

Yellow rivers or in such well-watered islands Yellow rivers or in such well-watered islands

of Crete. of Crete.

•Such areas provided favourable Such areas provided favourable

environmental factors making town living environmental factors making town living

relatively easy.relatively easy.

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•Historians believeHistorians believe that man started relatively fixed that man started relatively fixed

settlement about 10,000 years ago in the settlement about 10,000 years ago in the

Neolithic age.Neolithic age.

evolution of the Neolithic village into a city evolution of the Neolithic village into a city

took more than 1,500 years in the Old took more than 1,500 years in the Old

World from 5,000 to 3,500 B.C.World from 5,000 to 3,500 B.C.

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•Domestication of animals and technological Domestication of animals and technological

developments in agriculture tuned with developments in agriculture tuned with

development in transportation facilitated man’s development in transportation facilitated man’s

settlement in urban places. settlement in urban places.

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•This is evident fromThis is evident from the city based settlements in Tigris-Euphrates the city based settlements in Tigris-Euphrates

valley around 3,500 B.C,valley around 3,500 B.C,

Sumerian Coast at Ur and in the Indus Valley at Sumerian Coast at Ur and in the Indus Valley at

Mohenjo-daro and in the valleys of Nile. Mohenjo-daro and in the valleys of Nile.

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•Cities proliferated along overland trade-roots Cities proliferated along overland trade-roots

from Turkestan to the Caspian and then to the from Turkestan to the Caspian and then to the

Persian Gulf and eastern Mediterranean. Persian Gulf and eastern Mediterranean.

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•The heterogeneous peoples of the The heterogeneous peoples of the

Greco-Roman world inheritedGreco-Roman world inherited a technological and non-material culture a technological and non-material culture

from Asia that helped nourish the growth from Asia that helped nourish the growth

of cities.of cities.

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•In the Greek city-state or ‘polis’ the In the Greek city-state or ‘polis’ the

ancient city system of administration ancient city system of administration

reached its peak. reached its peak.

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In the medieval age (12th and 13th In the medieval age (12th and 13th

centuries) new towns were set up, andcenturies) new towns were set up, and

the age witnessed a singular upsurge the age witnessed a singular upsurge

toward civic autonomy.toward civic autonomy.

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Towns in western Europe had various kinds Towns in western Europe had various kinds

of municipal institutions loosely grouped of municipal institutions loosely grouped

together under the designation ‘commune’. together under the designation ‘commune’.

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The renaissance and industrialisation The renaissance and industrialisation

was a watershed in the modern urban was a watershed in the modern urban

world which witnessed a rapid growth in world which witnessed a rapid growth in

urban development. urban development.

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More number of cities and townships More number of cities and townships

came into being came into being advent of rapid modes of transit, advent of rapid modes of transit,

communications, new building materials, communications, new building materials,

the automobile and rising level of per capita the automobile and rising level of per capita

personal income.personal income.

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Types of Municipal systemTypes of Municipal system

The municipal system of government The municipal system of government today may be classified in four principal today may be classified in four principal types:types:

the decentralised system found in federal the decentralised system found in federal constitutions;constitutions;

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the decentralized system found in unitary the decentralized system found in unitary constitutions;constitutions;

the supervisory system found under the supervisory system found under “Napoleonic’ or French-type “Napoleonic’ or French-type administration; andadministration; and

the integrated system found in eastern the integrated system found in eastern Europe.Europe.

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Modern day urban planningModern day urban planning

With the growth of more urban areas in With the growth of more urban areas in

the present day the need for proper civic the present day the need for proper civic

administration is of paramount administration is of paramount

importance.importance.

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A modern day city or town has to look A modern day city or town has to look

after the following needs shown in the after the following needs shown in the

next slide:next slide:

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orderly arrangement of parts of the cityorderly arrangement of parts of the city

residential, business and industrialresidential, business and industrial

so that each part could perform its so that each part could perform its

functions with minimum cost and conflict;functions with minimum cost and conflict;

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an efficient system of circulation an efficient system of circulation

within the city and to the outside within the city and to the outside

world, using to the maximum world, using to the maximum

advantage of all modes of advantage of all modes of

transportation; transportation;

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the development of each part of the city to the development of each part of the city to

optimum standards, in terms of plot size, optimum standards, in terms of plot size,

sunlight, and green space in residential areas sunlight, and green space in residential areas

and parking and building spacing in business and parking and building spacing in business

areas;areas;

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provision of safe , sanitary and provision of safe , sanitary and

comfortable housing in a variety of comfortable housing in a variety of

dwelling types to meet the needs of all dwelling types to meet the needs of all

families;families;

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provision of recreation, schools and other provision of recreation, schools and other

community services of adequate size, community services of adequate size,

location and quality;location and quality;

provision of adequate and economical water provision of adequate and economical water

supply, sewerage, utilities and public supply, sewerage, utilities and public

services.services.

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Urban self governmentUrban self government in Ancient Indiain Ancient India

The idea of local self government was present The idea of local self government was present even during the grand old days of Vedic India.even during the grand old days of Vedic India.

The cult of “Sabha” (Popular Assembly) and The cult of “Sabha” (Popular Assembly) and mention of city administration in the ancient mention of city administration in the ancient epics show evidence of existence of epics show evidence of existence of constitutional government at local level.constitutional government at local level.

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Kautilya’s “Arthasastra” of 300 B.C. talks of city Kautilya’s “Arthasastra” of 300 B.C. talks of city

administration by state appointed “Nagaraka” administration by state appointed “Nagaraka”

(City Superintendent) performing various civic (City Superintendent) performing various civic

functionsfunctions

The accounts of Megasthenes, narrate The accounts of Megasthenes, narrate

performance of various civic administration and performance of various civic administration and

formation of local bodies like “Kudumbus” formation of local bodies like “Kudumbus”

(wards). (wards).

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Urban self government in British IndiaUrban self government in British India

the present system of municipal government the present system of municipal government

was by and large introduced in this country by was by and large introduced in this country by

the British Government.the British Government.

Madras was the first city to be established as a Madras was the first city to be established as a

municipal corporation in 1688.municipal corporation in 1688.

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Municipal Corporations were created for Municipal Corporations were created for

Calcutta and Bombay by a Royal Charter Calcutta and Bombay by a Royal Charter

granted in 1727.granted in 1727.

More Municipalities and Corporations were set More Municipalities and Corporations were set

up in different areas progressively.up in different areas progressively.

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Socio-political obligations chiefly led to the Socio-political obligations chiefly led to the

creation of those urban local governments creation of those urban local governments to bring down pressure on the royal treasury,to bring down pressure on the royal treasury,

to look after the health and well-being of the British to look after the health and well-being of the British

soldiers and soldiers and

to facilitate collection of taxes and revenues from the to facilitate collection of taxes and revenues from the

local inhabitants.local inhabitants.

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The Bengal Act X of 1842The Bengal Act X of 1842 the first municipal legislation outside the the first municipal legislation outside the

Presidency town of Calcutta. Presidency town of Calcutta.

replaced by the Act XXVI of 1850 as an all-India replaced by the Act XXVI of 1850 as an all-India

measure.measure.

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Lord Rippon’s famous Act of 1884Lord Rippon’s famous Act of 1884 universally acknowledged as the harbinger of local universally acknowledged as the harbinger of local

democracy in urban India.democracy in urban India.

brought about fundamental changes in the brought about fundamental changes in the municipal structure, functions and responsibilities, municipal structure, functions and responsibilities, and and

under this Act, all members of the Board were to under this Act, all members of the Board were to be elected.be elected.

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Later, this Act was substituted by the Later, this Act was substituted by the

Bengal Municipal Act 1932Bengal Municipal Act 1932

which continued to be the basic guiding which continued to be the basic guiding

municipal legislation in the pre -independence municipal legislation in the pre -independence

era.era.

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Urban self government inUrban self government inPost Independence IndiaPost Independence India

After independence and with the After independence and with the inauguration of the Constitution inauguration of the Constitution the position of local self government the position of local self government

institutions has assumed an increasing institutions has assumed an increasing importance in the political and administrative importance in the political and administrative set-up of the country.set-up of the country.

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Urban self government inUrban self government inPost Independence IndiaPost Independence India

A Central Council of Local Self-A Central Council of Local Self-Government was established under Article Government was established under Article 263 of the Constitution by a Presidential 263 of the Constitution by a Presidential order in September, 1954.order in September, 1954.

This provided a forum for discussion of This provided a forum for discussion of policy and programmes on local self policy and programmes on local self government. government.

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Constitutionalising the ULBsConstitutionalising the ULBs

A wave of decentralization of service A wave of decentralization of service delivery to local governments gathered delivery to local governments gathered momentum in the 1990s, including momentum in the 1990s, including countries like Albania, Bolivia, Bosnia, countries like Albania, Bolivia, Bosnia, Brazil, Ethiopia, Malawi, Madagascar, Brazil, Ethiopia, Malawi, Madagascar, Philippines, South Africa, Uzbekistan Philippines, South Africa, Uzbekistan Uganda and Zambia.Uganda and Zambia.

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Constitutionalising the ULBsConstitutionalising the ULBs

India also implemented a countrywide India also implemented a countrywide experiment with decentralisation to urban experiment with decentralisation to urban local governments with the passage of local governments with the passage of 74th Constitutional Amendment in 1992.74th Constitutional Amendment in 1992.

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The 74th Amendment Act, 1992 inserted The 74th Amendment Act, 1992 inserted Articles 243 P to 243 ZG, for uniform Articles 243 P to 243 ZG, for uniform compliance throughout the country.compliance throughout the country.

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the major features of Articles 243 P to 243 the major features of Articles 243 P to 243

ZG are:ZG are: a) a) Granting ULBs constitutional status;Granting ULBs constitutional status;

b) Ensuring free, fair and regular elections;b) Ensuring free, fair and regular elections;

c) Keeping terms fixed;c) Keeping terms fixed;

d) Identifying a list of 18 subjects to come d) Identifying a list of 18 subjects to come

under the jurisdiction of the ULBs as under the jurisdiction of the ULBs as

enumerated in the Twelfth Schedule;enumerated in the Twelfth Schedule;

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e) Setting up of a State Finance Commission e) Setting up of a State Finance Commission once in five years to review ULB financial once in five years to review ULB financial position and make suitable recommendations position and make suitable recommendations for fund distribution to ULBs;for fund distribution to ULBs;

f) Independent State Election Commission to f) Independent State Election Commission to supervise preparation of electoral rolls and supervise preparation of electoral rolls and control electoral process;control electoral process;

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g) Proportionate reservation of seats and g) Proportionate reservation of seats and offices of Chairpersons at all levels for SC and offices of Chairpersons at all levels for SC and ST, with one third reserved for SC/ST women;ST, with one third reserved for SC/ST women;

h) One third of total seats and chairperson h) One third of total seats and chairperson offices reserved for women;offices reserved for women;

i)i) The centrality of Ward Committees to The centrality of Ward Committees to decentralise governance.decentralise governance.

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Article 243W enjoinsArticle 243W enjoins the Legislature of a State may, by law, the Legislature of a State may, by law,

endow the Municipalities with such powers endow the Municipalities with such powers

and authority as may be necessary to and authority as may be necessary to

enable them to function as institutions of enable them to function as institutions of

self-government.self-government.

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Such law may contain provisions for the Such law may contain provisions for the

devolution of powers and responsibilities devolution of powers and responsibilities

upon Municipalities with respect to:upon Municipalities with respect to: the preparation of plans for economic the preparation of plans for economic

development and social justice;development and social justice; the performance of functions and the the performance of functions and the

implementation of schemes as may be implementation of schemes as may be entrusted to them including those in relation to entrusted to them including those in relation to the matters listed in the 12the matters listed in the 12 thth Schedule. Schedule.

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Thus, the 74th Constitutional Thus, the 74th Constitutional

Amendment consolidatedAmendment consolidated social gains conceived in establishing the social gains conceived in establishing the

ULBs throughout the country andULBs throughout the country and

imposed a political uniformity on the imposed a political uniformity on the

structure and working of the third tier. structure and working of the third tier.

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Urban Local Bodies in West BengalUrban Local Bodies in West BengalThis part is to be adopted as per Sate specific scenario

Modernisation in the system of Modernisation in the system of Urban Local Bodies in West Urban Local Bodies in West Bengal started in the late Bengal started in the late seventies.seventies.

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Urban Local Bodies in West BengalUrban Local Bodies in West BengalThis part is to be adopted as per Sate specific scenario

The State Government constituted The State Government constituted

an Urban Development Strategy an Urban Development Strategy

Committee which recommended, Committee which recommended,

inter alia:inter alia: bringing uniformity in the development bringing uniformity in the development

programmes of the municipalities and programmes of the municipalities and

corporations,corporations,

optimum utilisation of local resources,optimum utilisation of local resources,

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giving precedence to the development of giving precedence to the development of

the poorest section of the society,the poorest section of the society,

decentralisation of development schemes decentralisation of development schemes

entrusting the local bodies to draw the entrusting the local bodies to draw the

schemes for civic services and execution schemes for civic services and execution

thereof.thereof.

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Besides, the five-point programme Besides, the five-point programme followed by the State Government followed by the State Government included included inter aliainter alia:: holding civic elections of all the urban local holding civic elections of all the urban local

bodies at fixed regular intervals,bodies at fixed regular intervals,

establishing development in the urban establishing development in the urban infrastructure, efficiency, modernisation and infrastructure, efficiency, modernisation and transparency,transparency,

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There are 117 municipalities, 6 municipal There are 117 municipalities, 6 municipal corporations and 3 notified area authorities corporations and 3 notified area authorities in West Bengal.in West Bengal.

Municipal Corporations are located in:Municipal Corporations are located in: Kolkata Kolkata Howrah,Howrah, Silliguri, Silliguri, Assansol,Assansol, Chandernagore,Chandernagore, DurgapurDurgapur Next


Budget provision and expenditure of Urban Budget provision and expenditure of Urban Local Bodies in West Bengal Local Bodies in West Bengal (Rs. in Crores)(Rs. in Crores)

0

200

400

600

800

1000

1200

1400

2002-03 2003-04 2004-05

Budget Estimate Actual Plan Exp.

Actual Non-Plan Exp. Municipal Affair Department Non-Plan Exp.Next


The percentage of over all expenditure is illustrated The percentage of over all expenditure is illustrated in the following graphs: (Rs. in crores)in the following graphs: (Rs. in crores)

Year Budget Estimate

Actual Expenditure

Savings(+)/Excess(-)

Percentage of Over all Expenditure

2002-03 1232.6 622.3 (+) 610.30 50.48

2003-04 911.86 674.95 (+) 236.91 74.01

2004-05 996.85 743.60 (+) 253.25 74.59

2002-2003

622.3, 50%

610.3, 50%

Actual Exp. Savings 2003-2004

236.91, 26%

674.95, 74%

Actual Exp.Savings

2004-2005

253.25, 25%

743.6, 75%

Actual Exp.Savings

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Analysis of Financial performanceAnalysis of Financial performance Subject to availability of data, a performance study on the working of Subject to availability of data, a performance study on the working of

ULBs may be made through an interesting analysis of allotment, vis-ULBs may be made through an interesting analysis of allotment, vis-à-vis, actual expenditure under different heads, as shown below by à-vis, actual expenditure under different heads, as shown below by way of illustration, say for the year 2004-05: way of illustration, say for the year 2004-05:

HeadsAllotment(Rs in crore.)

Actual Expenditure

(Rs. in crore)

Savings (+)/Excess (-)

% age of Savings/Excess

Salaries 500 525 (-) 25 (-) 5

Sewerage 50 35 (+) 15 (+) 30

Sanitation 50 30 (+) 20 (+) 40

Water supply 200 150 (+) 50 (+) 25

Health care 100 70 (+) 30 (+) 30

Solid Waste Management

300 150 (+) 150 (+) 50

session title: urban local bodies ( municipalities and municipal corporations ) — a historical...

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audit of ulbs session

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shape of local government

local governments

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urban society

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