Local Self-Government in Uttar Pradesh

CM of Uttar Pradesh recently urged all Urban Local Bodies (ULBs) to actively contribute towards the vision of a Developed India by 2047 under the ‘Viksit UP @ 2047’ dialogue series.

Local Self- Government in Uttar Pradesh

Local Self-Government (LSG) refers to institutions of governance at the grassroots level, enabling people to manage local affairs through elected representatives. Recognised as the third tier of Indian federalism by the 73rd and 74th Constitutional Amendments, LSG plays a crucial role in Uttar Pradesh due to its large population, high rural share, regional disparities, and administrative complexity.

Historical Evolution of LSG in Uttar Pradesh

• Ancient Roots: Indigenous Traditions

• • Chola Empire is regarded as the earliest and most institutionalised example of Panchayati Raj in India.
  • Village assemblies like Ur, Sabha, and Nagaram exercised powers over taxation, justice, irrigation, and land management, reflecting a high degree of decentralisation and accountability.
  • This demonstrates that local self-governance is deeply rooted in Indian civilisation, not a colonial import.

• Pre-Independence Phase

• • Traditional Panchayats functioned as informal village institutions handling disputes, social regulation, and community welfare.
  • Leadership was exercised by village elders chosen through custom and consensus.
  • British rule introduced local bodies primarily for revenue collection and administrative convenience.
  • In Uttar Pradesh (then United Provinces), the Village Panchayat Act, 1920 gave statutory recognition to village panchayats, though mainly for revenue and administrative convenience.
  • Lord Ripon is widely regarded as the Father of Local Self-Government in India. His Resolution of 1882 advocated:
    • Elected local bodies
    • Financial autonomy
    • Decentralisation for administrative efficiency
• Post-Independence Phase
  • Community Development Programme (1951) promoted people’s participation in rural development.
  • Balwant Rai Mehta Committee laid the foundation of Panchayati Raj.
  • UP Panchayat Raj Act, 1961 institutionalised PRIs in the state.
  • The 73rd and 74th Constitutional Amendments (1992–93) transformed PRIs and ULBs into constitutional institutions.

Gandhian Perspective and Relevance of LSG to Uttar Pradesh

• Gram Swaraj: Mahatma Gandhi envisioned villages as self-sufficient republics, capable of managing their own social, economic, and political affairs through empowered Panchayats.
• Bottom-up Democracy: He emphasised decentralised decision-making, moral responsibility of representatives, and active citizen participation as the foundation of true democracy.
• Ram Rajya (Ethical Governance Ideal): Gandhi interpreted Ram Rajya not as a religious concept, but as a model of just, transparent, and people-centric governance, characterised by rule of law, equality, welfare of the weakest, and accountability of rulers—principles closely aligned with effective local self-government.
• Relevance to Uttar Pradesh: With nearly 77% rural population, Gandhian decentralisation and the ideal of Ram Rajya remain vital for inclusive governance, social justice, ethical administration, and last-mile service delivery in Uttar Pradesh.

Constitutional Framework related to LSG

73rd Constitutional Amendment – Rural Local Government

• Etawah is, known for the first Community Development Project in post-independent India, which began in 1948 and focused on integrated rural development and community self-help, serving as a model for subsequent programs across the country. 
• The 73rd Constitutional Amendment Act, 1992 provided constitutional status to Panchayati Raj Institutions (PRIs), institutionalising grassroots democracy and decentralised governance in Uttar Pradesh.
• Uttar Pradesh follows a three-tier PRI system:
  • Gram Panchayat (Village Level): The basic unit of rural governance, responsible for delivery of essential services.
    • Around 58,000+ Gram Panchayats
    • Functions: drinking water, sanitation, MGNREGA, PMAY-G, village infrastructure.
  • Panchayat Samiti (Block Level): Acts as a coordinating and planning body between Gram Panchayats and the district administration.
    • Consolidates village plans and implements schemes
  • Zila Panchayat (District Level): Apex rural local body responsible for district-level planning, supervision, and inter-sectoral coordination.
    • Responsible for district planning, supervision, and inter-sectoral coordination.

• Currently, UP has 75 Zila Panchayats, 826 Kshetra Panchayats, and over 58,000+ Gram Panchayats, making it one of the largest Panchayati Raj systems in India.

Key Features of the 73rd Amendment and Their Application in UP

• Regular Elections (Article 243E): Mandatory elections to PRIs every five years, ensuring democratic continuity and accountability.
• Reservation and Social Justice (Articles 243D & 243T): Reservation for SCs and STs in proportion to their population.

• • 50% reservation for women in Panchayats in Uttar Pradesh, promoting gender-inclusive governance.

• State Election Commission (Article 243K): Establishes an independent State Election Commission (SEC) to conduct, supervise, and control PRI elections.

• The Uttar Pradesh State Election Commission conducts elections for Gram Panchayats, Kshetra Panchayats, and Zila Panchayats, ensuring autonomy from the state executive.

• State Finance Commission (Article 243I): Mandates periodic constitution of an SFC to recommend devolution of funds to PRIs.

• • In UP, while SFCs are constituted regularly, implementation of recommendations remains uneven, affecting fiscal autonomy.
    

• Functional Devolution (Article 243G & Eleventh Schedule): 29 subjects such as agriculture, rural housing, drinking water, sanitation, primary education, and poverty alleviation are listed for transfer to PRIs.

• • Several functions like MGNREGA implementation, PMAY-G, Swachh Bharat Mission, and drinking water supply are routed through Gram Panchayats, though full devolution remains a work in progress.

74th Constitutional Amendment – Urban Local Government

• In 1953, the U.P. government established municipal corporations in five major cities, which are historically referred to as the KAVAL Towns. The cities that were established as the first municipal corporations (Nagar Nigams) in Uttar Pradesh were: ,Kanpur, Agra, Varanasi, Allahabad (now Prayagraj) and Lucknow
• Kanpur Municipal Corporation was formally established in 1959, making it one of the oldest among these three major corporations. 
• The 74th Constitutional Amendment Act, 1992 accorded constitutional status to Urban Local Bodies (ULBs), recognising municipalities as institutions of self-government to promote decentralised urban governance and democratic accountability in rapidly urbanising states like Uttar Pradesh.

• Three-Tier ULB Structure in India

  • Nagar Panchayat – Transitional urban areas

  • Municipal Council (Nagar Palika) – Small and medium towns

  • Municipal Corporation (Nagar Nigam) – Large cities and metros

• Uttar Pradesh has the highest number of Urban Local Bodies in India.
  

• Cities such as Lucknow, Kanpur, Varanasi, Agra, Prayagraj, and Ghaziabad function as Nagar Nigams, playing a crucial role in urban service delivery.

Key Features of the 74th Amendment and Their Application in UP

• Constitutional Recognition (Article 243P–243ZG): Municipalities are constitutionally mandated, ensuring continuity, stability, and democratic legitimacy in urban governance.
• Functional Domain (Article 243W & Twelfth Schedule): ULBs are entrusted with 18 functions, including:
  • Urban planning and land use regulation
  • Public health, sanitation, and solid waste management
  • Urban roads, street lighting, water supply, and drainage
  • Urban poverty alleviation and slum improvement
• Implementation of missions like Swachh Bharat Mission (Urban), AMRUT, and Smart Cities Mission is largely routed through ULBs, though Special Purpose Vehicles (SPVs) sometimes dilute municipal control.

• State Election Commission (Article 243ZA): Establishes an independent State Election Commission for conducting municipal elections.

• • The Uttar Pradesh State Election Commission conducts elections for Nagar Nigams, Nagar Palikas, and Nagar Panchayats, ensuring electoral autonomy from the state executive.

• Reservation and Inclusiveness (Article 243T): Reservation for SCs, STs, and women in urban local bodies.

• • Uttar Pradesh provides 50% reservation for women, promoting gender equity in urban governance.

• Ward Committees (Article 243S): Mandatory in cities with a population of 3 lakh or more to enhance citizen participation and local accountability.

• • Ward Committees exist in large municipal corporations like Lucknow and Kanpur, though their functioning remains uneven.

Scheduled Areas and PESA in Uttar Pradesh

The Panchayats (Extension to Scheduled Areas) Act, 1996 (PESA) was enacted to extend the provisions of Part IX of the Constitution to Scheduled Areas notified under the Fifth Schedule, with the objective of ensuring tribal self-governance, cultural autonomy, and participatory development.

Applicability in Uttar Pradesh

• In Uttar Pradesh, PESA applies only to Sonbhadra district, the state’s sole Scheduled Area, predominantly inhabited by tribal communities.
• The Act seeks to empower Gram Sabha as the primary institution of governance, reflecting the constitutional vision of bottom-up democracy.

Key Provisions and Empowerment

• Gram Sabha Supremacy: PESA recognises the Gram Sabha as competent to safeguard and preserve tribal traditions, customs, and community resources.
• Control over Natural Resources: Gram Sabha is empowered to manage minor forest produce (MFP), water bodies, and common property resources, ensuring livelihood security for tribal communities.
• Land and Development Decisions: Mandatory consultation with Gram Sabha before:
  • Land acquisition for development projects
  • Rehabilitation and resettlement of affected persons
    This provision aims to prevent displacement without consent.
• Administrative Accountability: PESA mandates that plans, programmes, and projects for Scheduled Areas should be approved by the Gram Sabha or Panchayat at the appropriate level.

Role of Important Committees in Strengthening Local Self-Government

Financial Dimension of Local Self-Government in Uttar Pradesh

Financial empowerment is a critical pillar of effective decentralisation, as envisioned under Part IX and IX-A of the Constitution. Despite constitutional backing, fiscal autonomy of LSGs in Uttar Pradesh remains constrained in practice.

Role of the Finance Commission

• The 15th Finance Commission (2021–26) recommended ₹4.36 lakh crore for Panchayati Raj Institutions (PRIs) and Urban Local Bodies (ULBs) across India.

• Uttar Pradesh is one of the largest beneficiaries, owing to its high population weightage, large rural base, and extensive local body network.

• • Grants are divided into:

• Basic grants for general administration

• Tied grants for water supply, sanitation, and solid waste management

• Gram Panchayats in UP receive tied grants for Swachh Bharat Mission, drinking water projects, and sanitation infrastructure, routed through the Panchayat accounts.

State Finance Commission (SFC)

• Article 243I mandates the constitution of a State Finance Commission every five years to recommend:

• Distribution of taxes between the state and local bodies

• Assignment of revenue sources to PRIs and ULBs

• Grants-in-aid to strengthen local finances
  

Major Initiatives Strengthening Local Self-Government in Uttar Pradesh

Challenges of Local Self-Government in Uttar Pradesh

• Incomplete Devolution (3Fs): Limited transfer of Funds, Functions and Functionaries; key sectors like health, education and water remain under state departments.
• State Control & Bureaucratic Dominance: Excessive administrative control by District Magistrates and line departments weakens local autonomy and elected leadership.
• Fiscal Weakness: Low own-source revenue generation and heavy dependence on state and central grants create a low equilibrium trap.
• Poor Implementation of SFCs: Recommendations of State Finance Commissions are often delayed or selectively implemented, restricting fiscal autonomy.
• Capacity Deficit: Inadequate training, technical knowledge and financial literacy among PRI and ULB representatives, especially at Gram Panchayat level.
• Gender & Social Constraints: Women and SC/ST representatives face proxy representation, social barriers and limited decision-making space. According to NFHS5 in rural India, only about 33.9 % of women had ever used the internet
• Weak Gram Sabha Participation: Irregular meetings, low awareness and non-binding resolutions undermine participatory democracy.
• Urban Governance Issues: Delayed municipal elections, dominance of parastatals and SPVs, and marginalisation of elected ULBs.
• Digital Divide: Uneven access to ICT infrastructure and skilled manpower limits the effectiveness of e-governance initiatives. As per the National Sample Survey (NSS) 75th Round and Ministry of Electronics & IT, only about 38% of India’s population is digitally literate

Way Forward

• Activity Mapping & Subsidiarity: Clearly define and assign functions among Gram, Kshetra and Zila Panchayats based on the principle of subsidiarity to avoid overlap and ensure accountability.

• Effective State Finance Commission (SFC) Implementation: Ensure timely constitution of SFCs, adopt their recommendations in letter and spirit, and link devolution with performance and transparency.

• Capacity Building & Continuous Training: Institutionalise regular training programmes for elected representatives and functionaries, with special focus on women, SC/ST members, financial management and e-governance.

• Local Revenue Mobilisation: Strengthen own-source revenue through rationalised property tax, user charges, better tax administration, and incentives for revenue-performing local bodies.

• Digital Governance Expansion: Bridge the digital divide by expanding ICT infrastructure, digital literacy, and user-friendly platforms like e-Panchayat and e-Nagar Seva for service delivery and grievance redressal.

• Revitalising Participatory Institutions: Make Gram Sabha and Ward Committee decisions meaningful and binding in core local matters such as planning, beneficiary selection and social audits.

• Regular & Timely Elections: Ensure strict compliance with constitutional mandates for five-yearly elections, strengthen the autonomy of State Election Commissions, and prevent prolonged bureaucratic rule.

Conclusion

Local Self-Government in Uttar Pradesh is the backbone of grassroots democracy and a vital instrument for inclusive development. Genuine decentralisation through effective transfer of functions, finances, and functionaries can transform PRIs and ULBs into powerful engines of participatory and accountable governance in the state.