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.

1. CHALLENGES AND PROSPECTS
A CASE OF BOPAL- GHUMA NAGARPALIKA
INSTITUTIONAL CHANGES IN PERI-URBAN AREAS
By: Riddhi Vakharia (PP0008714) Guided By: Anurima Mukherjee BasuCEPT University

2. INTRODUCTION Institutional Changes in Peri-Urban Areas CHALLENGES AND PROSPECTS
Acaseof Bopal-GhumaNagarpalika
S.P.
Rin
g
Ro
d
TRANSPORT
LINK
Construction of S. P.
Ring road and S. G.
Highway
ECONOMIC
LINK
Proximity to
Business District
of Shivranjini
Prahladnagar
LOCATION
Proximity to
fast growing
Ahmedabad
and
Sanand
RAPID
DEVELOPMENT
Development of real
estate and affordable
accommodation
options
INSTITUTIONAL
CHANGE
Bopal-Ghuma merged
to form a new
Nagarpalika in 2015
CHAOTIC
GROWTH
Growth in
absence of
building
byelaws and
urban
jurisdiction
BOPAL-GHUMA
STUDYOF INSTITUTIONAL
CHANGE IN THE PERI-URBAN
FUNCTIONS FINANCES
CHALLNGES
PROSPECTS
Functionaries and capacity of institution is
not in the scope of study

3. NEEDFORSTUDY
PERI-URBAN BOPAL-GHUMA CURRENT SCENARIO
Peri-urbanization a
common phenomenon
in third world countries.
Issues need to be
addressed for peri-
urban areas.
Cohesive growth of peri-
urban area along with
the urban core.
Lack of published
literature
Unpublished literature
include study of rural to
urban transformation,
evolution and growth
dynamics, development
of urban fringes, land
conversion and study of
growth patterns.
Inadequate study on the
governance systems in
the area under
transition.
Bopal and Ghuma came
under the jurisdiction of
Ahmedabad Urban
Development Authority in
2008 and 2011 respectively.
Although AUDA is
responsible for providing
infrastructure. Still lack of
basic infrastructure and
poor quality of service
delivery is observed.
Risk of chaotic and
unorganized development in
Ghuma.

4. RESEARCHQUESTIONS
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?

5. AIMANDOBJECTIVE To study the changes in governance institutions in Bopal-Ghuma area, the
challenges faced and future prospects.
To understand governance system 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.
AIMOBJECTIVES

6.  Spatial mapping of
institutional responsibilities
 Visual survey
METHODOLOGY
2
4
5
Literature Review
Field Visits
Data collection
Analysis
 Governance systems in peri-urban
areas
 Case studies on Bopal-Ghuma
 Key person interview
 Snowball sampling
 Collection of Documents from
Bopal-Ghuma Nagarpalika office
 Further reading of Acts
 Institutional matrix of
service delivery.
 Budget document Analysis
3
Observation
1
Other
officials
Office
Superintendent
Meeting
Clerks
File visits was an
iterative process

7. SCOPEANDLIMITATION  The entire focus is to study the institutional changes happening in Bopal-
Ghuma after their merger to form a new Nagarpalika.
 The study focuses emerging challenges from this transition and future
prospects.
 Administrative aspects of functionaries and capacity are not in purview of this
research.
 There was major dependency on government records, and personal
interviews/discussions with officials.

8. GOVERNANMCESYSTEM
74th CAA GUJARAT Municipalities Act, 1963
Formation of Town Councils for areas
under transition
ULB responsible for urban development,
planning and mobilizing required
financial resources.
Establishment of Ward committees to
include civil societies in decision making
process and making it more
participatory and democratic.
Every transitional area shall have a
Nagar panchayat.
State responsible to provide staff to
fulfill functions under clause 1 of article
243K.
State declares an area as Nagar
panchayat (transitioning area) by
Official Gazette.

9. STATE’SRECOGNITION
Criteria of Gujarat state
for declaring an area as urban
 Population of the area
 The density of the population
 Revenue generated for local
administration
 Economic importance of the area
Classification Population Total
Municipalities
As per
census
Municipal
Corporations
Above 2.5 lacs 8 8
Class More than 1 Lakh 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
Classification of municipalities

10. ISSUESPERI-URBANAREAS
1 FINANCIAL ISSUES
PH YSICAL ISSUES
 Lack of physical infrastructure
 Piece meal non contiguous development
 Lack of amenities
3
ORGANIZ ATIONAL ISSUES
 Multiplicity of authorities
 Lack of co-ordination
 Incapable to handle complex issues
2 More investment compared to returns
 Lack of financial resources with the gram
panchayat
4
ENVIRONMENTAL ISSUES
 Depletion of environment and
disruptions in ecosystems
 Selection as landfill and dumping sites
FINANCIAL ISSUES

11. GOVERNANCEISSUES
Multiplicity of
03AUTHORITIES
Lack of
01CAPACITY
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.
Lack of
02TECHNICAL EXPERTISE
Nagar Palika lack technical expertise that would enable
them to provide better services and infrastructure
Shortage of
04FUNDS
The gram panchayat can not reap in the
benefits from rural development funds.
The administrative overlap due to
several government departments,,
urban local bodies and village
Panchayats
Low and Inefficient
05REVENUE 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.

12. CONTEXT
Bopal-Ghuma
9km
WESTERNPERIPHERY
F R O M
C E N T E R
C I T Y
PROXIMITY
P R A H L A D N A G A R
BUSINESS DISTRICT
SHIVRANJINI
SANAND

13. DEMOGRAPHICS
NOS.
53057
POPULATION
11.4AREA
SQ.KM
D A S K R O I TA L U K A
Ga
mta
l
Ga
mta
l
Ghuma
Bopal
S.P. Ring
Road
Sou
th
Bop
al
Population 1961 1971 1981 1991 2001 2011
BOPAL 1556 1826 2313 4898 12181 37635
CAGR 1.61 2.39 7.79 9.53 11.94
GHUMA 2373 2965 3239 3691 4371 15422
CAGR 2.25 0.88 1.31 1.70 13.43
Bopal-Ghuma Nagarpalika is a class B
municipality. CAGR of Bopal increases 3 times
from 91-2001 decade and in Ghuma it picks up
dramatically after 2001 and has tripled in 2011

14. DEMOGRAPHICS
NOS.
53057
POPULATION
11.4AREA
SQ.KM
D A S K R O I TA L U K A
Ga
mta
l
Ga
mta
l
Ghuma
Bopal
S.P. Ring
Road
Sou
th
Bop
al
Population 1961 1971 1981 1991 2001 2011
BOPAL 1556 1826 2313 4898 12181 37635
CAGR 1.61 2.39 7.79 9.53 11.94
GHUMA 2373 2965 3239 3691 4371 15422
CAGR 2.25 0.88 1.31 1.70 13.43
Bopal-Ghuma Nagarpalika is a class B
municipality. CAGR of Bopal increases 3 times
from 91-2001 decade and in Ghuma it picks up
dramatically after 2001 and has tripled in 2011
Development plans by AUDA

15. GROWTH
1 97 1
1 981
1991
20 0 1
20 1 1
1 961
0.00
5.00
10.00
15.00
20.00
25.00
30.00
35.00
CAGR
YEARS
CAGR Ghuma
Bopal
Ahmedabad
Gujarat
1981 1991 2001 2011
3929
4791
5552
8589
16543
53057
CAGR of Bopal changes in 91-2001 decade and in Ghuma
it picks up dramatically after 2001

16. GROWTH
20 0 0
Sparse
growth
Kilometers
North

17. GROWTH
PV
20 0 6
Construction
of S.P. Ring
Road
P
20 0 6
Construction
of S.P. Ring
Road
Kilometers
North

18. GROWTH
20 1 0
Growth of
Business district
of Prahladnagar
Kilometers
North

19. GROWTH 2 0 1 6
Majority of Bopal and
a part of Ghuma have
been developed till
date
Kilometers
North

20. FUNCTIONS
74th CAA GUJARAT Municipalities Act, 1963
 Urban forestry
 Urban poverty alleviation
 Slum improvement and up-gradation
 Safeguarding the interests of weaker
sections of society
 Sphere of town planning
 In the sphere of development
 In the sphere of education
 In the sphere of public health and
sanitation
 In the sphere of administration
Comparison of functions as stated by 74th CAA and Gujarat Municipalities act 1963. These functions are stated for the municipality

21. Under T.P
schemes Gamtal
Services B-G N AUDA DDO B-G N AUDA DDO
Roads
Water ( for other
uses)
Drinking water
Drainage
Street lights
Health facilities
Solid Waste
Public Amenities
Education facilities
FUNCTIONALMATRIX
Planning and
laying
Operation and
maintenance
Collection
of revenue
Street
lights
AUDA
UGVCL&BGN
BGN
Sharing of responsibilities in service delivery.
Co-ordination n providing street lights

22. Gamtal
Gamtal
Bopal
S.P. Ring
Road
Towards Shela
Towards Sanand
Ghuma
SPATIALMAPPING
AUDA
B-G Nagarpalika
Roads
Gamtal
Legend
No- services
Towards Ambli
Entire Bopal and a half of Ghuma
have been serviced by BGN and
AUDA collectively. Map prepared
after discussion with Nagarpalika
officials and physical survey

23. INCOME
0.00
100.00
200.00
300.00
400.00
500.00
600.00
700.00
800.00
Budget trends
Income (in Lakhs) Expenditure (in Lakhs) Surplus
0 8 - 0 9 0 9 - 1 0 1 0 - 1 1 1 1 - 1 2 1 2 - 1 3 1 3 - 1 4
Constantly increasing
surplus over the years.
Total Budget 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 Income (in Lakhs) 109.31 171.59 292.63 423.46 719.40 741.21
Percentage increase 56.97 70.55 44.71 69.89 3.03
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 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
Budget trends of past
six financial years of
Bopal and Ghuma
Gram panchayat

24. SOURCESOFINCOME
0
50
100
150
200
250
300
350
Amountinlakhs
Financial years
Sources of incomes
Tax Revenue Non tax sources" income from grants Building Tax
1 0 - 1 10 8 - 0 9 0 9 - 1 0 1 1 - 1 2 1 2 - 1 3 1 3 - 1 4
Yield and Income 08-09 09-10 10-11 11-12 12-13 13-14
Income from own sources (in percentage)
Total tax revenue 55.59 44.66 45.49 45.42 37.10 37.63
%increase in tax income 26.47 75.01 44.39 48.63 -4.07
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
%increase in grants 142.09 53.05 46.14 148.71 -16.87
Increasing building tax
with increase in tax
income
Budget of Bopal and
Ghuma Gram
panchayat

25. 0 8 - 0 9 0 9 - 1 0 1 0 - 1 1 1 1 - 1 2 1 2 - 1 3 1 3 - 1 4
INCOMEFROMTAXES
54.23 61.93 58.24 58.55 55.60 53.58
0.00
20.00
40.00
60.00
80.00
100.00
120.00
Incomeinpercentage
Financial years
Income from taxes
Building tax Light tax Cleaning tax Security charge Business tax general watertax special water tax
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 taxes 63.31 80.07 140.13 202.34 300.74 288.49
Building tax has
maximum share
Budget of Bopal and Ghuma Gram panchayat

26. 0.00
100.00
200.00
300.00
400.00
500.00
600.00
700.00
Expenditureinlakhs
Finanacial year
EXPENDITURE
Development Total Expenditure (in Lakhs)
EXENDITURE
0 8 - 0 9 0 9 - 1 0 1 0 - 1 1 1 1 - 1 2 1 2 - 1 3 1 3 - 1 4
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 Expenditure 83.82 134.49 217.22 315.86 634.05 647.64
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
% development 94.16 91.29 90.52 90.59 93.79 94.69
Increasing development
expenditure with
increase in total
expenditure
Budget of Bopal and Ghuma Gram panchayat

27. 63.06
39.38 44.37 43.91
31.34 31.78
16.72
41.36 35.02 35.60
58.08 56.88
0.00
20.00
40.00
60.00
80.00
100.00
120.00
Developmentexpenditureinpercentage
Financial years
Development expenditure
Totall Health and Improvement Total Collective development plans Total Society welfare Total Public construction
DEVELOPMENTEXPENDITURE
0 8 - 0 9 0 9 - 1 0 1 0 - 1 1 1 1 - 1 2 1 2 - 1 3 1 3 - 1 4
Development Expenditure (in Lakhs) 08-09 09-10 10-11 11-12 12-13 13-14
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 co-operation 0.73 0.56 0.42 0.43 0.08 0.12
Total industries 0.01 0.02 0.02 0.02 0.00 0.00
Total Collective development plans 63.06 39.38 44.37 43.91 31.34 31.78
Total Society welfare 5.85 6.29 7.78 7.64 5.89 4.13
Total Public construction 16.72 41.36 35.02 35.60 58.08 56.88
Total miscellaneous 0.66 0.82 0.95 0.94 0.82 1.41
Maximum share of development
plans and public construction
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
Budget of Bopal and Ghuma Gram panchayat

28. COMPARISION
GANDHINAGAR
2
Male
52
Female
48
HIMMATNAGAR
4
Male
52
Female
48
Male
53
5
SANANAD Male
53
Female
46
BOPAL-
GHUMA
6
Male
52
Female
48
2011
CENSUS
3
KALOL
Female
47
AHMEDABAD
1
A R E A
SQ
M
Female
47
Male
53
464.1
POPULATION
55.78
POPULATION
2 . 0 6
A R E A
SQ
M17.23
POPULATION
1.7 3
A R E A
SQ
M8.82
POPULATION
8.11
AREA
SQ
M40.42
POPULATION
0.42
SQ
M11.47
0.53

29. COMPARISION
GANDHINAGAR
2
Tax
87
Grants
7Non-Tax
6AHMEDABAD
1
Grants
29
Non-tax
48
Tax
23
HIMMATNAGAR
4
Tax
26
Non-tax
30
Grants
44
3
KALOL
Grants
31
Tax
66
Non-tax
3
5
SANANAD Tax
49
Non-tax
20
Grants
31
BOPAL-
GHUMA
6
Tax
45
Non-tax
31
Grants
23
2011
BUDGET
Source: Statistics of Municipal towns and cities Gujarat 2012-2013 by directorate of Economics and Statistics, Government of Gujarat.
Development
exp.
Development
exp.
Development
exp.
Development
exp.
exp.
Development
Development
exp.

30. S.P.
Ring
Road
CHALLENGES
Bopal-Ghuma Nagarpalika should take
up active role to reduce dependency
over state level institutions.
PLANNING
CHANGE
Mindset and readiness to change to an Urban
governing institutions would fasten
development.
INFORMATION
GAPLack of information slows down the
development process
AUTHORITIES
M ULTIP L ICIT Y OF
Efficiency in service delivery can be achieved by well-organized
and single authority’s involvement giving a cohesive plan
INNOVATIVE
REVENUE
GENERATION
Methods for innovative revenue
generation has to be sought to reduce
dependency over grants.
S O C I A L
ENVIRONMENTAL
growth and development should be
accompanied by strengthening the
weaker section of the society and
environmental conservation.
EXPERTISE
Efficiency in service delivery can be
achieved with suitable technical
expertise.
TECHNICAL

31. PROSPECTS
FUNCTIONS FINANCES GROWTH FUTURE
 More grants to
come in from state.
and ruling party
 Promising increase
in surplus
 Increasing no. of
properties
 Availability of
ample of land
for development
 Can be
independent over
the years with
technical support
and capacity
building
 Functions
performed are
near to those
performed by
smaller
municipalities.

32. WAYFORWARD
Why?
What Next?
How ?Bridging information Gap
Capacity building
Need to be independent
Look at social, economical
and environmental need.
Proximity to Ahmedabad
Political will
Ghuma
Bopal
Bopal-
Ghuma Nagarpalika
 Not all the issues found
in literature review
holds true for Bopal-
Ghuma.
 It has been managed
quite well in terms of
service delivery and
revenue generation.
 Co-ordination between
institutions but BGN do
not have active role in
planning process.
Peri-Urban
areas
 Most critical areas
require maximum
importance
 Recognition a the state
level is delayed due to
multiple factors
 Urbanization beyond the
administrative
boundaries.

33. “Our policies have been either for rural or
urban areas. We lack an approach to such
trishanku (middle world) areas.”
--------Shri. Jairam Ramesh
Former Union minister of rural development

34. Thank you