IGNOU BPAC-110 Solved Question Paper PDF Download

IGNOU BPAC-110 Previous Year Solved Question Paper in Hindi

IGNOU BPAC-110 Previous Year Solved Question Paper in English

Q1. Describe the sources of funds and suggest necessary measures to augment the resources of municipalities.

Ans. The 74th Constitutional Amendment Act established Urban Local Bodies (Municipalities) as a crucial tier of governance. However, to perform their functions effectively, they require adequate financial resources. The sources of funds for municipalities are diverse and can be classified into the following categories:

Sources of Funds for Municipalities:

• Tax Revenue: This is the most significant source of a municipality’s own income. It includes:
  • Property Tax: This is the single largest local tax, levied on land and buildings.
  • Water Tax, Conservancy Tax, and Drainage Tax: Charged for the civic amenities provided.
  • Tax on Advertisements: Levied on hoardings and other forms of advertisements.
  • Professional Tax: In some states, municipalities are empowered to levy a tax on various professions and employments.
  • Entertainment Tax: Levied on cinema halls, exhibitions, and other entertainment activities.
• Non-Tax Revenue: This consists of fees and charges for various services:
  • User Charges: Collected for services like water supply, solid waste management, and sewerage.
  • License Fees: Fees for issuing licenses for various trades and businesses.
  • Building Permission Fees: For new constructions or modifications.
  • Rent and Income: Rent received from municipally-owned properties like shops, markets, and community halls.
  • Fines and Penalties: Imposed for violation of by-laws.
• Grants-in-Aid: These are provided by the state and central governments. They can be general-purpose (untied) or specific-purpose (tied to a particular scheme or project). Devolution of funds is based on the recommendations of the Central and State Finance Commissions.
• Loans: Municipalities can take loans from the state government, financial institutions (like HUDCO), or raise funds from the capital market by issuing municipal bonds.

Necessary Measures to Augment Resources:

To strengthen the financial position of municipalities, the following measures are necessary:

1. Improving Tax Administration: It is crucial to use modern techniques like GIS mapping for property tax assessment, rationalize tax rates, and improve collection efficiency.
2. Exploring New Tax Avenues: The potential for levying new taxes like a vacant land tax and betterment levy (levied on the increase in property value due to infrastructure development) should be explored.
3. Enhancing Non-Tax Revenue: User charges should be linked to the cost of providing the service. Municipalities can also generate revenue by monetizing their land and other assets.
4. Access to Capital Markets: Municipalities with good financial creditworthiness should be encouraged to issue municipal bonds to finance infrastructure projects.
5. Strengthening State Finance Commissions (SFCs): The recommendations of SFCs should be implemented in a timely and complete manner to ensure regular and predictable transfer of funds.
6. Capacity Building: There is a need to train municipal staff in financial management, budgeting, and accounting to better manage the available resources.
7. Public-Private Partnerships (PPP): Partnering with the private sector for revenue generation and service delivery, especially in large projects, can reduce the financial burden.

By implementing these measures, municipalities can enhance their financial autonomy and deliver better services to citizens.

Q2. What are the major areas of policy interventions?

Ans. Rapid urbanisation in India has created numerous challenges related to housing, infrastructure, environment, and livelihoods. To address these challenges, the central and state governments have undertaken various policy interventions to improve urban local governance and development. These interventions focus on several major areas:

1. Urban Planning and Infrastructure Development:

• Smart Cities Mission: This mission aims to make cities more citizen-friendly and sustainable through the application of “smart” solutions. It focuses on area-based development and pan-city initiatives, including better urban mobility, waste management, and IT connectivity.
• AMRUT (Atal Mission for Rejuvenation and Urban Transformation): Its primary goal is to ensure basic urban infrastructure, such as water supply and sewerage connections, in every household. It also focuses on developing parks and green spaces.
• HRIDAY (Heritage City Development and Augmentation Yojana): This scheme aims to bring together urban planning, economic growth, and heritage conservation to preserve the character of heritage cities.

2. Housing:

• Pradhan Mantri Awas Yojana – Urban (PMAY-U): Launched in 2015, this flagship scheme aims to provide affordable housing to the urban poor. It uses various approaches like in-situ slum redevelopment, Credit-Linked Subsidy Scheme (CLSS), Affordable Housing in Partnership (AHP), and Beneficiary-led construction to achieve the goal of “Housing for All”.

3. Sanitation and Solid Waste Management:

• Swachh Bharat Mission – Urban (SBM-U): This nationwide campaign aims to make urban areas open-defecation free and ensure 100% scientific management of municipal solid waste. It has emphasised the construction of community and public toilets, door-to-door waste collection, and waste processing.

4. Urban Transport:

• National Urban Transport Policy (NUTP): This policy focuses on moving people, not vehicles. It promotes public transport, non-motorised transport (like cycling and walking), and the integration of transport systems. Funding for metro rail projects and Bus Rapid Transit Systems (BRTS) is part of this policy.

5. Poverty Alleviation and Livelihoods:

• Deendayal Antyodaya Yojana-National Urban Livelihoods Mission (DAY-NULM): This mission aims to reduce the poverty and vulnerability of the urban poor by providing them with opportunities for self-employment and skilled wage employment. It focuses on skill training, setting up shelters, and support for street vendors.

6. Governance Reform:

• 74th Constitutional Amendment Act (CAA), 1992: This was the most significant policy intervention, which granted constitutional status to Urban Local Governments.
• E-governance Initiatives: Governments are pushing for the use of technology to improve citizen-centric services like online payment of property tax, application for birth/death certificates, and grievance redressal.

These policy interventions represent a comprehensive approach to making urban India more liveable, inclusive, and economically vibrant.

Q3. Discuss the process of municipal elections in India.

Ans. Municipal elections in India are the democratic process through which citizens elect their representatives to Urban Local Bodies (Municipal Corporations, Municipal Councils, and Nagar Panchayats). The entire process is conducted and supervised by the State Election Commission (SEC), an independent constitutional body. The key stages in the process of municipal elections in India are as follows:

1. Constitutional and Legal Framework: Article 243ZA of the Constitution vests the superintendence, direction, and control of the preparation of electoral rolls and the conduct of elections to the municipalities in the State Election Commission. Each state has its own Municipal Act that lays down the detailed rules and regulations for the election process.

2. Delimitation of Wards: The first step in the election process is the division of the municipal area into geographical units called wards . Each ward serves as a constituency from which one councillor or member is elected. Delimitation is typically done based on population to ensure that each ward has a roughly equal number of voters.

3. Reservation of Seats: As per Article 243T of the Constitution, reservation of seats in municipalities is mandatory:

• Seats are reserved for Scheduled Castes (SCs) and Scheduled Tribes (STs) in proportion to their population in the municipal area.
• At least one-third of the total number of seats are reserved for women , including the seats reserved for women belonging to SCs and STs.
• State law may also provide for the reservation of seats for Other Backward Classes (OBCs) .

4. Preparation of Electoral Rolls: The State Election Commission prepares and updates the electoral rolls (voter lists) for each ward. This list ensures that all eligible citizens in the area can cast their vote.

5. Announcement of Election Schedule: The SEC announces the election schedule, which includes the dates for:

• Filing of nomination papers.
• Scrutiny of nominations.
• Last date for withdrawal of candidature.
• Date of polling.
• Date of counting and declaration of results.

The

Model Code of Conduct

comes into effect with the announcement of the schedule.

6. Nomination, Scrutiny, and Withdrawal: Intending candidates file their nomination papers within the stipulated period. These papers are then scrutinised by election officials. Candidates are also given a window to withdraw their candidature.

7. Election Campaign: Candidates on the final list conduct election campaigns to seek votes from the electorate. The campaign ends 48 hours before polling.

8. Polling and Counting: On the scheduled date, voters cast their votes at polling stations. Electronic Voting Machines (EVMs) are now commonly used for polling. After the polling, the votes are counted, and the results are declared.

9. Election of Mayor/Chairperson: The Mayor (in Municipal Corporations) or Chairperson (in Municipal Councils/Panchayats) can be elected either directly by the people or indirectly by the newly elected councillors. This procedure depends on the respective state’s law.

Q4. Write short notes in about 200 words on each of the following : (a) Urbanisation and sustainable development (b) Modes of urban planning

Ans. (a) Urbanisation and sustainable development Urbanisation is the process by which populations shift from rural to urban areas, leading to an increase in the size and density of cities. It is a natural consequence of economic growth and modernization. However, unplanned and rapid urbanisation poses several serious challenges, such as immense pressure on natural resources, housing shortages, traffic congestion, pollution (air, water, noise), and increased waste generation.

Sustainable development means meeting the needs of the present generation without compromising the ability of future generations to meet their own needs. There is a profound link between urbanisation and sustainable development. Sustainable urban development aims to create cities that are not only economically vibrant but also socially inclusive and environmentally sustainable. This requires integrated planning that focuses on:

• Creating compact and mixed-land use cities to reduce sprawl.
• Promoting public transport, walking, and cycling.
• Encouraging green buildings and the use of renewable energy.
• Implementing water conservation, rainwater harvesting, and efficient waste management systems.
• Preserving green areas like parks and open spaces.

The United Nations’

Sustainable Development Goal 11 (SDG 11)

specifically focuses on “making cities and human settlements inclusive, safe, resilient and sustainable,” underlining the importance of this relationship.

(b) Modes of urban planning Urban planning is a technical and political process concerned with the use of land, protection of the environment, public welfare, and the design of the urban environment. Its goal is to make cities liveable, functional, and aesthetically pleasing. Over time, different modes or approaches to urban planning have evolved:

1. Comprehensive/Rational Planning: This is the traditional, top-down approach. It involves creating a long-term (20-30 years) Master Plan or Development Plan for a city. This plan regulates land use, transport networks, infrastructure, and public facilities. It is often criticised for its rigidity and inability to adapt to changing circumstances.
2. Incremental Planning: This is a pragmatic, bottom-up approach that focuses on small, gradual changes rather than a grand plan. It assumes that planners do not have complete information and that planning should be adaptive and flexible.
3. Advocacy Planning: This approach is based on the idea that planning is not neutral. Planners should act as “advocates” for the weaker and disadvantaged sections of society to ensure that the benefits of development reach all.
4. Strategic Planning: This is more flexible than master planning. It focuses on identifying key strategic issues and developing targeted actions to address them. It is typically a short-to-medium-term approach that emphasizes outcomes.
5. Participatory Planning: This approach emphasizes the active involvement of citizens, community groups, and other stakeholders in the planning process. The aim is to ensure that plans are responsive to local needs and have broad public support.

Q5. ‘The Urban Local Government is facing many challenges, which affect its performance’. Comment.

Ans. This statement is accurate. Despite being empowered by the 74th Constitutional Amendment Act, Urban Local Governments (ULGs) in India face several serious challenges that severely hamper their performance and effectiveness. These challenges can be broadly classified into functional, financial, administrative, and political categories.

1. Functional Challenges (The 3 Fs – Functions, Funds, Functionaries):

• Functions: The 12th Schedule of the Constitution lists 18 functions to be devolved to municipalities. However, many states have not fully and clearly devolved these functions to ULGs. Often, crucial functions like water supply, urban planning, and housing are controlled by state-level parastatal agencies (e.g., development authorities, water boards), leading to an overlap of jurisdiction and a lack of accountability.
• Funds: ULGs suffer from a severe financial crunch. They have limited sources of revenue and often fail to efficiently collect their main taxes, like property tax. They are heavily dependent on grants from state governments, which are often inadequate, irregular, and unpredictable. Due to this financial weakness, they are unable to undertake necessary infrastructure projects or provide quality civic services.
• Functionaries: ULGs have a massive shortage of qualified technical and managerial staff. Many posts are vacant or filled by state government officials on deputation, whose loyalty often lies with the state rather than the city. Capacity building and training opportunities for the staff are also limited, which affects their performance.

2. Administrative Challenges:

• The administrative machinery of ULGs is often outdated and inefficient. Lack of transparency, red-tapism, and corruption are widespread. The adoption of modern management techniques, such as e-governance and GIS-based planning, has been slow.

3. Political Challenges:

• State governments exercise significant control over ULGs. They can dissolve elected bodies, postpone elections, and supersede their decisions. This undermines the autonomy of ULGs. Furthermore, Mayors and councillors often have limited executive powers, with real power concentrated in the hands of the state-appointed Municipal Commissioner.

4. Citizen Participation Challenges:

• Despite being mandated by law, platforms for participatory governance like Ward Committees and Area Sabhas are either not established or are weak and ineffective. There is also a lack of awareness and interest among citizens about the functioning of their local bodies, which reduces the demand for accountability.

Due to these multifaceted challenges, Urban Local Governments are struggling to function effectively and meet the needs of a rapidly urbanising India. Genuine political will and comprehensive reforms are urgently needed to address these issues.

Q6. Examine the e-Governance practice in service delivery with special reference to Ahmedabad Municipal Corporation.

Ans. E-governance, or electronic governance, is the use of Information and Communication Technology (ICT) to improve the delivery of government services and governance processes. In the context of urban service delivery, it aims to make services more accessible, efficient, transparent, and accountable for citizens. The Ahmedabad Municipal Corporation (AMC) is one of the pioneering bodies in India that has successfully implemented urban e-governance, and its initiatives serve as a model for others.

General e-Governance Practice in Service Delivery: Urban local bodies use e-governance for a variety of services, including:

• Online Bill Payments: Citizens can pay property tax, water bills, and other charges from the comfort of their homes or offices.
• Certificates and Licenses: Online application and tracking for birth/death certificates, trade licenses, and building plans.
• Grievance Redressal: A centralized online system allows citizens to register and track complaints, improving accountability.
• Information Dissemination: Providing information about schemes, policies, and budgets through websites and mobile apps.

The benefits of e-governance include 24×7 service availability, reduced corruption, faster processes, and increased convenience for citizens.

E-Governance in Ahmedabad Municipal Corporation (AMC): A Case Study AMC has made significant strides in leveraging technology to transform citizen service delivery. Its key e-governance initiatives are:

1. City Civic Centres: AMC established numerous “City Civic Centres” across the city. These centres provide over 60 municipal services to citizens under one roof, such as paying taxes, obtaining certificates, and registering complaints. This has eliminated the need for citizens to visit multiple departments.
2. Website and Mobile App: AMC has a comprehensive website and a user-friendly mobile app (AMC Seva Setu). Citizens can use these platforms to pay property tax, professional tax, and vehicle tax, book community halls, and apply for various services online.
3. GIS-based Property Tax System: AMC has used the Geographical Information System (GIS) to map all its properties. This has brought accuracy to property tax assessment, increased the number of properties under the tax net, and led to a significant increase in revenue collection.
4. Online Grievance Redressal System: Citizens can register their complaints online and receive a unique tracking number. The system ensures that the complaint is forwarded to the concerned official and is resolved within a fixed time-frame.
5. e-Procurement: AMC uses an online portal for all its procurement and tendering processes, bringing transparency and reducing the scope for collusion.

Conclusion: The experience of the Ahmedabad Municipal Corporation shows that e-governance can revolutionize service delivery. The strategic use of technology has made AMC more efficient, transparent, and citizen-friendly. It has not only increased revenue but also enhanced citizen trust and satisfaction. AMC’s model offers a valuable lesson for other Indian cities looking to improve their governance practices.

Q7. Explain the major recommendations of the Second Administrative Reforms Commission to strengthen the local bodies.

Ans. The Second Administrative Reforms Commission (2nd ARC) was constituted in 2005 to conduct a comprehensive review of India’s public administration system. In its 6th Report, titled “Local Governance: An Inspiring Journey into the Future,” the Commission made several far-reaching recommendations to strengthen local bodies (both urban and rural). The major recommendations concerning Urban Local Bodies are as follows:

1. Clear Demarcation of Functions: The Commission recommended that a ‘Local Government List’ should be introduced in the Constitution, similar to the Union List and State List. This list should clearly enumerate the subjects that would fall under the exclusive jurisdiction of local governments, leaving no ambiguity about functions.

2. Activity Mapping: States must undertake a detailed ‘Activity Mapping’ exercise to assign specific activities and responsibilities within each function to the different tiers of government (state, district, local). This would ensure clarity on who is responsible for doing what.

3. Financial Empowerment:

• Separate Tax Domain: Urban Local Bodies (ULBs) should have their own distinct tax domains which cannot be encroached upon by the state government.
• Share in Revenue: A fixed percentage of the state’s gross tax revenue (e.g., a portion of the state’s GST) should be devolved to local bodies.
• State Finance Commissions (SFCs): SFCs should be strengthened, and their recommendations should be made binding on state governments. Grants should be released in a timely manner.
• Access to Capital Markets: ULBs should be encouraged to raise funds from the capital market through instruments like municipal bonds for infrastructure projects.

4. Strengthening the Planning Process:

• District Planning Committees (DPCs) and Metropolitan Planning Committees (MPCs) must be institutionalised and made effective.
• The Commission recommended that the Mayor should be the Chairperson of the Metropolitan Planning Committee (MPC) to ensure a significant role for political leadership in urban planning.

5. Empowering the Mayor: A key recommendation was that the Mayor should be the real executive head of the city . The Mayor should be directly elected by the people for a fixed term of 5 years . The Municipal Commissioner should function as the Chief Executive Officer under the Mayor, accountable to the Mayor.

6. Citizen Participation: The Commission suggested a model law for creating platforms for community participation below the ward level, called ‘Area Sabhas’ , to ensure grassroots citizen involvement in governance.

7. Capacity Building: A dedicated ‘Municipal Cadre’ should be created for local bodies, and there should be a focus on systematic training and skill development for the staff.

These recommendations, if implemented in full, could fundamentally transform urban local governance in India, making them more autonomous, accountable, and effective.

Q8. Write short notes in about 200 words on each of the following : (a) Achievements under PMAY(U) (b) Municipal Solid Waste Management

Ans. (a) Achievements under PMAY(U) The Pradhan Mantri Awas Yojana – Urban (PMAY-U) is a flagship mission launched by the Government of India in June 2015. Its primary objective is to ensure “Housing for All” in urban areas by 2022 (now extended). The scheme targets the Economically Weaker Sections (EWS), Low-Income Groups (LIG), and Middle-Income Groups (MIG).

The mission is implemented through four verticals:

1. ‘In-situ’ Slum Redevelopment (ISSR): Redeveloping slums on the same land with private participation.
2. Credit Linked Subsidy Scheme (CLSS): Providing interest subsidy on home loans for eligible families to purchase or construct a house.
3. Affordable Housing in Partnership (AHP): Promoting affordable housing projects in partnership with public and private sectors.
4. Beneficiary-led individual house construction (BLC): Providing financial assistance to eligible families to build new houses or enhance existing ones.

Achievements:

PMAY-U has achieved significant success. As per the latest government data, over 1.2 crore houses have been sanctioned under the scheme, with a large number already completed and handed over to beneficiaries. Millions of beneficiaries under CLSS have availed interest subvention, making homeownership easier for them. The scheme has also contributed to women’s empowerment, as preference is given to registering the houses in the name of the female member of the family or in joint names. Additionally, it has created large-scale employment in the construction sector and boosted allied industries.

(b) Municipal Solid Waste Management Municipal Solid Waste Management (MSWM) is one of the most critical and challenging functions of Urban Local Bodies. Rapid urbanisation and changing lifestyles have led to a massive increase in the volume of waste generated in cities. If not managed properly, this waste poses serious health and environmental problems, such as the spread of diseases, contamination of groundwater, and air pollution.

In India, MSWM is governed by the Solid Waste Management Rules, 2016 . These rules provide a comprehensive framework that emphasizes the following principles:

• Segregation of waste at source: It is mandatory to segregate waste into wet (biodegradable), dry (non-biodegradable), and domestic hazardous waste at the source of generation.
• ‘Polluter Pays’ Principle: Making waste generators responsible for bearing the cost of its management.
• Resource Recovery: Instead of just dumping waste in landfills, the rules emphasize processing techniques like composting, bio-methanation, recycling, and waste-to-energy.
• Remediation of old dumpsites: Scientifically improving and closing existing dumpsites.

The

Swachh Bharat Mission-Urban (SBM-U)

has given a major impetus to improving MSWM practices. However, municipalities still face challenges like lack of segregation at source, inadequate processing infrastructure, financial constraints, and lack of citizen awareness. Effective MSWM is crucial for a sustainable urban future.