16

Role of Political Parties in Urban Local Governments

The role of political parties and their participation in the politics of municipal government has been a subject of much controversy. The question has been whether political parties of national and state character should participate in local politics so as to gain control over the local government machinery. In most countries of the world, particularly, the European, national parties actively associate themselves with local politics. In the UK elections to town councils are usually on party lines. The London county council (now known as Greater London Council), the greatest municipal polity in the world has the best organized party system. ‘I doubt’, says Harbert Morrison, ‘Whether the fine reputation of London county council for uprightness and purity of administration would be maintained if the party system in the council were eliminated.’¹ In USA, party politics has been carried to extreme lengths resulting in the evil of bossism, spoils and partisan patronage.² The active participation of national political parties in local affairs is almost complete in a communist country like erstwhile Soviet Union and China.

In India, it is interesting to note that while much has been said against party politics in Panchayati Raj bodies, few have argued for party-free municipal politics. In can be attributed to the facts that cities and towns have been centres of origin, growth, and articulation of political parties; that the din and hustle of party activity are merely concentrated in towns and cities; that the literacy and political consciousness in cities and towns being relatively high, the national and state political parties have greater accessibility and sizeable following. But more important is the fact that great leaders like Motilal Nehru, Jawaharlal Nehru, Dadabhai Naoroji, Sardar Vallabhbhai Patel, and Subhash Chander Bose had risen to national eminence after their versatile experience in municipal politics. Again in the cities and towns, the local aspirants have only one channel of climbing to state and national politics and that is through active involvement in the national and state political parties’ organizations and activities. Thus, a powerful tradition has come to stay in India for local aspirants to actively participate in national party politics.³

The participation of political parties in municipal administration is now almost a settled affair. Political overtones in almost every aspect of the decision of the municipal government are very clearly visible. Politics dominate municipal elections and other municipal affairs. It is a different matter that because of political exigencies, a political party may not contest municipal elections on party basis. But in reality, it would just be a formal stand—if not outright a political camouflage.⁴ The case for and against or the merits and demerits of participation of political parties in urban local governments may be discussed as follows:

Merits

1. It is felt that properly organized political parties can do a lot of good by clarifying civic issues, enlightening the electorate, evoking public participation, etc. in the municipal field if they function with a sense of discipline, reality, and clarity in their programmes and with an eye on the good of the community.⁵
2. The protagonists of party system in municipal government further assert that the politics at municipal level forms a piece in the total politics of a developing society and it cannot, therefore, be ignored by any political party except at its own peril.
3. Political parties in municipal institutions will prove to be a powerful solvent of all the traditional business of caste, community, and religion which are strongly entrenched in our society.
4. The party system does not permit things to go unchallenged, proposals are scrutinized, discussed, and debated threadbare and vigilance is exercised over administration.
5. Party discipline eliminates personal ambitions as the members are obliged to work for the interest of the groups or parties to which they owe allegiances; nonpartisanship has not worked, does not work, and will not work in any major city.⁶
6. National political parties tend to control local politics for maintaining their local power base and the local elections serve as useful barometers for measuring the popularity or otherwise of national political parties.⁷

Referring to the significance of the role of political parties in municipal politics, Prof. W.A. Robson observes,

I do not share the views of the superior persons who look down from Olympian heights with displeasure and contempt at the activities of political parties. Since the electorate are divided on many urgent questions according to their opinions and interests, it is desirable that these divisions of interest and outlook should be canalised and organised in a coherent and clear-cut way. It is only by means of political parties that this can be done.⁸

Demerits

1. On the other hand, the advocates of municipal government being run on partyless basis, mainly because of the influence of Gandhian and Sarvodaya philosophy, plead that local politics is non-ideological in character and therefore should be free from party politics. In the state and national politics, the issues can be advocated on party and ideological basis but they are of no particular consequence to municipal electorate. We cannot think of either communist or capitalist programme of sanitation or water supply. There cannot be any such thing as Akali pavement or Congress sewer pipe.
2. It is difficult for a given political party to have a common programme for all municipalities in a given state as an election manifesto.
3. In the case of a communal party coming into power, it may neglect the localities belonging to minorities.
4. Since most cities are economically and culturally heterogeneous, there is a multiplicity of parties representing various interests. In such a situation, party systems would plague municipal administration; party rivalries could adversely affect the smooth functioning of municipal administration; ruling party would veto everything that comes from opposition and vice-versa. This would mean the destruction of very assumptions on which civic government as a body rendering primary services is founded.
5. It is further argued that political parties will carry to the local area the evils of corruption, nepotism and favouritism which will poison the democratic fabric at its very roots.
6. The object of local democracy is to provide opportunity of leadership, initiative and responsibility to the local people but the introduction of party politics will deprive the people of such opportunities and concentrate leadership in the hands of political parties.

The overriding consideration for political parties should, therefore, be the broad civic interest and party politics should not be mixed with the civic functions that have to be discharged within the parameters of municipal law.⁹ The Late Shri V.V. Giri, former President of India, had rightly observed,

I firmly believe that there should be no partisan approach to civic matters, the corporators are concerned with the limited objective of improvement of the civic life of the people and in this there is no room for any controversy or conflict of interest. May be the civic elections are fought on party labels but I would urge that once members are elected, they must forget their party labels and work with unity, determination and dedication in solving the municipal problems.’¹⁰

The Late Giani Zail Singh, former President of India was also of the view that elections to local bodies should be on a non-party basis and the state laws should be amended to this effect if necessary. He had observed in his reply to a civic reception accorded by the Vijayawada Municipal Corporation that the objective of the local bodies is to serve the people and strive for their development. It is not necessary for political parties to participate in the elections to these bodies.¹¹

It is obvious from the above discussion that political parties in municipal administration can prove to be beneficial or baneful depending upon such factors as their organization, nature of programmes oriented towards the welfare of the whole community and their constructive approach to the solution of the problems confronted by the concerned local bodies as against their indulging in the pursuit of selfish, sectarian and factional interests and adopting negative, obstructive and destructive attitude in the functioning of municipal polity.

Notwithstanding the criticism and condemnation of the role of political parties in municipal government, it is now an established fact that they do involve themselves overtly or covertly in civic affairs and as such make or mar the smooth functioning of municipal bodies.

Politics in Municipal Governments

The fact that politics operates in municipal government and administration is substantiated by the following observations:

1. Holding of Civic Elections Determined on Political Consideration: Civic elections are not held for years together despite the stipulation that they should be held every three or five years, as the case may be. This very fact reflects that the decision not to hold the elections or postpone them from time to time are based on no other consideration than political, albeit other excuses are put forth by the governments of different political parties occupying the seat of power at different times, like the non-preparation of electoral rolls, nondelimitation or demarcation of electoral wards, non-existence of congenial atmosphere for holding of election as generated by natural calamities like drought, floods and political and communal turmoil and the disturbed conditions due to the activities of the terrorists and so on. The fact, however, is that the political parties in power in the state government have not been sure of capturing power in the municipal bodies at a particular point of time, hence they defer the elections. For example, Akali Dal (L) in Punjab had won a thumping majority in Assembly elections in 1985, but it did not dare to order elections to municipal bodies for the simple reason that it was difficult for it to win in the urban areas where its base was not as strong as it was in the rural areas. On the contrary, in the neighbouring state of Haryana, the Lok Dal and BJP combine, which had been returned with an unprecedented majority in Legislative Assembly, had immediately held elections to the municipal bodies and the alliance had captured power almost everywhere.

    

2. Supersession of Municipal Bodies: Again, the state governments are vested with the power to supersede the municipal bodies. They have exercised this power invariably on political considerations as is reflected in the supersession by a particular party in power in the state, of a municipal body being ruled by the party opposed to it. The supersession of municipal bodies on partisan and political basis has been confirmed by judicial pronouncements also when the acts of supersession have been challenged in courts. Similarly, the extension of the tenure of municipal bodies enjoying the favour of the ruling party in the state is also determined by political consideration.

    

3. Contesting of Elections on Party Basis: As a matter of fact, municipal elections are contested entirely on party basis. Candidates are sponsored by various political parties like the Congress, the Bhartiya Janta Party, Lok Dal, the Akalis, and the Communists and independents are supported by them. They are allotted the symbols of their respective parties. Election campaigns are conducted through the employment of usual media. Local as well as state political leaders address public meetings. In most of the wards, candidates fielded by the respective political parties are returned due to the overwhelming support extended to them by the party wielding predominant position in the wards concerned. But some independents constitute the exceptions who are victorious at the hustings on account of their personal qualities of philanthropy, popularity, and humility.

    

4. Role of Political Parties in Other Decisions: The role of political parties is not limited to election only but is visible in other spheres also. Their participation is conspicuous in elections of the office bearers, president and vice-president of municipal committees, mayor and deputy mayors of municipal corporations, co-option of members, constitution of standing and sub-committees, decision of municipal councils, disciplinary actions against erring employees, grants-in-aid for development and other purposes, and defections. The state governments also act on partisan basis in respect of their decisions and operations affecting the functioning of municipal bodies. The activities of the political parties as also of the state governments in regard to the above mentioned points may be substantiated by the following observations:
   1. Election of Office Bearers: In matter of election of president and vice-president of a municipality, and also in the election of mayors and deputy mayors of municipal corporations, political parties play an active role. President is elected by the council from among its own members but his name must be approved by the state government and duly notified in the government gazette. There have been instances when the approval of elections of president belonging to a party other than the party ruling in the state have been unduly delayed or not notified till the president-elect has joined the party in municipal committee enjoying the favour of the state government. Similarly, political parties have been determining the election of the vice-president as well.
   2. Removal of President and Vice-President : Again president of a municipal committee can be removed by state government on the grounds of abuse of power or habitual failure to perform his duties or in pursuance of a resolution passed by a municipal council by two-third majority. Though the charges levelled against the president are brought mainly on the grounds of personal favours and undue advantages extended to their favourites on the party basis may not play any specific role in the motions, yet voting in these cases is done on party lines. Party politics thus plays a vital role in changing the course of careers of presidents and vice-presidents.
   3. Removal of Councillors: In the case of removal of councillors too party politics is very conspicuous. The state government may remove a member for his acts of omission and commission and the municipal council may accept his removal ungrudgingly if the disqualified person belongs to an opposition party. But it may react differently when its own members are involved and his disqualification may be revoked by the government after a resolution for the removal of his disqualification is duly passed by the council. On the contrary, a municipal council may move the state government to disqualify a particular member for serious faults and also condemn his defaults of a very serious nature, but the government may not disqualify him as he belonged to its own party.
   4. Co-option of Members: Municipal councils are empowered to co-opt members. The political party enjoying majority in the council, co-opts its own persons. Co-option is intended to secure the services of persons eminent in the field of municipal public service and or having expertise in municipal administration, but political parties ignore this criterion and co-opt members on political consideration.
   5. Constitution of Sub-committees: A municipal council constitutes many statutory standing committees and sub-committees under its by-laws such as building, octroi, vehicle, conservancy, finance and work sub-committees etc. by electing people from among its members. These committees are required to examine different matters, thrash them out in detailed discussions and to make recommendations based on a more careful and prolonged examination than could be made in council meetings. These committees are elected by simple majority vote and not on the principle of proportional representation. The majority party elects its own members to these committees or sub-committees, and as a result the minority groups are denied and deprived of their representation on them. Efforts made by the opposition parties to get proportional representation introduced which secures representation to all the parties on the basis of their numerical strength in the council have been unsuccessful. Consequently, the party in power has managed to get its own members elected to these committees, and its members returned as their chairmen.
   6. Decisions on Party Basis: A municipal council takes decisions on various matters presented to it by the executive, sub-committees, and other items forming the agenda of its meetings. The voting pattern of the council would reveal that items decided through voting are those which affect a particular group or party and are therefore decided on partisan basis. Similarly, the municipal council accepts, rejects or modifies the recommendations of sub-committees or those of the executive officer in pursuance of the interest of their parties.
   7. Use of Casting Vote in Parties’ Interests: The presidents of municipal bodies have a casting vote which they exercise to break the tie of equal votes on a particular issue. It has been often observed that the presidents have been using their casting vote to promote the interests of their own party.
   8. Evil of Defections : Defections have also percolated to the municipal level. Defections are indulged in by the members of the council mainly for satisfying their ambition of capturing prestigious offices of president, vice-president, membership of sub-committees, nominations and sponsorship for attending conferences and seminars at state, regional and national levels. Defections are rampant among members of various political parties. This evil practice which does not only cause imbalances in the original strength of political parties and changes in their complexion at various periods of time but is also responsible for the ups and downs in the careers of the office bearers and uncertainties in the smooth functioning of the councils and administrative machinery, leading to the dissolution and supersession of municipal bodies. Some of the councillors change their colours like a chameleon and defect from a party a number of times and join the different parties including their original party, thus losing their credentials and credibility to all the parties. There is hardly any deterrent to the malady of defections. Public opinion matters little, rigid party discipline is not enforced, defectors are not expelled from the party, and they are welcome back at any time. One wonders if anti-defection law should also be made applicable to defections at municipal level to combat this evil.

Conclusion

Analysis of the organization and functioning of municipal governments and administration clearly reveals that elections to the municipal council are contested on party lines, though in some cases independents are also returned on their own personal merits. The candidates are sponsored by the political parties without taking into account their genuine faith in the policies and programmes of the party concerned but with the sole consideration of somehow securing majority in the council. The defections are very frequent and the defectors cross floor for greed of office or profit. The elections of presidents, vice-presidents, standing sub-committees and special sub-committees are manouvered on party-basis. The presidents exercise their casting vote not on the merits of a proposal but to serve their party interests. The recommendations of the sub-committees though made unanimously are turned down by the municipal council or modified as dictated by party interests. The executive officers are obliged to take decisions under political pressure. The actions taken by them against erring officials or the public are undone or altered by the municipal council on party consideration thereby damaging their prestige and causing loss to municipal revenue and impairing the efficiency of administration. The appointments are not made on merit, so much so that even basic qualifications are ignored for certain posts, nor are promotions made according to any principle, certain cases of serious negligence and offences are not proceeded against nor are the penalties imposed on the defaulting officials executed. Favouritism based on political considerations is the determining factor in all these cases. The government also acts in a partisan manner in notifying or withholding the notifications of the president-elect, removing and disqualifying the councillors, postponing elections for indefinite periods, issuing ordinances for co-option of members and associating legislators as members of the council, making appointments and removal of officials subject to their control, accepting or rescinding resolutions of municipal council, sanctioning of grants-in-aid for general and specific purposes and finally superseding the municipal committees and municipal corporations.

All this does not auger well, political intervention in municipal affairs should not be indulged in at the cost of efficiency of administration, sufferings of the public, and denial of democratic right to citizens to elect their municipal council at regular intervals as provided in the statute.

It stands confirmed that political parties definitely play a significant role in municipal administration. The hypocrisy that political parties should remain aloof from local administration has therefore to be given up and the inevitability of their role is unhesitatingly admitted. G.D.H. Cole was precisely for this reason in favour of organized political parties to function on ideological lines. According to him, ‘Issues are continually arising which do divide men and women broadly on the same questions as divide them on national policies. If the issues are to be settled democratically, the party system is an indispensable instrument for the purpose.¹²

What is required of political parties is to take up measures for improving the tone and substance of municipal politics; national/regional political parties should develop comprehensive civic programmes on the basis of enquiries into the needs of urban people, select candidates for municipal elections with adequate care and promote highly successful candidates for higher public offices in order to make municipal offices attractive to persons of ability and integrity. They should exercise overall control over their members in the municipal council, formulate a code of conduct for their guidance and make them continuously conscious of their responsibility to promote civic good and welfare;¹³ they should come to a general agreement in regard to making joint efforts to implement non-controversial civic programmes; they should also arrange for leadership training for the elected representatives so that they can develop into responsible, knowledgeable and responsive councillors.¹⁴

Lastly, the state government should also act with caution. It should decide the municipal issues on their merit and not on party-basis. It is to provide guidance and advice to municipal administration. It is therefore, required to act in an impartial and non-partisan manner. If a municipal administration indulges in some acts of omission or commission, the government should intervene to get these rectified, again unmindful of the fact as to which party is wielding power therein. Only then can the mess created by political intervention, even in the affairs that belong to the domain of statutory functionaries, be cleared and the confidence of public in municipal administration restored.