PRS LEGISLATIVE RESEARCH STATE LEGISLATIVE BRIEF: KARNATAKA The Greater Bengaluru Governance Bill, 2024
Authors: Prachee Mishra (prachee@prsindia.org), Shrusti Singh (shrusti@prsindia.org) Date: April 25, 2025
Overview
The Greater Bengaluru Governance Bill, 2024 was introduced in the Karnataka Legislative Assembly on July 23, 2024. It replaces the existing Bruhat Bengaluru Mahanagara Palike (BBMP) Act, 2020. The Bill was referred to a Joint Select Committee, and the version recommended by the Committee was passed on March 10, 2025. However, the Governor has since returned the Bill to the legislature for reconsideration.
Key Features Summary
- Greater Bengaluru Authority (GBA): An apex body chaired by the Chief Minister will be established, assisted by an Executive Committee.
- Structure: The region will be divided into multiple city corporations (up to seven), with their functions coordinated by the GBA.
- Wards: Each corporation may have up to 150 wards.
Key Issues and Analysis Summary
- The Chief Minister chairing the GBA and the Metropolitan Planning Committee may violate principles of the 74th Amendment.
- The Bill grants executive and administrative powers to legislators at the local level.
- There is an overlap between the powers of city corporations and existing statutory authorities.
PART A: HIGHLIGHTS OF THE BILL
Context
The BBMP was established in 2008 under the Karnataka Municipal Corporation (KMC) Act, 1976, which initially utilized a three-tier system of governance. In 2020, the BBMP Act replaced these provisions, adding a fourth tier of zonal committees. The 2024 Bill seeks to restructure this into a three-tier framework consisting of the GBA, city corporations, and ward committees.
Administrative Structure
The proposed structure moves away from a single corporation to multiple city corporations under the GBA.
- Greater Bengaluru Authority (GBA): Chaired by the Chief Minister, with the Chief Commissioner as member secretary.
- City Corporations (up to 7): Each led by an elected Mayor and an appointed Commissioner.
- Ward Committees: Led by an elected Councillor.
The Bill for reconsideration removes the zonal committees and area sabhas found in previous versions.
Greater Bengaluru Authority (GBA)
The GBA is the apex body responsible for coordinating and supervising city corporations and overall regional development. Its voting members include the Minister of Bengaluru Development, state ministers from the area, all local MPs and MLAs, Mayors, the Commissioner of Police, and various agency heads. It serves as the Planning Authority, creating master plans and executing projects that span multiple corporations. An Executive Committee, chaired by the Minister of Bengaluru Development, handles day-to-day functions.
Metropolitan Planning Committee (MPC)
The state will constitute the Bengaluru MPC to develop a draft development plan for the Greater Bengaluru Area. Like the GBA, it will be chaired by the Chief Minister.
City Corporations
Up to seven corporations can be formed. Eligibility for a corporation area includes a population over 10 lakh, density exceeding 5,000 inhabitants per sq km, and local revenue over Rs 300 crore. Members include elected councillors, local MPs and MLAs, and nominated experts (without voting rights). Corporations have a five-year term, though the state may dissolve them under specific circumstances.
Authorities and Wards
- Mayor/Deputy Mayor: Elected for 30-month terms; they preside over meetings and have inspection powers.
- Commissioner: Appointed for two years as the Chief Executive Officer.
- Wards: Each corporation can have up to 150 wards. Ward committees, chaired by a councillor, are responsible for development schemes, tax collection, and maintenance of civic services like waste and water.
- Zones: The government will notify zones within corporations, each with an appointed Joint Commissioner responsible for administration and coordinating with ward committees.
Finance and Taxation
Corporations can levy property taxes, advertisement fees, and various cesses. Property tax rates are determined by the government in consultation with the GBA. If a corporation cannot meet its mandatory functions, the state provides grants. Fiscal tools include a three-year medium-term fiscal plan, a Comprehensive Debt Limitation Policy, and a Sinking Fund for loan repayments.
Other Functions
Corporations manage public streets, building bye-laws, public health, disaster management, and urban heritage conservation.
PART B: KEY ISSUES AND ANALYSIS
Devolution of Powers and the 74th Amendment
The Constitution (74th Amendment) Act, 1992, emphasizes establishing urban local bodies (ULBs) as institutions of self-government. Critics argue the Bill centralizes power instead of devolving it.
- Chief Minister’s Role: By heading both the apex municipal body and the MPC, the Chief Minister gives the state government a direct role in municipal governance, potentially undermining decentralization.
- Public Authorities: The Bill does not alter the independent status of authorities like the Bangalore Development Authority, which may create overlaps and weaken the accountability of elected city corporations.
- Dissolution Power: The state’s power to dissolve a directly elected city corporation if it fails to follow directions is viewed as a significant centralizing measure.
- Required Approvals: Corporations must seek GBA or government approval for basic actions like selling property or entering contracts, which may defeat the purpose of local empowerment.
Fiscal Autonomy and Participation
Unlike other states where municipal corporations set property tax rates, this Bill gives that power to the state government and GBA, potentially constraining fiscal autonomy. Furthermore, the removal of "Area Sabhas" (which included all registered voters) may limit community participation compared to the 2020 Act.
Legislators and Executives
The Bill involves MLAs in administrative roles via constituency-level coordination committees, raising questions about the separation of powers. Additionally, executive power remains vested in appointed Commissioners rather than the elected Mayor, a practice criticized by various reform commissions as diluting democratic legitimacy.
Election Offenses
The Bill imposes significantly higher fines for election-linked offenses compared to national or other municipal laws. For example, canvassing near a polling station carries a maximum fine of one lakh rupees under the Bill, compared to Rs 250 in other major cities.
Comparison of the GBG Bill (Introduced vs. Passed)
| Provision | Bill Introduced (July 2024) | Bill Passed (March 2025) |
|---|---|---|
| Number of Corporations | Up to 10 | Up to 7 |
| Metropolitan Planning Committee | No MPC provided | Provision for GBA as Planning Authority and Bengaluru MPC |
| Financial Oversight | GBA to review fiscal plans and allocate funds | GBA's role in fiscal plan review and fund allocation removed; focuses on tax consultation |
| Area Sabhas | Included for local participation | Removed |
| Security Force | Greater Bengaluru Security Force provided | Provision removed |
Conclusion: Zones and Joint Commissioner
The Bill establishes a three-tier system but also requires the government to notify zones with appointed Joint Commissioners. It remains unclear how these zones will integrated into the broader structure of GBA, city corporations, and ward committees.
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