Cantonment Boards

Cantonment Boards are local self-governing bodies established in military areas of India to administer and provide civic amenities to both civilian and military populations residing within their jurisdictions. They form a unique category of municipal governance, functioning under the administrative control of the Ministry of Defence (MoD), Government of India. While their primary purpose is to cater to the needs of defence personnel, they also manage civil areas located within cantonment limits, balancing military requirements with public welfare responsibilities.

Historical Background

The origin of cantonments in India dates back to the British colonial period. The first cantonment was established in Barrackpore (near Kolkata) in 1765, following the consolidation of British power after the Battle of Buxar. These cantonments were initially created as secure military bases for the British Indian Army, often located strategically near cities but administratively separate from civilian jurisdictions.
Over time, as civilians—particularly traders, service providers, and families of soldiers—began to settle around these areas, the need for formal civic administration emerged. This led to the creation of Cantonment Committees, which later evolved into Cantonment Boards under the Cantonments Act of 1924.
After India’s independence, the 1924 Act continued to govern cantonment areas until it was replaced by the Cantonments Act, 2006, which modernised the legal framework to align with principles of democratic decentralisation and urban management.

Legal Framework and Administration

Cantonment Boards are established and governed under the Cantonments Act, 2006. The Act provides for the creation, classification, composition, powers, and functions of these boards. The Directorate General Defence Estates (DGDE), under the Ministry of Defence, exercises supervisory control over all Cantonment Boards across India.
Cantonments are categorised into four classes based on civil population size:

• Class I: Population above 50,000
• Class II: Population between 10,000 and 50,000
• Class III: Population between 2,500 and 10,000
• Class IV: Population below 2,500

There are currently 62 notified Cantonment Boards in India, spread across various states and union territories, including major military centres such as Delhi, Pune, Lucknow, Ambala, Meerut, and Secunderabad.

Composition of Cantonment Boards

Each Cantonment Board consists of both elected and nominated members, representing a blend of civilian and military interests.
The typical composition includes:

• President of the Board: The Station Commander (a senior defence officer) serves as the ex officio President.
• Chief Executive Officer (CEO): An officer of the Indian Defence Estates Service (IDES), appointed by the central government, responsible for executive administration and financial management.
• Elected Members: Civilians residing in the cantonment area, elected by registered voters for a term of five years.
• Nominated Members: Military officers and officials nominated by the Station Commander.
• Representative Members: One member nominated by the district magistrate and one by the MoD.

This mixed composition ensures that both the defence establishment and the local civilian population have a voice in the governance process.

Powers and Functions

Cantonment Boards perform functions similar to municipal corporations or municipal councils in urban areas, but with certain additional responsibilities linked to defence and security. Their functions can be broadly divided into obligatory and discretionary categories.
Obligatory Functions:

• Provision and maintenance of public health, sanitation, and water supply.
• Regulation of building construction and land use.
• Street lighting, drainage, and solid waste management.
• Maintenance of public roads, gardens, and markets.
• Management of primary education and public health facilities.
• Control of infectious diseases and vaccination programmes.

Discretionary Functions:

• Promotion of public welfare and cultural activities.
• Development of housing and recreation facilities.
• Establishment of libraries, community halls, and vocational training centres.
• Encouragement of environmental protection and heritage conservation.

In addition to these, Cantonment Boards also perform specific duties associated with defence land management, ensuring that military and civilian areas coexist without compromising security.

Sources of Revenue

The financial structure of Cantonment Boards is designed to ensure self-sufficiency while receiving limited central support. Their main sources of income include:

• Property Tax: Levied on residential and commercial properties within the cantonment limits.
• Service Charges: Paid by government departments, including the defence establishment, in lieu of property tax for properties under central control.
• Licence Fees and Rents: Collected from shops, stalls, markets, and other leased properties.
• Grants-in-Aid: Provided by the central government, particularly for education, health, and sanitation services.
• Water and Conservancy Charges: Fees collected for utilities and waste disposal services.
• Fines and Penalties: Collected for violations of building or sanitation regulations.

Despite these revenue sources, many boards face financial constraints due to delays in grants, limited tax bases, and disputes over service charge payments between the Ministry of Defence and other government departments.

Role in Urban Governance

Cantonment Boards are significant institutions of urban local governance because they manage areas where civilian populations live in proximity to military establishments. They serve as a bridge between civil and defence administration, balancing public needs with strategic priorities.
Their governance model differs from that of municipal corporations, as they are not under state governments but directly under the central government. This ensures uniform standards of administration across India but also restricts local autonomy to some extent.
The boards contribute to:

• Urban Planning: Regulating land use and construction in coordination with defence authorities.
• Public Health and Sanitation: Maintaining high hygiene standards around sensitive military installations.
• Education: Running schools for the children of both civilian residents and defence personnel.
• Environmental Management: Preserving green cover and controlling pollution in cantonment zones.

Challenges and Issues

Despite their importance, Cantonment Boards face several challenges:

• Civil-Military Tensions: Conflicts sometimes arise between civilian residents and military authorities over property rights, entry restrictions, and access to roads or amenities.
• Financial Constraints: Limited revenue and delayed payments from government departments affect development work.
• Legal and Administrative Overlap: The dual authority of the Ministry of Defence and local military commands can lead to bureaucratic delays.
• Outdated Infrastructure: Many cantonments struggle with ageing drainage, water supply, and sanitation systems that require modernisation.
• Representation and Democracy: Civilian members often have limited influence compared to nominated military officers, raising questions about democratic accountability.

The government has been considering reforms in the governance of cantonments, including potential separation of civilian and military areas, to allow municipal bodies greater control over civilian zones while retaining strategic areas under the military.

Recent Developments

In recent years, the Ministry of Defence has initiated steps to rationalise and modernise cantonment governance. Proposals have been discussed to merge civilian areas of cantonments with adjacent municipal corporations to streamline civic services and reduce administrative overlaps. The military zones would then remain under exclusive defence control.
Such reforms aim to ensure better service delivery to civilians without compromising military security. However, these proposals have sparked debate over property rights, taxation, and civic representation.

Significance

Cantonment Boards embody a hybrid model of governance, where military discipline meets civic administration. They ensure that civilian life within defence zones remains orderly, hygienic, and well-serviced, while maintaining security and operational integrity for the armed forces.
Their existence highlights India’s commitment to harmonising defence imperatives with democratic local governance, providing an administrative mechanism that accommodates both national security and public welfare.