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Introduction
The report focuses on the issues related to effective state and district administration in India. It addresses the gap between "Government" and "Governance" and highlights the need for changes to improve governance outcomes and public service delivery.
Effective State Administration:
Encouraging and promoting appropriate changes in State Administration to achieve desired outcomes.
Identifying necessary changes in State Administration to improve governance objectives.
Effective District Administration:
Progressive modernization and transformation of district administration to better regulate, facilitate, and deliver services at the grassroots level.
Implementing systemic changes to enhance vibrancy and responsiveness in district administration.
Establishing a comprehensive and accessible public grievance handling and redress mechanism.
Promoting greater devolution and delegation of functions and resources to the local levels.
Assessing the coordinating and leadership role of the District Officer in developmental activities and promoting people's participation in the process.
The report emphasizes the importance of state and district administration as the frontline of public administration in the country. It addresses the challenges faced by the bureaucracy, complexities of administration, and the need for commitment and responsiveness in governance.
The recommendations aim to bridge the gap between the government and the citizens by improving service delivery and enhancing public participation in decision-making processes at the grassroots level.
State Administration
Constitutional Provisions, Union and State laws, as well as policies and programs, have a significant impact on the daily lives of people, but their effectiveness depends on honest and efficient implementation.
The Constitution of India confers a special role to State Governments for preserving public order and ensuring citizen welfare, guided by the Directive Principles of State Policy.
The Commission emphasizes the need for reforms in State and District Administration, with certain actions requiring cooperation with the Union Government and others initiated by State Governments themselves.
Recommendations by 2nd ARC
Size of the Council of Ministers:
Reduce the size of the Council of Ministers in States for more efficient governance.
The maximum size should be set within a range of 10% to 15% of the Legislative Assembly's strength, based on the State's size.
Rationalizing the Number of Secretariat Departments:
Merge existing departments that cover related subjects and functions.
Focus on achieving synergy between various departments.
Devolve a substantial number of functions to Panchayati Raj Institutions (PRIs).
Redefine Secretaries' roles, reducing non-essential responsibilities, and delegate more power to executive departments/agencies.
Streamline the decision-making process.
Separate Focus on Policy Making and Implementation:
Sound institutional arrangements should be in place to translate policy objectives into effective actions.
Policy proposals should consider future implications and estimate costs of various policy options.
Ensure horizontal coordination across different departments and introduce policy evaluation systems.
Executive Agencies:
Restructure implementation bodies for greater operational autonomy and flexibility.
Executive Agencies should be responsible and accountable for their actions.
These agencies could be structured as departments, boards, commissions, companies, or societies.
Internal Restructuring of the State Secretariat:
Reforms should focus on internal reorganization, process re-engineering, and simplification of government processes.
The Manual of Office Procedures should be recast for better efficiency, responsiveness, and citizen-friendliness.
State Civil Services Law:
Enact a comprehensive Civil Services Law covering all personnel holding civil posts in the State.
The law should incorporate civil service values and a code of ethics, emphasizing integrity, impartiality, public service dedication, and accountability.
Appointment and Security of Tenure at Senior Levels in the State Government:
Introduce methods to ensure impartial and merit-based appointments for top-level assignments.
Enhance the security of tenure for administrative positions to promote stability and credibility of the administration.
State Public Service Commission:
Refine the role of the State Public Service Commission.
The Commission should handle recruitment for higher-level posts (Class I and II) and advise on senior-level promotions and recruitment for teaching positions in government institutions.
Lay down broad norms and standards for junior-level appointments, with the State PSC focusing on policy-making in this regard.
The Commission's recommendations aim to streamline State Administration, optimize resources, and improve governance for better economic and social development.
District Administration
Historical Background
Until the 1960s, the role of the District Collector in India was well-defined, encompassing responsibilities such as land reforms, revenue collection, law and order, food and civil supplies, welfare, and relief/rehabilitation.
However, as rural development programs gained momentum, the Collector's role expanded to include supervision of various projects and schemes initiated by different government departments. The Collector's responsibilities became extensive and diverse, covering multiple domains.
Post-1993, with the introduction of the Panchayati Raj system, many development functions were transferred from the Collector's domain to the newly formed local self-government institutions.
While the State Governments still used the Collector's office for oversight and control over Panchayati Raj Institutions (PRIs), the Collector's role underwent transformation.
Despite the transfer of some functions, the Collector retained significant tasks related to improving human capabilities, creating physical infrastructure, addressing marginalized sections' economic opportunities, and disaster management.
Components of District Administration
The current administrative structure at the district and sub-district levels in India consists of three main components:
Administration of regulatory functions led by the Collector and District Magistrate, including law and order, land revenue/reforms, excise, registration, treasury, civil supplies, and social welfare. This domain also oversees primary government departments like agriculture, animal husbandry, primary and school education.
District/sub-district level offices of State Government line departments and agencies, such as PWD, irrigation, health, and industries, which are more accountable to State headquarters than the District Collector.
Local bodies, including Panchayati Raj Institutions (PRIs) and Municipal bodies, which have become the third tier of government post-73rd and 74th amendments to the Constitution, handling local area development.
The Institution of District Collector
The District Collector has historically been the head of the government at the district level, overseeing a wide array of functions. These functions include revenue administration, law and order, licensing and regulatory authority for various special laws, disaster management, elections, food and civil supplies, welfare, and more.
The Collector also plays a crucial role in coordinating activities of various agencies and departments at the district level.
Recommendations for Improvement
To enhance the effectiveness of the District Administration in India, the following recommendations are put forward:
Land and Revenue Administration: Utilize modern technology for surveys and measurements to rectify outdated maps and maintain up-to-date land records. Strengthen the dispute resolution mechanism for land titles.
Realign Functions of the District Collector: Focus the Collector's core functions on land and revenue administration, law and order, disaster management, public distribution, excise, elections, transport, census, protocol, treasury management, and coordination with various agencies.
Strengthen Compliance Machinery: Establish a special RTI Cell in the Collector's office to enforce provisions of the RTI Act and reduce delays and subjectivity in lower-level government functioning.
Appointment of District Magistrates: Post IAS officers as District Magistrates in complex and problem-prone districts only after completing 10-12 years of service.
IT and E-Governance: Implement modern IT tools, E-Governance, and Management Information Systems to facilitate monitoring and evaluation of programs/projects and enhance citizen engagement and feedback.
Networking and Data Management: Create a reliable central district database for better data collection and information sharing among departments.
Civil Society and Media Cell: Establish a cell to interact with civil society groups and media, promoting transparency and public engagement.
Empowerment of Local Governance: Implement integrated governing structures at the district level in the form of "District Councils" with representation from both urban and rural areas. The District Collector should serve as the Chief Officer of the District Council, accountable to both the District Government and the State Government.
By implementing these recommendations, the District Administration in India can become more efficient, responsive, and better equipped to address the needs and challenges of the local population.
Administration of the Union Territories
At the time of Independence, India was composed of nine Governors' provinces (Madras, Bombay, West Bengal, United Provinces, Bihar, East Punjab, Central Provinces, Assam, and Orissa) and five Chief Commissioners' provinces (Delhi, Ajmer-Merwara, Panth Piploda, Coorg, and Andaman & Nicobar Islands).
However, after the Partition, India faced a significant challenge of consolidation, as about two-fifths of British India's territory consisted of 562 princely states and principalities, ranging from small areas to large regions like Hyderabad with a population of 17 million. Nevertheless, in a short period, these princely states and principalities integrated with the Indian Union.
The administration of Union Territories is governed by provisions in Part VIII of the Constitution (Articles 239 to 241).
Article 239(1) states that the President shall administer every Union territory through an appointed administrator.
Article 239-AA empowers Parliament to create a legislature and Council of Ministers for Puducherry and the National Capital Territory of Delhi, except for specific matters.
Article 239-AB deals with the President's powers in case of Constitutional machinery failure in the National Capital Territory, similar to Article 356 for states.
Article 240 grants the President the authority to make regulations for certain Union territories like Andaman and Nicobar Islands, Lakshadweep, Dadra and Nagar Haveli, Daman and Diu, and Puducherry.
The administration of Delhi and Chandigarh falls under largely urban Union Territories.
Andaman & Nicobar Islands and Lakshadweep are considered Island Territories.
Puducherry, Daman & Diu, and Dadra & Nagar Haveli are considered Territories in the Mainland.
Each Union Territory has distinct characteristics and governance issues discussed separately in the report.
The National Capital Territory of Delhi
Delhi has been historically a seat of power for various empires and became the seat of the Union Government after Independence.
The Delhi Metropolitan Council was established in 1966 as a deliberative body with recommendatory powers, headed by a Lt. Governor appointed by the President under Article 239.
In 1991, the Constitution was amended to provide for a Legislative Assembly for Delhi, and the "Government of National Capital Territory of Delhi Act, 1991" supplemented the provisions related to the Assembly and Council of Ministers.
The Legislative Assembly has 70 members elected by direct election, with 13 seats reserved for Scheduled Caste candidates, and the Council of Ministers cannot exceed 10% of the Assembly's total members.
The Municipal Corporation of Delhi (MCD) is the largest municipal authority within Delhi, with 97% of the population residing in its jurisdiction.
The NDMC was created in 1994 and covers important areas like Rashtrapati Bhawan, Prime Minister's Office, foreign embassies, and government offices.
The Delhi Government does not have control over Police and Law and Order, which is administered by the Ministry of Home Affairs through the Lt. Governor. However, they are often held responsible for any lapses in security.
The report recommends that the Union Government retain control over broader security and law and order aspects, while traffic, local policing, and enforcement of special laws could be handed over to the Delhi Government, and in the long run, some functions could be transferred to the Municipal Corporation.
A Task Force with representatives from both the Union and Delhi Government is suggested to study the restructuring of Delhi Police and propose appropriate measures.
CHANDIGARH
Chandigarh was originally built as the capital of Punjab and became a Union Territory and joint capital of Punjab and Haryana after the creation of Haryana in 1966.
It serves as the seat of two governments and the UT Administration, with a composite High Court for Punjab, Haryana, and Chandigarh.
The UT has a single district and tehsil, covering a total area of 114 square kilometers, with 80 km as urban area served by a Municipal Corporation and 34 km as rural area served by a three-tier Panchayati Raj system.
The Capital of Punjab (Development and Regulation) Act 1952 governs urban governance in Chandigarh and combines State Government and municipal processes in its agencies.
Though the Act was meant to be a temporary measure until local self-governance institutions were established, it continues to be in force, leading to administrative confusion between the UT Administration and the Municipal Corporation.
The UT Administration and the Municipal Corporation provide civic services to different segments of the population based on rural and urban areas.
The administrative setup involves the Union Government appointing an Administrator under Article 239 of the Constitution, who has been the Governor of Punjab since 1984.
There is a need to revisit and align the existing Acts with changed circumstances and examine delegation of administrative and financial powers.
The Advisory Council to the Administrator should be replaced by a more compact and cohesive body, including representatives from Chandigarh, Punjab, Haryana, the Mayor, and the Advisor to the Administrator.
PUDUCHERRY
The Union Territory of Puducherry is composed of four non-contiguous areas: Puducherry, Karaikal, Mahe, and Yanam, located in different parts of South India.
Puducherry was merged with the Indian Union on 1st November 1954, and the formal transfer took place on 16th August 1962 through a treaty between India and France.
The administration of Puducherry is governed by the Government of Union Territories Act, 1963, under the provisions of Article 239 and Article 239A of the Constitution.
Puducherry has an elected Legislative Assembly with 30 members and a Council of Ministers, but the administrative and financial matters are directly supervised by the Union Government through the Lt. Governor (Administrator).
The Legislative Assembly has the power to legislate on subjects listed in the State and Concurrent lists of Schedule 7 of the Constitution.
The report recommends enhancing financial and administrative delegation of powers to the Government of Puducherry, allowing the Council of Ministers to function effectively within that framework.
The Commission's 6th Report on "Local Governance" contains recommendations to strengthen and empower the Panchayati Raj Institutions (PRIs) in Puducherry, which should be implemented on priority.
The Puducherry Administration should be given the authority to raise public debt to finance its development projects and plans.
ANDAMAN AND NICOBAR
The Andaman and Nicobar Islands consist of 572 islands, islets, and rocks in the Bay of Bengal, with a total area of 8249 sq. km and a population of 3,56,152 people in 2001.
The territory has three districts: North and Middle Andamans, South Andamans, and Nicobar. The population includes people from mainland India and indigenous tribes like the Great Andamanese, Onge, Jarawa, Sentinalese, Nicobarese, and Shompens.
The administration of Andaman & Nicobar Islands has undergone various changes over the years, with different advisory bodies and councils in place since it became a Union Territory in 1956.
Key administrative and development issues in the region include the need for restructuring existing institutions, security concerns, carrying capacity of the islands, issues of connectivity, endangered tribes, human resource development, and administrative and financial delegation.
The report recommends constituting an Advisory Council to the Administrator, comprising representatives from different ministries, local Member of Parliament, Chief Secretary, Chairpersons of Zila Parishad and Municipal Council, and others, to advise on important administrative matters.
The UT administration should be given enhanced financial powers through delegation, which should be revised every five years, ensuring full administrative and functional autonomy within such delegated powers.
LAKSHADWEEP
Lakshadweep is a group of 37 islands with a total land area of 32 sq. km. and includes ten inhabited and 17 uninhabited islands, four newly formed islets, and five submerged reefs. Its total population is 60,650, with a literacy rate of 86.7% and an urban component of 44.47%.
Formed as a Union Territory in 1956 and named Lakshadweep in 1973, it was brought under the direct control of the Ministry of Home Affairs to integrate the islands into the mainstream of development.
The administration is carried out by the Union Government through an Administrator appointed for this purpose. Lakshadweep is the smallest Union Territory in India, and its area is divided into four tehsils and five community development blocks.
Panchayati Raj Institutions were established in 1997 with a two-tier system comprising 10 Village (Dweep) Panchayats and one District Panchayat, with a total of 79 Village Dweep Panchayat Wards and 22 District Panchayat Wards.
The report recommends the constitution of an Advisory Council to the Administrator, including the local Member of Parliament, Chairman of Zila Parishad, and representatives from various ministries, to advise on important administrative matters.
Additionally, a multi-disciplinary task force under the Chairmanship of the Deputy Chairman, Planning Commission, is recommended to be set up for the Lakshadweep Islands.
Daman and Diu and Dadra & Nagar Haveli
Daman & Diu is the second smallest Union Territory, located on the Western Coast, with Daman near Surat and Diu close to Junagadh in Gujarat. It became a separate UT in 1987 after being part of Goa.
Daman & Diu has an area of 112 sq. km. and a population of 1,58,204 with a literacy rate of 78.20%.
Dadra & Nagar Haveli is another UT with two separate enclaves, Dadra surrounded by Gujarat and Nagar Haveli on the borders of Maharashtra and Gujarat.
It has a population of 2,20,490 with a literacy rate of 57.6% and consists of various ethnic groups engaged mainly in agriculture, producing rice, pulses, and fruits.
Dadra & Nagar Haveli was under Portuguese rule between 1783 and 1785 and became a UT in 1961, with Silvassa as its capital.
Daman & Diu's Panchayats were governed under the Goa, Daman, and Diu Village Panchayat Regulation, 1962, but after the 73rd Constitutional Amendment, it has a two-tier Panchayat system.
Dadra & Nagar Haveli's Panchayats came into existence in 1965 under the Dadra and Nagar Haveli Panchayat Regulation.
The report points out the issue of inadequate staff at the operational levels, leading to difficulties in implementing government projects and programs.
The recommendations of the Commission's Report on 'Local Governance' should be implemented on priority in both Daman & Diu and Dadra & Nagar Haveli.
The Union Government should review the personnel requirement at different levels in both UTs, ensuring adequate staffing at the operational levels, and examining the top-heavy administration resulting from numerous senior-level posts in Daman & Diu.
Governance Issues in the North-Eastern States
INTRODUCTION
Geographic and Climatic Diversity:
Rich mosaic of customs, practices, terrain, climate, ethnicity, institutions, languages, and cultural norms.
Divided into discrete plains and hilly regions with varying agroclimatic zones.
Characterized by heavy precipitation, rich biodiversity, and high seismicity.
Difficult and expensive communication due to rugged terrain.
Social Composition:
Home to over 140 major tribes out of 573 in India, with diverse ethnic origin and cultural diversity.
Scheduled Tribes (ST) population is significant, especially in the North-Eastern Region (NER).
Local Governance System:
Traditional and modern governance systems coexist.
Age-old but unrecognized local bodies functioning alongside PRIs and Autonomous Councils.
Land Tenure System:
Two broad types: revenue administration in plains and valleys, customary land tenure system in hilly areas.
Land held by most people, with marginal and small farmers dominating.
Demographic Profile:
Total population is 3.79% of India's total, with varying population densities across states.
Higher sex ratio and potential workforce percentage compared to the national average.
Literacy rate marginally higher than the national average, with female literacy higher in all states except Arunachal Pradesh.
ISSUES AND RECOMMENDATIONS
Natural Resources and Constraints:
High hydroelectric power potential, especially in Arunachal Pradesh.
Forests facing degradation and deforestation due to increasing population and development needs.
Frequent floods and landslides posing challenges for the region.
Primary Sector Development:
Uneven agricultural growth across the region, contributing only 1.5% of India's food grain production.
Vision Document 2020:
Identified critical areas for focus, including poverty alleviation, infrastructure strengthening, and trade and commerce development.
Ethnic Conflicts and Insurgency:
Insurgency and underdevelopment intertwined, requiring proper strategic and security policies.
Need for political dialogue, capacity building of police forces, and diplomatic efforts to control cross-border movement.
Sixth Schedule and Autonomous Councils:
Autonomous District Councils exist in Assam, Tripura, Meghalaya, and Mizoram.
Need to focus on democratic aspects of village self-governance and link to State Finance Commission and State Election Commission.
Governors' Special Powers:
Empowering Governors to exercise discretionary powers in consultation with the Council of Ministers and District Councils.
Issues of Tribal Areas Outside Sixth Schedule:
Create district-level bodies with both elected and traditionally selected representatives.
Incentivize States showing initiative in this matter.
Personnel Management and Capacity Building:
Programs for coaching students for competitive exams.
District cadres for Groups 'C' and 'D' posts in transferred functions.
Jointly defining norms for technical and professional posts in tribal areas.
India's North Eastern Region represents a diverse and culturally rich landscape with various challenges related to governance, development, and ethnic conflicts. To overcome these issues, a comprehensive approach that includes cooperation between local and national authorities, capacity building, and strategic planning is essential.
STATE-SPECIFIC ISSUES
It appears that you provided the same section of the report multiple times. However, I'll summarize the specific issues mentioned for each state in the Northeast region:
Assam:
Large population and area.
Anomalous population growth due to migrations and other factors.
Complex administration with multiple Autonomous Councils, leading to conflicts and challenges in governance.
Presence of religious and linguistic minorities, contributing to additional complexities.
Recommendations:
Provide parity in legislative and executive powers to all three Sixth Schedule Autonomous Councils in Assam.
Allocate adequate resources to the Autonomous Councils for effective functioning.
Improve the system of fund release to the Councils for hassle-free operations.
Arunachal Pradesh:
Multi-ethnic and multi-lingual state with over 30 tribes.
Insurgency in some districts due to neighboring conflicts.
Land ownership issues and need for transition to a formal judicial system.
Recommendations:
Strengthen and empower Hill District Councils.
Take steps to restore peace in the affected areas.
Address land ownership issues in consultation with stakeholders and banking institutions.
Manipur:
Disparity in population distribution between the valleys and hills.
Ongoing conflicts and violence in different regions, including insurgency.
Demand for the merger of certain areas into Greater Nagaland, affecting state integrity.
Recommendations:
Revive and activate Hill District Councils, devolving developmental activities to them.
Establish elected Village Councils in rural areas for better governance.
Implement recommendations for strengthening and empowering Panchayati Raj Institutions (PRIs).
Meghalaya:
Originally part of Assam, Meghalaya now has autonomous District Councils.
Need for comprehensive activity mapping for efficient planning and budgeting. Recommendations:
Accept the existence of Autonomous District Councils and support them with transparent allocation of funds.
Implement similar actions for Centrally Sponsored Schemes in these areas.
Capacity building in Autonomous Councils and empowering village-level representative bodies.
Mizoram:
Originally a district in Assam, known as Lushai Hills, and included in the Sixth Schedule.
Experienced severe famines in the past.
Recommendations:
No specific recommendations were mentioned in the provided text for Mizoram.
Sikkim:
Originally a princely state and a protectorate under the Indian government.
Popular uprising led to a measure of democracy and subsequent formal merger as a state of the Indian Union.
Article 371F in the Constitution provides special provisions for Sikkim's integration into the Indian Union.
The state has made strong progress on all fronts since its merger.
Recommendations:
Implement recommendations for strengthening and empowering Panchayati Raj Institutions (PRIs).
Rationalize the cadre strength of various All India Services in the state based on actual requirements.
Tripura:
A princely state that merged with the Indian Union.
High population density and adverse land-man ratio due to changes in the ethnic profile caused by influx from neighboring regions.
Geographical factors, including international borders with Bangladesh and proximity to Assam and Mizoram.
Progress in areas like primary health care and poverty reduction, but with indications of more pronounced growth outside tribal areas.
Recommendations:
Form constituent District Planning Committees (DPCs) with representation from both the Tripura Tribal Areas Autonomous District Council (TTADC) and the District Administration.
Ensure only one intermediate structure between the village and district bodies of the TTADC.
Establish a mechanism to coordinate block-level committees chaired by MLAs and zones and sub-zones headed by elected representatives of TTADC.
Conduct a comprehensive activity mapping exercise to delineate functions among various levels operating within the system, such as the District Council, Block committee, and Village Council.
Managing State Finances
A sound and effective financial management system is crucial for good public administration, especially in a federal system where states have the authority to collect revenue and spend on public programs. The management of state finances directly impacts the overall economic development of the nation, as states, on average, receive a significant portion of the combined revenue receipts of the Union and States.
The core principles that should form the foundation of a sound Public Finance Management System include:
Adopting prudent economic assumptions: Basing financial planning on realistic economic projections to ensure fiscal sustainability.
Aligning annual budgets with the medium-term plan: Coordinating short-term budgetary decisions with long-term development goals.
Relaxing central input controls: Allowing states greater flexibility in decision-making and resource allocation.
Adoption of top-down budgeting principles: Formulating budgets based on high-level priorities and objectives.
Focusing on value for money: Ensuring efficient use of resources and maximizing the benefits of public spending.
Introducing transparency and simplicity in various procedures: Enhancing accountability and ease of understanding financial processes.
In the sustainable financial administration of state governments, the following issues are of importance:
Financial Delegation and Operational Flexibility - the IFA system: Introducing or strengthening the Integrated Financial Adviser (IFA) system to enhance financial management in the state administration.
Avoiding Fiscal Profligacy: Ensuring careful consideration and proper processes before including projects and schemes in the budget, avoiding ad-hoc decisions.
Expenditure Management: Improving expenditure profiles by finalizing project reports in advance and providing financial sanctions promptly.
Prudent Budget Formulation: Making realistic estimates and assumptions, ensuring accurate financial disclosure, and involving public consultation in budget formulation.
Revenue Forecast and Need for a Tax Research Unit: Setting up a dedicated cell within the Finance Department to provide revenue forecasts and related reasoning.
Mechanism for Internal Control: Establishing internal audit committees in each department to enhance internal oversight.
External Audit: Specifying time frames for departments to act on audit recommendations and ensuring adherence to prescribed time limits.
By implementing these core principles and addressing the identified issues, state governments can ensure prudent and effective financial management, contributing to the overall progress of the country's polity and economy.
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