A lot of mess in our governance is self made. It comes
from our collective disdain to discipline, penchant for thriving
chaos and a terribly high tolerance to incompetence. But let us
also recognize that some of the attitudes that govern these are a by-product
of the political uncertainty itself – where basic survival reigns supreme.
Where tomorrow remains uncertain, and rules seldom apply.
Arjimand Hussain Talib
Kashmir’s ongoing governance-conflict debate is akin to the classical
chicken and egg story.
So what lies at the root of our messy situation? A governance deficit? The
basic unresolved political question? None, or both?
We have the ruling National Conference (NC) on the one hand which hates
the term ‘bad governance’ every time it is mentioned. NC’s point is that it
is not the bad governance but the basic political question of Kashmir that
is at the heart of our problems. Many others, on the other hand, feel the
contrary.
An objective analysis of this matter makes one thing amply clear: truth lies
somewhere in the middle. Our messy situation is as a result of both – the
lingering political turmoil which goes beyond governance, and abysmal
governance in itself.
And let us accept this reality with grace, without feeling annoyed. Facts are
facts.
Let there be no qualms about this: governance is a basic function of the
political environment in a political system. And if there is a problem
in the very political system, it will correspondingly impact the quality
of governance. A political system where democratic principles are not
supreme, to expect governance to be just, accountable and transparent
would be foolhardy.
If there are factors and forces that undermine democratic functioning
through extra democratic means then the system will automatically
malfunction. Power will flow from myriad directions, and, eventually, flow
in myriad directions too. That has been one of the basic problems with
Kashmir.
But this is not the whole story.
A lot of mess in our governance is self made as well. It comes
from our collective disdain to discipline, penchant for thriving
chaos and a terribly high tolerance to incompetence. But let us
also recognize that some of the attitudes that govern these are a by-product
of the political uncertainty itself – where basic survival reigns supreme.
Where tomorrow remains uncertain, and rules seldom apply.
Let us accept the fact that the reason we are not able to complete a single
development project in time these days is that our governance has touched
an abysmal low.
A few days back I had an interesting discussion with an official of the
Economic Reconstruction Agency (ERA) and a contractor, responsible for
executing the Rs 41.64 crore Rawalpora-Tengpora drainage project.
While talking about the delay in the execution of the project with the two
gentlemen, the contractor put all the blame on our ‘work culture.’ He is
partly true. We cannot single out a single person or institution for all our
troubles.
I think the Asian Development Bank (ADB)-funded projects in our state –
implemented by ERA - offer a classic case study for us to understand our
governance issues.
One of the premises of the loan was that it was meant for ‘post conflict
reconstruction.’ And when we say ‘post conflict’ it automatically goes to
assume that there is a semblance of stability in the environment where it is
supposed to be implemented. But that is where we have erred.
In my personal experience in developing active conflict and post-conflict
category reconstruction and development project proposals in several
countries, not factoring in risk factors in the project design itself proves a
serious mistake.
Now let us see where we stand. The actual implementation on ADB
projects began in May 2005. Although 31 Dec 2009 was supposed to be its
completion time, the deadline is already extended to 30 June 2011.
It is almost certain that it will not be able to finish the projects by that
deadline. As per latest figures made available by ADB, by 30 November
2010, only 65 per cent of the financial disbursements have actually been
made. That means we are supposed to spend the rest 45 per cent in the next
six months.
The point is that while conceptualizing a project of such a mammoth
magnitude, it is critical to identify the sources of risks and contingency
plans to overcome those. We cannot pretend all is well with us and then err
frequently. A logical framework matrix must list all foreseeable disruptions
and identify the systems and the means to overcome these.
Political disturbances are normally cited as main impediments in our
project implementation. It is true that a deterioration of security climate
results in the flight of non local workers from our projects. But why can’t we
factor in this risk factor in our log frame and have contingency plans built
in our projects?
If work culture is the problem, there are varied instruments to overcome
that. One could, for example, have across-the-board performance appraisal
systems and contract conditions – covering consultants, contractors,
laborers, engineers, etc. - which minimize the risks and provide for
replacements. And conflict and political uncertainty have nothing to do
with those. Such instruments are made use of even in the worse conflict
situations than ours.
The recent evaluation report by the ADB, prepared by its urban economist
Hiroyuki Ikemoto and Project Implementation Officer (PIO) Saugata
Dasgupta, clearly point to such deficiencies.
But then some plain accountability and commitment issues also crop up.
The reason we have a single ECG machine serving an entire emergency
department at the state’s ‘premier’ medical institute – SKIMS – cannot
have anything to do with political uncertainty. Can a political uncertainty
prevent such an institute to have a couple of reserve ECG machines? Can
political uncertainty inhibit us from deploying 2-3 mobile ECG machines
in the emergency observation ward of SKIMS, from where even the
most critical patients have to be ‘transported’ to the ECG room to do a
cardiograph?
Let us take another example. On Fridays most of the emergency unit
personnel take long breaks to attend Muslim prayers in our hospitals.
Does our political uncertainty hinder us from having a system wherein non
Muslim personnel could be put on duty at that time?
The reason I mentioned these two examples is that I have seen precious
lives being lost just for these two small issues.
Then let us take our collective disdain for traffic rules and disrespect for
traffic cops.
Most of us tend not to obey traffic rules because we don’t see those who
make and are supposed to uphold laws following these. We don’t respect
the traffic cop because he asks us for a lift back home every evening.
Political uncertainty doesn’t inhibit our traffic department in deploying
a few pick-and-drop cabs for these poor cops, even as the officers have
cavalcades at their own disposal.
In a nutshell, let us all accept some blame and confess that we can do better
in spite of our limitations. We owe our children a better future.
Tuesday, December 28, 2010
Sunday, December 19, 2010
Panchayati Raj in J&K
Rejecting or delaying the elections is both unwise and unjust
Arjimand Hussain Talib
Compulsive cynicism is always bad. And compulsive aversion to everything is even worse. As the talk of Panchayat elections gains momentum in the state, there is a flurry of political activity. At this point of time this activity looks largely negative.
At one end of the ideological spectrum is the Geelani-led Hurriyat that sees any such electoral exercise a political blasphemy. At the other end are parties like National Conference (NC), PDP and Congress, whose some leaders seem to be in a double mind.
Across this political divide, it seems not many want these elections to happen now. Some just don’t want Panchayati Raj Institutions (PRIs) to come up in J&K at all.
When it comes to Mr. Geelani, his analysis of the Panchayati Raj doesn’t seem to be well informed. Those in NC, PDP and Congress who are averse to PRIs have their own reasons to do so.
Whatever the reasons, any opposition to or delay in holding Panchayat elections are not going to do any good to the well being of the common masses in this state. This compulsive opposition will only fuel our political and governance chaos. It will fuel our great suffering.
Mr. Geelani would do well to understand the end result of this exercise. To say that Panchayati Raj and its elections are going to dilute the basic political question of J&K would be naïve. No electoral exercise of the past 63 years has diluted Kashmiri people’s resolve to ensure their political justice. No electoral exercise has questioned its disputed status in a legal sense.
To understand the insecurities of some of the members of NC, Congress and PDP is important too.
When PRIs start functioning, the enormous powers that our centralized political and administrative systems enjoy today will go to the people. Power will devolve from the Civil Secretariat, from Deputy Commissioners’ offices and MLAs to the people at the village level.
In this process, people at the village level will have a say in planning and spending money for their development purposes. They will be in a position to question and self evaluate.
Our state’s governance – particularly that of Kashmir region – is in a mess. One of the reasons for that, apart from the political ones – is that our administrative institutions suffer from an acute supply-demand mismatch. There is malfunctioning of higher-level governance structures because the lower level structures are under-used. The reason these are under-used is that lack of accountability and ownership renders service delivery ineffective.
Take, for example, Kashmir’s advanced medical care institutions like SKIMS. The reason it gets patients who could even be treated at Primary Health Centres or District Hospitals is that these institutions do not work properly due to accountability reasons. Same is the case with areas like education, welfare, etc.
At the core of the indecision among some of the leaders of NC, PDP and Congress lies perhaps the issue of the 73rd Amendment to the Indian constitution that gave good powers to Panchayats.
A ‘coordination meeting’ between the ruling coalition partners - NC and Congress – on Thursday took the prospects of Panchayat elections two steps backward. Apart from postponing the proposed elections by at least two months, the partners also took the decision of jointly studying the utility of the 73rd Amendment to our state. And there lies the problem.
It is now more than clear that the kind of Panchayati Raj J&K has today by virtue of the Panchayati Raj Act 1989 is more or less cosmetic. This act does not actually empower Panchayats to take decisions that really matter. In this case, the Block and DC offices continue to play the ‘king’s role.’
Looking at the merits of the 73rd Amendment, J&K must adopt most of its provisions to make devolution of powers really possible here. It should also bring primary healthcare in its ambit.
There is another positive spin off of Panchayats in our case. Currently people at the grassroots level have no legal safeguard to report, question and reverse human rights violations at the hands of various security agencies. There is a good possibility that functional Panchayats would engage with the higher structures of police, paramilitary and army powers for safeguarding people’s human rights. Such an empowerment of people at the grassroots level would be a great thing to happen.
Now that the coalition partners have set to ‘study’ the 73rd amendment, it is important that they do another side task. Despite the application of this Amendment many states continue to deny financial and administrative powers to Panchayats as enshrined under the same. We must not follow that model.
Another important learning relates to the role of the Block and District-level tiers under the Panchayti Raj system. According to the Approach Paper to the Tenth Five Year Plan, excessive controls through Block and District-level tiers on the village-level institutions have been found counter-productive. It has already proposed abolishing these two tiers.
There has been another critical learning. It has been generally observed that a lack of manpower and capacity to do works planned by Panchayats limits their capacity to deliver positive results. J&K’s PRIs must have a mechanism that allows for full time or part-time staff to support their functioning, including documentation. There also must be a good provision for capacity building.
On the issue of reservation, J&K needs to be little more cautious. It must take care not to create a reservation system that ends up creating greater polarization rather than binding communities together.
New Delhi also needs to understand that without meaningful decentralization, governance will continue to remain in a mess in Kashmir. And when governance remains in a mess the prospects of finding an amicable solution to Kashmir’s political question would remain dim.
While working with grassroots institutions in several countries in Asia and Africa, my personal experience is that a decentralized governance system is the best thing to happen to a country. China is one such good example. It is today much more decentralized than most of the developing and middle-income countries, particularly on the spending side. More than half of all expenditure in China takes place at the sub-provincial level.
That is one reason why we need to be optimists about this plan of decentralization.
The columnist can be emailed at Arjimand@greaterkashmir.com
Arjimand Hussain Talib
Compulsive cynicism is always bad. And compulsive aversion to everything is even worse. As the talk of Panchayat elections gains momentum in the state, there is a flurry of political activity. At this point of time this activity looks largely negative.
At one end of the ideological spectrum is the Geelani-led Hurriyat that sees any such electoral exercise a political blasphemy. At the other end are parties like National Conference (NC), PDP and Congress, whose some leaders seem to be in a double mind.
Across this political divide, it seems not many want these elections to happen now. Some just don’t want Panchayati Raj Institutions (PRIs) to come up in J&K at all.
When it comes to Mr. Geelani, his analysis of the Panchayati Raj doesn’t seem to be well informed. Those in NC, PDP and Congress who are averse to PRIs have their own reasons to do so.
Whatever the reasons, any opposition to or delay in holding Panchayat elections are not going to do any good to the well being of the common masses in this state. This compulsive opposition will only fuel our political and governance chaos. It will fuel our great suffering.
Mr. Geelani would do well to understand the end result of this exercise. To say that Panchayati Raj and its elections are going to dilute the basic political question of J&K would be naïve. No electoral exercise of the past 63 years has diluted Kashmiri people’s resolve to ensure their political justice. No electoral exercise has questioned its disputed status in a legal sense.
To understand the insecurities of some of the members of NC, Congress and PDP is important too.
When PRIs start functioning, the enormous powers that our centralized political and administrative systems enjoy today will go to the people. Power will devolve from the Civil Secretariat, from Deputy Commissioners’ offices and MLAs to the people at the village level.
In this process, people at the village level will have a say in planning and spending money for their development purposes. They will be in a position to question and self evaluate.
Our state’s governance – particularly that of Kashmir region – is in a mess. One of the reasons for that, apart from the political ones – is that our administrative institutions suffer from an acute supply-demand mismatch. There is malfunctioning of higher-level governance structures because the lower level structures are under-used. The reason these are under-used is that lack of accountability and ownership renders service delivery ineffective.
Take, for example, Kashmir’s advanced medical care institutions like SKIMS. The reason it gets patients who could even be treated at Primary Health Centres or District Hospitals is that these institutions do not work properly due to accountability reasons. Same is the case with areas like education, welfare, etc.
At the core of the indecision among some of the leaders of NC, PDP and Congress lies perhaps the issue of the 73rd Amendment to the Indian constitution that gave good powers to Panchayats.
A ‘coordination meeting’ between the ruling coalition partners - NC and Congress – on Thursday took the prospects of Panchayat elections two steps backward. Apart from postponing the proposed elections by at least two months, the partners also took the decision of jointly studying the utility of the 73rd Amendment to our state. And there lies the problem.
It is now more than clear that the kind of Panchayati Raj J&K has today by virtue of the Panchayati Raj Act 1989 is more or less cosmetic. This act does not actually empower Panchayats to take decisions that really matter. In this case, the Block and DC offices continue to play the ‘king’s role.’
Looking at the merits of the 73rd Amendment, J&K must adopt most of its provisions to make devolution of powers really possible here. It should also bring primary healthcare in its ambit.
There is another positive spin off of Panchayats in our case. Currently people at the grassroots level have no legal safeguard to report, question and reverse human rights violations at the hands of various security agencies. There is a good possibility that functional Panchayats would engage with the higher structures of police, paramilitary and army powers for safeguarding people’s human rights. Such an empowerment of people at the grassroots level would be a great thing to happen.
Now that the coalition partners have set to ‘study’ the 73rd amendment, it is important that they do another side task. Despite the application of this Amendment many states continue to deny financial and administrative powers to Panchayats as enshrined under the same. We must not follow that model.
Another important learning relates to the role of the Block and District-level tiers under the Panchayti Raj system. According to the Approach Paper to the Tenth Five Year Plan, excessive controls through Block and District-level tiers on the village-level institutions have been found counter-productive. It has already proposed abolishing these two tiers.
There has been another critical learning. It has been generally observed that a lack of manpower and capacity to do works planned by Panchayats limits their capacity to deliver positive results. J&K’s PRIs must have a mechanism that allows for full time or part-time staff to support their functioning, including documentation. There also must be a good provision for capacity building.
On the issue of reservation, J&K needs to be little more cautious. It must take care not to create a reservation system that ends up creating greater polarization rather than binding communities together.
New Delhi also needs to understand that without meaningful decentralization, governance will continue to remain in a mess in Kashmir. And when governance remains in a mess the prospects of finding an amicable solution to Kashmir’s political question would remain dim.
While working with grassroots institutions in several countries in Asia and Africa, my personal experience is that a decentralized governance system is the best thing to happen to a country. China is one such good example. It is today much more decentralized than most of the developing and middle-income countries, particularly on the spending side. More than half of all expenditure in China takes place at the sub-provincial level.
That is one reason why we need to be optimists about this plan of decentralization.
The columnist can be emailed at Arjimand@greaterkashmir.com
Subscribe to:
Posts (Atom)