Guwahati: Assam has become the first in India to introduce the concept of ‘co-districts,’ an initiative to decentralise district administration and take governance to the grassroots.
A co-district within a district administration will also do away with the existing system of civil sub-divisions, said Chief Minister Himanta Biswa Sarma on Saturday during the inauguration of three new sub-districts under the Kamrup metropolitan district administration—Jalukbari, New Guwahati, and Dispur.
“Apart from the 35 districts, people in Assam had been demanding the creation of new districts and subdivisions. Some of these demands were justified. Now, we will have co-districts that would be a level above subdivisions and below districts,” he added.
In the first phase, 18 co-districts were inaugurated Saturday, in addition to 21 that became operational Friday across Eastern (Upper), Central and Lower Assam Districts, as well as in southern Assam’s Barak Valley.
Barring 35 constituencies that already have a district office, the Sixth Schedule areas and the Bodoland Territorial Region, Assam will have 78 co-districts, of which the remaining 39 will come up early next year.
“With this, the demand for subdivisions and new districts comes to an end. Our next step would be to try to amalgamate a circle office into a new co-district to make it easier for people,” said CM Sarma.
In his inaugural speech, Sarma recalled Prime Minister Narendra Modi’s words of praise when he learned of the co-districts concept – ‘The day is not far when people will say ‘A stands for Assam’: As on today, Assam is truly on its way to becoming an A1 state.’
Sarma said that Assam is implementing innovative ideas and concepts that are being emulated by other states across different sectors.
“Despite being a small state, Assam is opening up new roads. All states have been following us when it comes to schemes, be it education, drinking water, women empowerment, or even for training at Assam police academy,” he said.
“We used to learn from others, but now we have schemes like Orunodai, which other states are learning about. In the next few years, the concept of co-districts would also be applied elsewhere,” Sarma added.
A few government officials ThePrint spoke with termed this move a “positive step” towards decentralising administration at the grassroots, helping to strengthen the state civil services.
Some analysts, however, dubbed it a “political move” to showcase Assam as the “A1 state”, while ignoring its financial position and outstanding debt.
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The new setup
In these newly created co-districts, the Additional Deputy Commissioner In-Charge (ADC I/C) would be at the helm of operations as the Co-district Commissioner (CDC), while the Deputy Commissioner (DC) would be holding “overriding powers”, explained a government official.
The ADC I/Cs are granted specific powers and responsibilities across various branches, such as revenue and disaster management, transformation and development programmes, says the ‘Office Memorandum’ issued Tuesday by the General Administration Department, .
ThePrint has seen a copy of the order.
The ADC, who would assume the role of a CDC, can either be an Assam Civil Service (ACS) or an Indian Administrative Service (IAS) officer.
From issuing licences and vital certificates to appointment of Gaon Pradhan, the ADC will be responsible for a wide range of tasks including managing and implementing government schemes and projects, addressing land related matters, and overseeing government events within their jurisdiction.
Further, the ADC will have executive magistrate powers as well as supervisory authority over staff in all line departments within the sub-district.
The order specifically mentions that the District Commissioner will have the ‘overall power’ for supervising and monitoring government programmes and schemes within the new sub-districts.
While the ADC must report to the DC regarding all government programmes and schemes, the “District Commissioner shall not interfere in the day-to-day functioning and works of the sub-districts,” the order states.
The DC would be responsible for maintaining law and order besides chairing monthly review meetings as the chairman. “Any other powers would be delegated by the government from time to time.”
A government official told ThePrint that the new concept will help lighten the workload of a Deputy Commissioner. “As you decentralise, you make the DC free to concentrate more on development administration. Because from now on, the districts would become the fulcrum of economic activity. The workload would be significantly reduced,” he said.
“Currently, people at the grassroots often have to visit the DC’s office for some work or the other. Now, that will no longer be necessary, as much of the work would be happening in the sub districts under the CDC,” he added.
Chances of power tussle?
However, a socio-political analyst expressed concerns that such a move could lead to a “power tussle” between the DC and the ADC, and could potentially reduce the District Commissioner into a “nominal head”.
“Creating more authority in a new co-district does not improve administration. I think certain laws granting executive powers may need to be modified or revised to prevent a power tussle or ego clash between the two entities,” the analyst said.
Educationist Basanta Deka, a chief adviser to the regional party Asom Jatiya Parishad (AJP), said that creation of new administrative units are just “diversionary tactics to create a false sense of development”.
“District administrations are needed to implement developmental schemes. Where are the schemes? The existing system is burdened with activities. Sarma has failed to generate revenue, carrying on just on borrowed money. He’s only quick in constructing flyovers and executing cultural extravaganzas. But the flyovers are not solving traffic issues. Some are constructed even without any need,” said Deka.
He further stated that the CM has not done enough to develop schools and hospitals “qualitatively”.
“District authorities are hardly given developmental goals to achieve. Thousands of schools have been closed down, the government has also failed to enhance agricultural production,” he added.
Political analyst Adip Phukan questioned the need to create co-districts when Assam already has a huge administrative setup.
Assam has 126 legislators, a 14-member cabinet headed by the Chief Minister, 21 Zilla Parishads with 420 members, 185 Anchalik Panchayats with 2,197 members, and 2,197 Gaon Panchayats with 24,167 members, according to Panchayat and Rural Development (PNRD) Assam data.
“Why do we need more co-districts to cater to a population of 3.3 crore (2011 census)?” Phukan asked.
“To create more divisions isn’t wise. At some point, the government will not be able to control it… West Bengal is a huge state; they didn’t feel the need to decentralise administration. Neither did Madhya Pradesh or Rajasthan.”
Raising concerns over the possibility of corruption at a decentralised level, another analyst pointed out the lack of balance in expenditures in the state that is heavily dependent on financial institutions and the Central government.
“It would, however, create opportunities for infrastructure construction, a top priority for CM Sarma. (But) these construction projects would require more funds, more loans, and consequently, increased debt,” he added.
(Edited by Tony Rai)
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