National Conference leader Omar Abdullah was sworn in as the Chief Minister of Jammu and Kashmir on Wednesday, after the NC-Congress alliance won 48 out of the 90 seats in the Assembly elections, the first since the abrogation of Article 370.
The National Conference bagged 42 seats, while the Congress could win only six. Although the two parties contested the elections together, the Congress has chosen not to be a part of the elected government, instead promising outside support.
With Jammu and Kashmir now a Union Territory, following the stripping of its statehood in 2019, the newly elected government will have to operate within the new dynamics established by the Jammu and Kashmir Reorganisation Act, 2019, which has vested significant powers, including those related to the All India Services, in the Lieutenant Governor. Although limited in power, the formation of an elected government marks a significant transition from an administrative perspective.
This transition signifies the return of ministerial responsibility, wherein civil servants will work under the direction of elected representatives—a model enshrined in the Westminster system. This aspect was highlighted by Omar Abdullah on Saturday in his first speech after assuming office. He stated that bureaucrats must understand that decisions cannot be made without considering the public and public representatives.
This power shift has implications for civil servants—All India Service Officers, Central Services Officers deputed to J&K, and Jammu and Kashmir Administrative Service (JKAS)—many of whom, especially those appointed after 2019, have little experience operating in a political framework. As the political leadership resumes its role, these civil servants face a unique challenge: adapting to a new administrative dynamic while maintaining neutrality, impartiality, and commitment to public welfare.
From administrative to political power
Since the collapse of the People’s Democratic Party-Bharatiya Janata Party coalition government in 2018, Jammu and Kashmir has been administered largely by bureaucrats under the leadership of the Governor initially, and then under the Lieutenant Governor after the abrogation of Article 370. Without an elected government, civil servants took all decisions related to governance, often without the political accountability that traditionally and constitutionally accompanies their role. The vacuum created in the absence of a political leadership led to civil servants exercising considerable power and influence in J&K.
With the return of the political structure in J&K, civil servants will need to shift their role from being the primary decision-makers to implementing the policies and directives set forth by the new political leadership, which is their original role. For the majority of newer officers, especially those from the JKAS who joined after 2019, this will involve recalibrating their approach to governance as they find themselves in uncharted territory. This marks a new beginning for them, just as it is for the elected government with limited powers.
The Westminster model, which emphasises ministerial responsibility and bureaucratic neutrality, will once again come into play. Under this system, civil servants act as neutral, behind-the-scenes advisors and implementers, while the political leadership looks after legislative business and policymaking with political accountability for every decision. Public outreach by civil servants is different from the public accountability of political representatives. For officers who had become accustomed to the autonomy of administrative rule, they will have to quickly adapt to working under a political leadership that is accountable to the electorate. Unlike administrative governance, where decisions could be made with relative autonomy, civil servants will now need to operate within the framework of political directives. This would surely result in a loss of the discretionary powers many officers have grown accustomed to from lower bureaucracy to the top echelons.
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Adapting to political leadership
The balance of political-administrative power has tilted in favour of civil servants in J&K in recent years. It is a known fact that when political leadership stays out of power, as J&K politicians have, it creates a disconnect and mistrust, as the politicians fail to exercise power and influence over the local bureaucracy, with supporters expecting them to address their basic problems. Politicians have lost their agency in recent years. It is not that development or welfare works weren’t being carried out, but that process didn’t include elected leaders, even though local bodies were in place for some time.
In the last five years, there has been a noted disconnect between bureaucrats and politicians in Jammu and Kashmir. Many political leaders have openly expressed frustration with the lack of accessibility to key decision-makers in the administrative setup, often feeling excluded from the governance process. This sentiment has been shared across political parties, making it a non-partisan issue.
JKAS officers in new political reality
There is another aspect to this disconnect. Civil servants, especially those in the JKAS, have felt a lack of agency to some extent. Civil servants derive agency through an elected government, which they use to address their own issues, from promotions to postings. One key issue that has emerged in recent years is the perceived marginalisation of JKAS officers, particularly regarding their postings. Many local officers claim to have been overlooked in favour of AIS officers or those from other central services brought in due to a shortage of senior officers in J&K. Earlier, JKAS officers were given cadre posts as well, but recently, a sentiment has developed that they have been relegated to less prominent roles.
With the return of political leadership, JKAS officers may now feel empowered to assert themselves, leveraging their deep understanding of local political and administrative dynamics. Many JKAS officers, who have served in critical administrative roles in the absence of political leadership, are poised to play a crucial role in this new governance landscape. However, they must approach this transition with a renewed sense of purpose and commitment to the principles of good governance.
That said, with the Lieutenant Governor holding significant powers in matters of transfer, it remains to be seen whether Jammu and Kashmir will follow the Delhi model. There has been continuous confrontation between the Delhi government and the LG over the transfer of officials. The matter eventually reached the Supreme Court, which ruled that the LG did not have independent decision-making powers and was bound to follow the aid and advice of the Council of Ministers. However, following the Supreme Court’s judgment, the Union government passed the GNCTD (Amendment) Ordinance, 2023, regarding control over services in Delhi to reverse the court’s ruling. This Ordinance was subsequently replaced by the Government of NCT of Delhi (Amendment) Act, 2023, which established the National Capital Civil Services Authority. This Authority consists of the Chief Minister, the Chief Secretary of Delhi, and the Principal Home Secretary of Delhi. It has the power to make recommendations to the LG regarding the transfers, postings,, and disciplinary matters of officials. If relations between the CM and LG in Jammu and Kashmir are not smooth, the Delhi model is likely to be replicated.
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Bureaucratic neutrality and impartiality
The concept of ministerial accountability, wherein bureaucrats are accountable to the political leadership, is defined by the administrative values of neutrality and impartiality. In Jammu and Kashmir, if two power centres emerge—one led by the CM and the other by the LG—the test of bureaucratic neutrality and impartiality will be challenged.
Civil servants in Jammu and Kashmir must adjust to this new political reality, reaffirming their commitment to the principles of bureaucratic neutrality and anonymity. In the Westminster system, civil servants are expected to provide impartial advice to political leaders and implement government policies without personal or political bias, while avoiding involvement in confrontations between different offices.
For many young officers, this will be their first experience working under the principle of ministerial accountability, where every decision they make is subject to political scrutiny. The need for bureaucratic anonymity—where civil servants operate behind the scenes without seeking public recognition—will also be emphasised. This may be a significant adjustment for officers who have grown accustomed to being the face of governance during the period of administrative rule.
As an institution, bureaucracy is inherently adaptable. While the transition may be challenging, civil servants in J&K are well-equipped to navigate these changes, provided they remain focused on the core principles of good governance and public service.
The return of political leadership to Jammu and Kashmir marks a pivotal moment in the region’s governance. For civil servants, this transition offers both challenges and opportunities. As they adjust to working under political leadership, it is crucial that they remain committed to the principles of neutrality, impartiality, and public service. Together with the political leadership, they must contribute to a governance model that prioritises good governance, inclusivity, and public welfare, ensuring a smooth and effective transition to political rule in Jammu and Kashmir.
Dr Zubair Nazeer teaches Public Administration at Amar Singh College, Cluster University Srinagar. He tweets @zubi_nazeer. Views are personal.
(Edited by Aamaan Alam Khan)