The State Administrative Council on 7th Feb 2019 decided to provide separate divisional set up for Ladakh region with Headquarter at Leh. The decision is apparently ill advised, devoid of historical and administrative realities of the area.The decision has the potential of destabilising the situation in the sensitive border area and its fall out with similar demands from Jammu division. It appears that necessary feedback based on the history and likely implications (both political and administrative) has not been examined critically and may not well serve even administrative goals.
Before I come to the merits or demerits of the decision, it would be desirable to have a glimpse on the past history of the Region. Unfortunately for our state, we have been victims of political instability with some simmering from 1947 to 1952 which snowballed to full bloom with the dismissal of elected government of Sheikh Mohammad Abdullah which has since continued its reverberations in different forms, ultimately taking the form of the militancy in 1989 and is continuing till date. The Central Government of all hues and regional parties/governments of various colours have either jointly or separately for their political objectives nourished the situation with the results that the whole society of the state has got divided in different segments based on religion, sect, region etc. This in turn had damaged the administrative ethos and culture and except the tenure of late G.M. Sadiq (1964-71) and late Sheikh Mohammed Abdullah (1975-82), our administrative setup has not fully and optimally delivered or discharged on accepted norms. The latest onslaught was post 1989 and we are still struggling to find our feet notwithstanding long spells of Governor’s rule and some corrective measures taken above the petty political considerations. Ladakh region with two dominant religious communities in Leh and Kargil and minority segments of either community in both the parts have been fertile ground of divisive politics of the state. This happened in late 60s and in spite of same party government in the State and Centre but pushed by hidden divisive forces from outside. But the apt handling at administrative and political level stabilised the situation by providing District administrative setup with unified command at the top for both parts of the division. Fortunately for the state and region, we had very efficient and devoted civil servants like Late R.K. Takker, Late Ashok Jaitley, H. Tayeb, S.S. Rizvi, Late Mehmood ur Rahman who provided good leadership with the result this decentralised set up was precursor for the Single Line Administration for the whole state in 1976-77 which was formulated and co-authored by me with Late R.K. Takker under the stewardship of Late S. Banerjee, Chief Secretary. The militancy in the state did not affect Ladakh region but again, the hidden divisive forces engineered the demand of Union Territory status which became so furious in Ladakh that it resulted in a long agitation and boycott by the major community with the minority community in Ladakh. This prolonged for about more than one year when after assuming the charge of Chief Secretary in September 1992, I was given the charge of defusing situation by Late Governor Saxena.
Happily for me and thanks to the goodwill of leaders of both communities, my three day negotiations in October 1992 brought out Ladakh Development Council setup. While people of Kargil District didn’t agree to become part of this setup either jointly or exclusively, linking their association with the situation in the Valley. The proposal was approved in a meeting in Delhi under the chairmanship of Union Home Minister, when besides officer of the MHA, State Govt, the representatives of Ladakh were also present.
The new setup was fully endorsed with small amendment by insertion of word “Hill” as Ladakh Hill Development Council. Fortunately, after witnessing the administrative and even political benefits with Head of the Council being elected by the people, the people of Kargil District also adopted the Council pattern during Dr. Farooq Abdullah’s tenure in 1997-98.
This setup for both districts had stood up well and with further decentralised powers. In fact, all district allocation including Central Scheme funds are directly under control of the Council – the administrative powers at district level rest with Council and Divisional Level/State Level order of offices issued with approval of Council through Ladakh Affairs Department of the Civil Secretariat. The role of HoD/Divisional Level is purely advisory and consultative. It is, therefore, a matter of discussion as to what the proposed divisional setup will usher in. Divisional Kashmir has hardly any administrative role and his divisional level meeting never has representation for the region as DC of Leh/Kargil sort out matters through Ladakh Affairs Department and if need, by intervention of Chief Secretary or Minister of Ladakh Affairs. The advantage of divisional setup is minimal, except psychological but disadvantages outweigh as far particularly as under:
1. Financial burden on district budget by creating further administrative units which are not at all required and keeping in view the level of population, existing units are adequate. This would burden the non plan budget to the extent of a few crores which would otherwise be utilised for development.
2. Location of proposed Divisional Headquarters not being acceptable and any move of seasonal movement like Darbar Move at the State level would amount to carry the hackneyed Feudal tradition to Ladakh which we have not dispensed so far.
3. The proposed set up will, as already revived the demands of similar set up for Pir Panchal area and Chenab Valley in Jammu Division.
The State already flushing with disproportionate number of Districts/Sub-districts, Tehsils/Block level as compared to highly populous states like U.P, H.P will ultimately effect the administrative efficiency and burden the State exchequer which is labouring at present about 70% of its Budget on salaries and selected items.
We should also consider whether Divisional set up will not push for Union Territory status for Leh and if so, are we not heading to Trifurcation of the State. The State is already reeling under militancy and as rightly pointed out by my erstwhile colleague K. Rajender, Ex. DG that international situation in the region getting complicated with Afghan Scenario, we should not provide more fertile ground for unending turmoil. The decision needs to be revised urgently and need of the hour is to provide more decentralised power to other districts on the pattern of existing Ladakh Hill Council which should meet both political aspiration and enhance administrative capabilities.
(Sheikh Ghulam Rasool is Former Chief Secretary J&K Government.)