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ROLE OF CIVIL SOCIETY IN PROMOTING GOOD GOVERNANCE IN MIZORAM

David Zothansanga, Ph.D Department of Public Administration Pachhunga University College Aizawl, Mizoram

Abstract Recently the terms “governance” and “good governance” are being increasingly used in development literature. The concept of “governance” is not new. It is as old as human civilization. People and governments are looking to civil society as active partners in the delivery of services. The article looks at the role of civil society in promoting good governance in Mizoram. The role of the Civil Society in the State started when the Church tried to bring peace due to insurgency. The real role played by the Civil Society for good governance came into prominence with the rise of the consciousness of the people in the late 1990s. People became more aware of good governance and various NGOs have taken up the cause for good governance.

Keywords: Civil Society, Good Governance, NGO’s, Mizoram.

Introduction been called as the first sector, the private The notion of civil society has sector model for economic development gained ascendancy in the past decade. and for profit enterprises as the second It is now being equated with a variety of sector and civil society as the third sector different tendencies that have existed in of non profit associational life. In societies throughout the world. In the political discourse, the meaning attached development discourse, it is being to civil society is somewhat different and argued that civil society provides a third linked to the processes of leg to the ‘trinity’ model of development. democratisation and participation in a The state led public sector model has given context.

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Civil Society the state, terrorist, family, caste/class or Civil society as an intellectual organised religion. construct gained prominence with the Civil Society thus refers to the set advent of modernity in the western world of institutions, organisations and during the 17th century. The concept behaviour situated between the State, the evolved with the developments in other business world and the family. Specifically spheres such as, economy, polity and this includes voluntary and non-profit knowledge. Events like the growth of the organisations of different kinds, institutions of private property, spread of philanthropic, initiations, social and urbanisation, replacement of the despotic political movements, other forms of social state by the liberal state etc. contributed participation and engagement and the immensely to the meaning of the term values and cultural patterns associated civil society. The rise of capitalism had, with them. however, led to clear distinction between political and non-political and thus Civil society is composed of prepared the ground for the emergence autonomous associations which develop of civil society as a separate domain from, a dense, diverse and pluralistic network. the state.Since then, the term civil society Such civil societies are formed by people has also undergone several who have common needs, interests and transformations.The concept of civil values like tolerance, inclusion, society, according to SatishSaberwal, is a cooperation and equality; and social space which has three qualities. Its development through a fundamentally first quality is that in this social space, endogenous and autonomous process decisions and choices have to be made on which cannot be easily controlled from the basis of reason and of knowledge. The outside. second quality of civil society space is that Some of the important its members have to relate to each other components of Civil Society are open-endedly, without exclusion on the community based organisations such as grounds of religion, gender and so forth. youth organisations and groups, women The civil society space, consequently, can groups and organisations, religious carry a great variety of associations whose associations, cooperatives, trade unions membership is open. The third quality is and farmers’ organisations. in the decision making and choices. The civil society, space should be free from Civil society can have positive coercive pressures which may take various influence on the state and market and forms emanating from such agencies as increasingly recognized as important 45
      
       agent for promoting good governance governmental institutions to ensure good like transparency, effectiveness, openness, governance. responsiveness and accountability. Civil The World Bank first bought about society can further and improve the concept of “good governance” into governance, first, by policy analysis and development discourse. The bank’s advocacy; second , by regulating and experience of failure of its economic policies monitoring of state performance and the in African countries led to the Bank to action and behaviour of the public attribute the failure to “bad governance” officials; third, by building social capital indicating administrative inefficiency, and enabling citizens to identify and corruption, lack of transparencyand other articulate their values, beliefs, civic norms administrative short comingsin these and democratic practices; fourth, by countries. The conceptualisation of “bad mobilising particular constituencies, governance” then leads to the particularly the vulnerable and conceptualisation of “good governance” marginalized section of masses, to which includes parameters like participate more fully in politics and administrative efficiency, rule of law, public affairs; and fifth, by development accountability and transparency. work to improve the wellbeing of their UNDP defines good governance own and other communities. as the existence of a network of institutions of government coupled with Governance laws and regulations that together create The growing disenchantment and maintain a social environment in with governmental institutions, its failure which human development takes place to meet expectations, the persistent and for all groups of society. Good problem of poverty, increasing distance governance is thus, a subset of of the elite dominated institutions of the governance, wherein public resources government and other such negative and problems are managed effectively, factors and on the other hand the efficiently and in response to the needs increasing awareness of the limitations of of society. Public Participation in the government and development of influencing decision making, national and transnational business transparency, and accountability are thus interests have led to emphasis on good the hallmarks of good governance. governance. This in turn led to awareness The following points need to be of the obligation of the citizens and kept in mind while elaborating the institutions in the society along with principles of good governance: 46
      
      

a) universal protection of human within a larger social system. The State rights; operates through its various elements – legislature, executive, judiciary and, in a b) rule of law that is implemented democracy, political parties. in a non-discriminatory manner; One of the most conspicuous role c) efficient, impartial and quick played by the civil society is in the area of judicial system; articulating the citizens’ interest and d) accountability of decisions made demands. The importance of civil society about public issues and public can be better appreciated when State resources by public leaders and policies and programs of the government officials; do not take account sufficiently of needs of the poor or some vulnerable sections. e) devolution of resources and Civil society bridges the gap by way of decision –making power to local representing the interest of the people. levels and bodies in rural and urban areas; and Civil society plays the crucial role in mobilizing social capital. Social capital is f) participation and inclusion of all a resource that any community possesses citizens in debating public to some level and it can help in resolving policies and choices. multiple problems of a collective nature. Civil society can improve the State and Civil Society accountability profile of the government. The civil society has always been looked at a sphere distinct from the State, Role of Civil Society in Good ignoring the important linkages between Governance the two. Many social theorists have The strength of Civil Society considered the state as the creation of civil depending on its strength can have a society for protecting the life and positive influence on the State and the property of citizens. While championing market. Ithas become an increasingly the sovereignty of the state, they did not important agent for promoting good deny the ruler’s obligation to assure rights governance like transparency, to the civil society. In recent times, the effectiveness, openness, responsiveness concept of State has undergone and accountability. considerable change. Sociologist no more Governance has three level – (a) internal use the term as the embodiment of system and procedures; (b) cutting edge coercive power and sovereignty, but as a systems and procedures; and (c) check- system having several parts and operating and-balance systems. 47
      
      

At level (a), Civil Society can Watchdog – against violations of human influence policy and project formulation rights and governance deficiencies; (ii) through membership of committees, Advocate – of the weaker sections’ point submission of memoranda directly or of view; (iii) Agitator – on behalf of through elected representatives, and aggrieved citizens; (iv) Educator – of interactive rule-making in the citizens of their rights, entitlements and implementation of policies, projects and responsibilities and the government schemes affecting citizens. At level (b) the about the pulse of the people; and (v) maximum day-to-day interaction Mobilizer – of public opinion for or between the government and the citizens against a programme or policy. takes place and the popular image of governance is formed at this level. Role of Civil Society in India Interaction of Civil Society with level (c), When India became infrequent but important, will be more Independent the initial role played by the of an exposure of irregularities rather voluntary organisations was to fill the gaps than steps for improvement in the quality of governance. left by the government in the development process. They organised Civil Society can further good handloom weavers in the village to form governance, first, by placing policy cooperatives through which they could analysis and advocacy; second, by directly market their products in the regulation and monitoring of state cities. The volunteers also helped in other performance and the action and areas of development like education, behaviour of public officials; third, by running literacy classes for adults at night. building social capital and enabling citizens to identify and articulate their However, in the 1980s these values, beliefs, civic norms and volunteers who were better known as democratic practices; fourth, by Non-Governmental Organisations mobilizing particular constituencies, (NGOs) became more specialised and particularly the vulnerable and their work was divided into three major marginalized sections of masses, to groups. There were those which participate more fully in politics and continued to concentrate on the public affairs; and fifth, by development traditional developments of NGOs, who work to improve the wellbeing of their went to villages and run the literary own and other communities. programme. Then there were those who researched a particular subject in depth, The functional contributions of Civil Society to Good Governance are (i) and then lobbied with the government 48
      
       or with the industry or petitioned the campaigns they have lobbied against courts for improvement in the lives of the deforestation, overuse of pesticides and citizens. Third, there were those pollution caused by Industries. volunteers who saw themselves more as In this sustained campaign, these an activist and saw activism as their NGOs have often been helped by the primary means of reaching their goals, judiciary whenever the government because they believe that they could get proves unresponsive. India has developed the authorities to move in any other way. a device called the Public Interest India is a representative Litigation, by which any citizen can democracy. Once elections are over, petition a court to intervene where they politicians do not really go back to the feel it is in the public interest for the court electorate for every major decision. As a to intervene. result, the NGOs and parts of the media are often the only means available to the Role of Civil Society in Mizoram citizens to voice their opinions on any In recent times the use of civil decision taken by the government. society in exerting organized pressure on In India, there are numerous gaps autocratic and unresponsive states and left by the government in the thereby supporting democratic stability development process - sometimes by and good governance has received critical intention, sometimes due to lack of funds, attention. The fact that civil social sometimes due to lack of awareness. These institutions can also be vehicles for are the gaps that NGOs try to fill. Some participation in development work in areas where the government does programmes has also been noted. Owing want to get into. Many politicians do not to this fact we try and look at how the want to upset existing caste hierarchy in various organizationshave played a vital their constituency as they are dependent role in the context of Mizoram. This on them for their votes. Then there are would enable us to link the concept of NGOs who work in the fields where the civil society with the pragmatic reality that government efforts are found to be obtains in Mizoram. inadequate. Two well-known examples are the areas of education and healthcare. The Church In the last two decades a large number of The Church has played vital roles NGOs in India have been active in the in the development and promotion of the area of environmental protection. They socio-economic and political status of the have been in the forefront of reforestation state since their inceptions. Among them, 49
      
       the role played by the Church, as well as MNF on the night of 28th February, its efforts and involvement in the politics 1966, most of the residents of Aizawl fled of the state in general, and the electoral to nearby forests and villages and the politics in particular is noteworthy. security forces and other miscreants Initially education upto Class VI then the ransacked their houses.Aizawl remained Primary Schools and Middle Schools deserted for a few days. The Aizawl were in the hands of the Church and the Citizens’ Committee came into existence two of the earliest hospitals on 12th March, 1966 due to the The most notable contribution initiatives taken by the Church, namely and involvement of the civil society the Synod Standing Committee, and organizations, particularly, the Church individually Rev.Lalngurauva, Rev. was to be seen when the socio-political Alwyn Robert, the then Moderator of the environment of the Mizo Hills District Mizoram Presbyterian Synod and was turning and pointing towards a Mr.Sainghinga played significant role. period of prolonged insurgency, initiated The Committee then set up various cells and spearheaded by the Laldenga led or sub-committees such as Public Relief Mizo National Front (MNF) party in the Committee and Public Grievance Cell, middle of 1960s. It was during the and they disposed human and animal insurgency period that the Church corpses lying scattered across the streets started actively involved in the politics of of Aizawl. They also often submit the state with the objective of bringing memorandums and complaints to the peace and normalcy in the District. In army Brigade and Battalion officers about factthe valiant and brave efforts of the army personnel acting illegally. At Church leaders to bring about peace, Lunglei, the Lunglei Citizens’ Committee stability and harmony in the state was one was already formed on 8th March, 1966 of the important reasons that brought the on the initiatives of the Baptist Church Government of India and the MNF to leaders. Hence, the Citizens’ Committee negotiating tables many times, and was the first instance where the Church ultimately to the signing of the Peace took active part towards the maintenance Accord in 1986. of social and political order within the The initiative taken by the District. Church started in the year 1966 itself With reinforcements the counter- with the establishment of the Lunglei insurgency measures being intensified Citizens’ Committee and the Aizawl immediately armed encounters also took Citizens’ Committee. With the launching place more frequently in the whole of of armed insurgency movement by the Mizoram, the Standing Committee of the 50
      
      

Presbyterian Synod held another meeting The Mizoram People Forum (MPF) th on 14 March, 1966, which decided a Apart from such issuing of ‘Christian Peace Committee’ to be statements in the form of requests and formed with members drawn from both appeals to the public on the eve of every the Presbyterian and Baptist churches. election to ensure conducting of free and This Committee thereafter, supervised all fair electionsthe Mizoram Presbyterian relief efforts for the welfare of the Mizo Church organizes seminars and political people. It had also initiated a number of education campaigns through one of its peace missions during the insurgency wings- the Synod Social Front, at various period, between the Indian Government places across Mizoram. Until 2003, the and the MNF that spanned for almost Presbyterian Church in particular, and two decades, pleading both sides to take the various churches in Mizoram in their problems to negotiating table and general, confined their involvement in the work out acceptable solutions to such electoral process to such requests and political problems that had triggered the appeals. However, the state general insurgent movement. In such way, the election of 2003 changed their attitudes Church has widened the scope of their and perceptions regarding their influences to cover the whole of Mizoram participation and involvement in the to the relief of the people from many electoral process. In the wake of the serious adverse consequences of the emergence of various untoward incidents insurgency. such as illegal selling of votes, threats, fake The first visible engagement of the kidnappings and the alleged involvement Church or the civil society, for that of some underground organizations matter, in the electoral process of the marring the 2003 State Assembly State was in the year 1972, when election election of Mizoram in 2004, decided to was held for the first time in the newly study the issue in details and make more formed Union Territory of Mizoram. In meaningful plan for future endeavour for this election, the Church leaders issued a political reform. Besides, before the 2003 statement, appealing and urging the General election, the churches and most politicians, candidates and the members of the prominent NGOs of the state of the Church for a clean, free and fair worked tirelessly together for a free and election. Since then, issuing election fair election. They had political education messages prior to elections had become a campaign in almost all local congregations regular activity of the Church in their in the rural and urban areas. But it was efforts to ensure free and fair elections till found that all these campaigns did not today. bear much fruits as expected, greatly due 51
      
       to such unwelcome incidents during the its involvement and started initiatives to election and free and fair election seemed bring about good governance, freedom, a distant dream. sustainable socio-economic development Hence, bearing all these which is participatory in planning and circumstances and issues in mind, the implementation including administrative reforms. Synod Executive Committee (SEC) set up a Working Committee in 2004 who took The impact and influence of the up the task of negotiating with the major MPF in the administration and politics Churches and NGOs in Mizoram, and of the state lay basically, not in the nature invited them to join and agree to their and extent of its various activities, but on plan of constituting a common platform the status and respect received from the where they would work together to bring people by virtue of being a church- about a peaceful, free and fair election in sponsored organization nearly equating Mizoram. After series of joint meetings its activities to that of the Church in the with the leaders and representatives of minds of the common people. This has various churches and NGOs, an often yielded positive results as well as agreement was being reached to harsh criticisms and serious controversies. constitute a common platform as The steps taken by the MPF on proposed by the Synod Working and the basis of the ‘Election Guidelines’, a Drafting Committee. Finally, at their fifth sort of a Memorandum of Understanding meeting, the leaders of the major NGOs agreed upon both by the MPF and major and churches in Mizoram unanimously political parties in the state, abolished agreed to form the Mizoram People such malpractices like buying of votes, Forum (MPF) on 21st, June, 2006. public feasts, house to house campaign, Today, the Mizoram People providing transportation of jhum Forum (MPF), an association formed by products, financially hiring singers and the conglomeration of major civil society other entertainers, the overwhelming use groups in Mizoram, established on the of flags, posters and banners by fixing the initiatives taken by the Presbyterian size and numbers of banners and posters Church Synod has now become the etc, has contributed in largely reducing administrative arm of the Church in its many of the usual electoral malpractices effort to bring free, clean and fair and misconducts that often characterized administration in Mizoram. In fact, with the earlier elections. The MPF further the establishment of the MPF, the organized joint platforms during election Church has now widened the scope of campaigns for candidates of major 52
      
       political parties and stop the traditional under pressure of political and social independent party campaigns through modernisations. It was registered as SR public meetings. It even restricted and No. 4 of 1977 under Indian Societies prescribed the topics of the public Registration Act (XXI of 1860) on 14 speeches of the candidates in such joint May 1977.The YMA which plays a platforms. Notable changes as a result of crucial role in the Mizo society has such efforts of the MPF have been that become one of the main civil society the election expenditures has groups in the state. considerably come down and elections The YMA has always played an have become peaceful, free and fair. This important role when sporadic, spasmodic opinion is shared by citizens and natural calamities or famines strike the politicians as well. The extent the MPF state of Mizoram. In the immediate and its activities received support and aftermath of such calamities when the respect from the citizens, although not State fails to provide immediate relief, the having any legal binding or authority to YMA fill the gap and help the affected enforce its demands and expectations people continuing its efforts to the extent made in the form of appeals and requests needed. Even the state has made use of indicates that the Church would continue the YMA to provide relief in times of to occupy animportant position in the crisis. Training in disaster relief is now political and administrative deliberations being provided by the state of the government in the future. administration to the YMA members.

Young Mizo Association (YMA) YMA is involved in many activates of the government like the conservation The Young Mizo Association of wild life and forest.Since 1974 it has (YMA) is the largest and most taken up the Green Mizoram Project. comprehensive non-profit, secular and Under this people are taught the nongovernmental organisation of the importance of preserving wildlife and Mizo people. It was established on 15th forest and the role they play in their life. June 1935, originally as the Young Lushai Village water resources and now even Association (YLA), which was later rivers are preserved by the YMA all on a replaced with the “Young Mizo voluntary basis. The YMA encourages Association” in 1947. It was initiated by people to maintain health and sanitation. the Welsh Christian missionaries who Voluntary blood donations are organised understood the need of cultural by the YMA. Many of these activities are conservation of the Mizo tribe, who were taken up with the support of the State

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       which makes use of these services either matters relating to collective lives of the directly or indirectly. people and even like the Multi- The YMA is actively involved in Disciplinary Committee on Tuirial Hydro the fight against narcotics and other Electric Project. The government and the abusive substances. They detect persons YMA have signed several memorandums involved in such activities, seize and hand of understandings in the fields of them the substances over to the distribution of LPG gas with the authorities. A sub group within the FC&CA, in the field of education with organisation initially known as Supply the SSA and preservation of water Reduction Squad (SRS) now called resources with the PHED. The Central Anti Drugs Squads (CADS) who government at times consult the YMA for are actively involved in rooting out the their opinions on certain policy matters. evils of the abused substances, sometimes acting in tandem with the government Peoples Right to Information and agencies, which has drastically reduced Development Implementing Society the supply. This is done with the active of Mizoram (PRISM) support of the government. During the The PRISM, formed in August time of the Mizoram Liquor Total 1st, 2006 is a group which is mainly a Prohibition (MLTP) they were watchdog looking into the day to day instrumental in destroying many illicit functioning of the government. In its liquor manufacturing units. fight against corrupt practices PRISM The YMA is also increasingly took recourse to Social Audit, RTI Act involved in detection of illegal foreigners. and visited different government This is done at each local level and their undertakings. It also investigates in recordshelped government in having various allegations of corruption of quick survey of foreigners. The state officialsand according to its own report, government at times makes use of services submitted 53 suggestions and 43 of the YMA in identifying beneficiaries complaints, till date, to the government various schemes and also in the and also submitted 67 FIRs to the Central implementation of such schemes. The Bureau of Investigation and to the state YMA also has taken the initiative for skill Anti Corruption Bureau. It has also development of the youths and organised submitted 2 PILs in the Supreme Court training for carpentry and masonry. The and 11 PILs in the Gauhati High Court. YMA has been made a member of As a result of these actions certain government committees on according to PRISM, again according to

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       their report the government has found Manifesto” (loosely translated as Peoples 297 officials to indulge in corrupt Manifesto) where they highlight the practicesand 57 officials have been various expectations of the people dismissed from service. It has also claimed including suggestions for implementation that 293 familieswho claimed of the political parties. Theyalso bring out compensation from the state government booklets where the bio-data of the due to implementation of various contesting candidates are shown. government projects were not required to be compensated and that 107 Student Bodies familieswho were due to receive money There are two main student from the government have not received bodies in Mizoram, the Mizo Zirlai Pawl any compensation though the records (MZP) and the Mizo Students Union showed them as already paid. It has also (MSU). These student bodies have taken found out that some departments were up several issues connected with good keeping undisbursed crores of governance and mostly issues related to government money in their official the students’ interest. They have taken up custody. They have organised so far three the cause of establishing UPSC coaching seminars on the prevention of corruption. centre in the state and posting of PRISM, since 2009, brings out a permanent Principals in the State run report called ‘Mizoram Watch’ in the government colleges. They have worked months of April, October and December. for enforcing common fee structure in the The April and October report shows what schools as there are appreciable has been so far achieved by the discrepancies in the fee structure of government corresponding vis-a-vis their schools especially of the private run Election Manifesto. They list out the institutions. They insisted upon the various policies that have been government to have a proper recruitment implemented and which have not met by rules with regard to the appointment of the government. In the December edition teachers and also the proper distribution they highlight the various activities of the of the teachers in the government schools Chief Minister and his Council of especially in the interiors of the state. They Ministers including the Speaker and the have pressurised the education Deputy Speaker of the State Assembly. department to open more seats at the college level as the present colleges are not PRISM is a member of the National able to accommodate all the college Election Watch. At the time of elections admission seekers. They have asked they release a manifesto called “Mipui government to root out the various fake 55
      
       educational certificates available in the protect the Mizo identity, culture and state. In connection with these they resort integrity including the values they to the meeting of the concerned ministers cherish. and government officials. A portion of the state administration often consider the civil Conclusion society organizations as crossing into the The contributions of the various spheres of policies and principles and even civil society organization and the crucial sometimes undermining the operation roles that they played in the history of the and the rule of law in connection with political and economic development of some of their activities in recent years in Mizoram till today, deserved credit to the their efforts and to attain their objectives. members of the society. The state being It is sometimes a matter of doubt if any located at a strategic point of the country, advantage or benefit is derived by the sharing two international boundaries, society as a whole as a result of some of possible increase in illegal immigration, their intense struggles which seemed to expansion of the state’s economy with the wear down any opposition or serious arrival of Corporations and private firms criticisms. There is no doubt that some in increasing numbers etc, the socio- of the activities of the civil society political situation and the developmental organizations undoubtedly created and economic policies of the state will be doubts, confusions and controversies, not altered, reshaped and remodeled in the only in the minds of the general public, near future and the forces of globalization but also among their own members as will come into play. Hence, criticisms well. Some leaders of the Civil Society from the civil society organizations, often have doubts whether civil society including the Church, and their concerns organizations have sometimes crossed the raised in their objective of achieving good limit in pressing the government for their governance, administrative reforms and demands. However, they feel that if ever sustainable and participatory-oriented such doubts or questions arise, it would development would be increasingly be due to the incapacity and weakness on important and hopefully their influence the part of the government. They further would increase. It is, therefore, important opine that since the government is the one the Church and the civil society who enforces the law and if it is not able organizations on one hand and the state to maintain law and order, social on the other hand establish a workable problems eventually arise, and this and practicable relationship in order to sometimes have compelled the NGOs

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       and civil society organizations to step various socio-political and economic forward and take initiatives. Nevertheless, issues will not easily diminish even in the it is healthy that they occasionally ask future. It is therefore necessary, with the themselves whether civil society forces of globalization making increasing organizations, have ventured far too far inroads into the economy and social life in their actions in dealing with and in the state, to find a way for mutual pressurizing the government. understanding and co-operation between In regard to the Church the the civil society and the state for the respect and goodwill that it has received achievement of an efficient socio-political from the people and the popular support administration and sound economic that it has received on its standpoint in development.

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