Page 1 of 9
Journal for Studies in Management and Planning
Available at http://internationaljournalofresearch.org/index.php/JSMaP
e-ISSN: 2395-0463
Volume 01 Issue 11
December 2015
Available online: http://internationaljournalofresearch.org/ P a g e | 192
An integrated approach to Urban Governance in Shillong, India
Elangmiki Shullai
EMAIL: elangshullai@yahoo.com
Abstract
The system of Urban Governance in
Shillong is a complex setup involving three
systems of government functioning in the
same area. This has given rise to
complicated issues such as the jurisdiction
in the provision and management of urban
services and regulatory functions for a
planned and secure development of the city.
The paper aims to study the characteristics
of the existing governance system and its
approach to urban development.
Participatory mechanisms are an integral
component of an efficient governance system
and its interface with the present scenario
will be important to bring about equitable
and desired decision making.
The local government has been
functioning in a municipal boundary that
has remained unchanged since its original
introduction which has limited its scope and
prevented centrally funded schemes on
provision and upgradation of urban services
from reaching other towns in the Urban
Agglomeration. The formal set up features
conflicts within the municipal area and this
issue is further compounded with the
presence of traditional local institutions
called Dorbars who at their individual level
form competent models of small scale
governance but require coordination to
transform their isolated forms of
development into a holistic approach for the
whole city. The District Council which is a
body formed under the provisions of the
Sixth Schedule of the Constitution in the
state of Meghalaya is responsible for the all- round development of the Sixth
Schedule areas. Their lack of technical
capability has rendered them unable to
regulate the development of the built
environment and presently they are
facilitators by providing small scale
development schemes. The Dorbars feature
a system of citizen participation and this
provides a possibility for influence on the
greater system of governance within the city.
Considering the range of issues
posed by such a multi-sectoral system,
certain recommendations have been made in
this regard to overcome these obstacles in
the governance for urban development in the
city.
Key Words:
Governance; Citizen Participation; Urban
Management; Institutional Structure;
Inclusion; Urban Development
Introduction
Shillong has been the capital of Meghalaya
since it became a state in the year 1972. It
was previously the capital of the state of
Assam and was an important civil station
during the British occupation in India.The
system of Urban Governance in Shillong
includes three major systems of governance
functioning in the same area which intersect
at certain levels especially in matters of
urban development and management. This
has given rise to complicated issues,
regarding conflicting and overlapping
Page 2 of 9
Journal for Studies in Management and Planning
Available at http://internationaljournalofresearch.org/index.php/JSMaP
e-ISSN: 2395-0463
Volume 01 Issue 11
December 2015
Available online: http://internationaljournalofresearch.org/ P a g e | 193
jurisdictions, the implementation of
development projects, and the general
management and regulatory functions to be
performed for the smooth running of all the
systems in the city. Beyond the municipal
boundary, the traditional local institutions
hold the authority with regards to
development. There is a lack of a unified
mechanism to manage urban development
which can function both inside and beyond
the municipal boundary and within the
Shillong Urban Agglomeration (SUA). (UP
Department SPA, 2008)
The aim of this paper is to investigate the
existing systems of governance for urban
development in Shillong city, how they
interface with each other and seek
possibilities of addressing the issues which
arise from the scenario. The arguments are
based on secondary data with interviews
done with relevant resource individuals as
there is a lack of proper documentation
pertaining to the role of traditional local
bodies. This paper will be limited to the
Shillong Urban Agglomeration (SUA) and
will look at the existing organisational set up
and processes and how they deal with
development schemes. Possibilities will then
be explored from the issues derived from the
case study.
The concept of Governance
Governance can be defined as an aggregate
of the mechanisms in which public and
private entities manage their collective
affairs. The process is inclusive of the
varying opinions and aspirations so that a
uniform action can be taken. The process is
under the operation of formal bodies which
are constituted to administer conformity in
society as well as informal bodies with
which the citizens have placed trust to carry
out their needs and requirements. (The
Commission on Global Governance , 1995)
It can also be defined as the exercise of
political, economic and administrative
authority in managing the development and
all round affairs of a settlement at different
scales and levels. It includes institutions
which through complex mechanisms and
processes addresses the needs and
requirements of a populace whilst
maintaining their security and propagating
their aspirational values. (Weiss, 2000)
Such a process is utilized to manage a
nation’s resources in effective and efficient
means to create a collective benefit for its
citizens. This is accomplished through an
entity that can work towards directing the
inclusive development of such resources.
This process is called governance and the
entity that operates such a process is called a
government.
Good governance considers the opinions of
the underrepresented in society, transcends
gender barriers and provides inclusivity to
the vulnerable. Participatory processes are
an inherent requirement for effective
decision making when allocating
development resources. There is a presence
of intermediary bodies to channel the
opinions of each section of the populace to
leaders for making equitable decisions.
Participation thus becomes one of the core
principles in forming a good system of
governance. (UNDP, 2013)
The significance of institutional structures
Better urban governance can be achieved
through a suitable institutional structure
which has the capability to bring about
positive change in society and economy at
the local level. The pursuit for the most
effective institutional structures have been
well documented as old as the era of
Page 3 of 9
Journal for Studies in Management and Planning
Available at http://internationaljournalofresearch.org/index.php/JSMaP
e-ISSN: 2395-0463
Volume 01 Issue 11
December 2015
Available online: http://internationaljournalofresearch.org/ P a g e | 194
Aristotle where emphasis was laid on
societal values to form the basics of such a
structure. In American cities, this structure
has been able to function autonomously and
unhindered by central administration. This
was further intensified by a participatory
populace. A study of governance must
acknowledge societal values and examine
the mechanism of promoting such values by
government institutions. (Pinto, 2000)
When analysing the connection between
structure and values, “...one generally finds
that the values of efficiency and economy
favour central control and domination while
the values of self-governance, empowerment
of people and local participation favour
decentralized structures and greater
autonomy.” (Nallathiga, 2008)
This is evident in India where Colonial rule
had removed the character of autonomy
from Indian cities and centralization of
powers emerged post-Independence in an
attempt to strengthen central power. The
institutional structures for urban governance
since then assimilated this trend and it was
not until the advent of the 74th Constitutional
Amendment Act in 1992 that there was a
push for decentralisation of powers which
was perceived to enhance urban
administration of local bodies.
The policy environment in Shillong
The Shillong Urban Agglomeration area
includes 12 towns : Shillong Municipal
Area, Shillong Cantoment Area and 10 other
Census Towns.
Growth in Shillong has taken place beyond
the Municipal boundary. The Census Towns
and their peripheries surrounding the
Municipal area are witnessing such growth
in an unplanned and unregulated manner.
The local government is unable to facilitate
this growth which is a burden on existing
infrastructure. The Municipal boundary has
remained unchanged since its inception and
attempts to absorb the Census Towns into
the Municipal area have been futile owing to
resistance by the traditional local bodies
who do not wish to lose their authority.
(Khongwir, 2013) Moreover these areas are
Sixth Schedule Areas, which fall strictly
under the purview of the District Councils
who presently lack the required technical
expertise to deal with the issues of
urbanisation. With limited or no public
infrastructure, these urbanizing fringes may
create health hazards which will affect the
welfare of citizens in the surrounding towns.
(UP Department SPA, 2008) It becomes
necessary to bridge the gap between these
people and the government to fulfill their
collective interests. This is a crucial
consideration as newly formed urban areas
will not be municipal in nature.
(Sivaramakrishnan & Singh, 2003)
The main actors in the city include:
a. The local government
The local government is the main actor in
driving urban development within the city.
The Urban Affairs Department is the
responsible body in preparing the Master
Plan for the city and through its various
parastatal bodies, it implements schemes in
slum improvement, urban renewal, solid
waste management and sanitation. The
Meghalaya Urban Development Authority
(MUDA) constituted under the Meghalaya
Town and Country Planning Act, 1973, is
tasked with promoting and securing the
development of the city according to the
provisions of the Master Plan. It may declare
scheme areas and prepare development
schemes to improve infrastructure for the
same. The municipal functions within the
city are managed by the Shillong Municipal
