1. Introduction
The creation of a new district in India is primarily governed by state legislation and executive action, falling under the jurisdiction of the states as per the Seventh Schedule - State List (Entry 5) of the Constitution. Entry 5 grants states exclusive authority to legislate on matters related to the administration of land, including the reorganisation of administrative units such as districts.
It reads: “Local government, that is to say, the constitution and powers of municipal corporations, improvement trusts, district boards, mining settlement authorities, and other local authorities for the purpose of local self-government or village administration.” Using this authority, state governments are empowered to create, alter, or abolish districts to improve administrative management and governance.
2. Role of State governments
The creation or alteration of districts is an executive function of the state government. States possess the ability to create, merge, or alter districts through:
● Executive orders: These are issued by state governments to announce the reorganisation of districts or the creation of new ones.
● State legislation: Some states may enact laws to guide the process, although this is not mandatory.
This authority provides state governments with a significant tool to reorganise their administrative frameworks as needed.
3. Procedure for creation of a district
The process of creating a district typically follows a structured sequence:
● State cabinet decision: The proposal to create or alter a district is first deliberated and approved by the state cabinet. This ensures that the decision aligns with the administrative and developmental priorities of the government.
● Gazette notification: Once approved, the decision is formalised through a notification in the official gazette. This document specifies the intent to create or alter a district, its proposed boundaries, and administrative headquarters.
● Administrative reorganisation: The new district is established with the deployment of administrative machinery, including the appointment of a District Collector, the establishment of police jurisdiction, and the allocation of resources for infrastructure.
4. The case for a third district in Goa
The Government of Goa is considering the creation of a third district to address administrative inefficiencies and promote regional development. The proposal involves carving out a district comprising four talukas from South Goa: Canacona, Sanguem, Dharbandora, and Quepem. Proponents of the new district argue that it could enhance governance, expedite service delivery, and stimulate local development in historically underserved areas.
However, the move would not only attract support but scepticism as well. Concerns on behalf of a common man of general prudence need to be raised about whether the decision would serve administrative needs or would it be driven by political motivations ahead of the upcoming elections to the Goa Vidhan Sabha.
5. Prudence against potential gerrymandering
The concept of gerrymandering—the deliberate manipulation of electoral boundaries to favour a political party—requires vigilance. Though the creation of a district is not equivalent to delimitation, administrative reorganisation can indirectly influence electoral outcomes.
Former U.S. President Barack Obama, in his autobiography A Promised Land (2020), highlighted how councils in the U.S. redraw electoral borders to ensure favourable voter concentrations for the ruling majority. Such practices could undermine democratic principles if administrative actions like district creation are used to sway voter demographics strategically.
6. Gerrymandering risks in small States
Small states like Goa are particularly vulnerable to the risks of gerrymandering due to their compact geography and limited constituencies. The creation of a new district could enable the concentration of voters in specific regions, altering the political dynamics. This could be achieved indirectly through targeted development projects and resource allocation to influence voter behaviour, even if electoral boundaries remain unchanged.
7. Academic discourse about gerrymandering
The academic exploration of gerrymandering offers critical insights into its complexities and potential remedies:
a) "Votemandering: Strategies and Fairness in Political redistricting"Authors: Sanyukta Deshpande, Ian G. Ludden, Sheldon H. Jacobson
This study examined the phenomenon of "votemandering," where strategic campaigning is combined with redistricting to achieve political advantage. It highlighted how technology and data analytics amplify the efficacy of such practices, urging the need for informed policy interventions (Deshpande et al., 2023).
b) "Combatting gerrymandering with Social Choice: The Design of Multi-member Districts"Authors: Nikhil Garg, Wes Gurnee, David Rothschild, David Shmoys
This paper explored how multi-member districts could mitigate gerrymandering. Using empirical analyses, the authors demonstrated that proportional representation through multi-member districts could reduce partisan bias while preserving geographic cohesion (Garg et al., 2021).
Both studies emphasised the importance of safeguarding electoral integrity against manipulative practices, even when the boundaries themselves appear unchanged.
8. Conclusion
The creation of a third district in Goa highlights the intersection of administrative governance and political strategy. While the move does not directly alter electoral boundaries, its implications for voter turnout and political representation cannot be overlooked. By leveraging administrative reorganisation, the ruling government could strengthen its position in the affected constituencies through targeted development and voter mobilisation. However, any significant changes to constituency boundaries would require a formal delimitation exercise under the supervision of the Delimitation Commission.
Civil society and opposition parties must remain vigilant to ensure that such administrative measures uphold democratic principles and are not employed as tools for partisan gain. The establishment of a new district should prioritise equitable development and administrative efficiency, free from undue political influence.
