Sarawak's Unique Administrative Identity: Establishment of Divisional, District & Sub-District Machinery for Enhancing Development Administration

The month of March 2002 will surely rank as a historic month for Sarawak following the announcement, creation and launching of two(2) new Divisions – the Mukah and Betong Divisions, respectively. And talking of history, it is also significant to mention that the Sarawak administrative system – in particular its Divisional set-up has a long history dating back during the 1870s onward following Sarawak's growing area during the reign of Charles Brooke. The Divisional administrative system with the District set-up at the lower tier (there was no mention of Sub-District) provided the main frame for the administration then. Given the vast land size and distance and the non-existence of road network and other communication links, it is not hard to fathom the important role of the Divisional administration. During the colonial era, the Divisional administrative set-up was further supported by the Local Authorities (now better known as Local Councils).

To administer the Division requires a chief administrator and the post of Resident was thus created. Hitherto, the title Resident or Tuan Residen is a very respected post in the State even though the functions and responsibilities have changed throughout the years. Assisting the Residents then were the District Officers (DOs) whose posts were equally respected. It is worth mentioning that DOs or Tuan DO rather than District Officer or Pegawai Daerah is the more familiar nomenclature used by the general public. In the good old days, Sarawak Native Officers, whose colloquial titles of NOs are considered as coveted appointments, assisted the DOs. Later, with the recruitment of non-indigenous officers in the Administrative Service, the title was replaced with a new nomenclature i.e. Sarawak Administrative Officer or SAO who almost invariably administer the sub-districts. The latter post is best known locally and fondly referred by the people at kampong or longhouse level as abang or Kunsil, respectively.

Since 1963, with the emphasis on development each Division has an Administrative Officer (Planning & Development) or AOPD but subsequently re-titled as Divisional Development Officer or DDO who assist the Resident on development matters in the Division. The Divisional Development Operation Room and the organization of the Divisional Development Executive Committee (DDEC) Meeting were among the key features associated with the work of the DDOs. Today, effective January 2002, they are known as Deputy Residents.

It is against these historical and nostalgic backdrops that this editorial intends to discuss Sarawak's unique administrative identity when compared with the other States in Malaysia. With the Divisions and institutions of Residents and Deputy Residents at the Divisional level, and the District Officers and SAOs at the District and sub-District level emplaced, rising expectations in terms of administration, management and development will come from the people. It calls for new challenges to the Residents, Deputy Residents, DOs and SAOs and other Departmental officials to deliver the public goods and services.

Perspective

Where do we start? While there are various approaches to discuss this subject, we shall first recognize the fact that the Divisions of Sarawak have grown from five(5) to seven(7) to nine(9) and then to eleven(11). Given the big size of the State being almost as big as Peninsular Malaysia which is made of nine (9) States, it is quite obvious that unless the administration is nearer to the people on the ground, then the people's administrative and social needs will be too distanced and thus may not be immediately addressed by the administrators. The much needed socio-economic development will be too thinly spread and sparse rather than being focused and concentrated. While such issues can be addressed promptly when the administrative tentacles are nearer, the same cannot be expected, given the size and distance, as well as prevalent inadequacies of infrastructure and communication links.

From an administrative and development viewpoint, it is not hard to comprehend the emergence of the new Divisions (and there still is the possibility of the further creation of two or three more new Divisions to make it 13 or 14). For a start, Sarawak is such an enormous State and hence, both its administrative and development initiatives, especially at the ground level, needs to be decentralized. This will enable a more focused effort, a more regional and area-based approach, recognizing their constraints and taking full account of their potentials. The respective departments and agencies, in turn, will strengthen their teams by beefing up their administrative and human resources to better serve the Division.

From the historical perspective, Divisional administration (supplemented by the District and sub-District framework) is synonymous with Sarawak's history and the way of life of Sarawakians. In the Brooke regime, Divisions were formed through the so-called 'waves of conquests' phenomenon, where the administrative headquarters in the form of forts or kubu were closely located along the major rivers in Sarawak to spearhead attacks or defensive purposes. During the colonial era and the early post-independence years, the security conditions posed by communist insurgency, became paramount which led to the creation of Sarikei and Kapit Divisions, breakaways of Sibu Division, so to speak, and not to mention the role played by the Rajang Security Command (RASCOM). Bintulu Division was formed purely for economic reason i.e. managing the oil and gas concentration and the opening of the Miri-Bintulu corridor for agricultural plantation purposes. Samarahan was also elevated as a division to take care of the mushrooming of educational and higher learning institutions and agricultural potentials of the area. Today, the elevation of Mukah and Betong into divisional status is purely development driven.

Both Mukah and Betong are fronted with a coastal belt and calls for a specially integrated coastal zone approach. For both new Divisions to sustainably grow and develop over the years, it is interesting to note that both are already surrounded with the development of large-scale plantations with oil palm and sago as anchor crops. Additionally for Mukah, aquaculture development, fishing, education and human resource have also been accorded priority attention with the establishment of a polytechnic, a UiTM Branch Campus and a Community College to start with. Betong with its technical school and the Integrated Resource Development Centre at Layar, and the MARDI and PORIM Research Centres in Sessang, Saratok are definitely going to play major roles in promoting research and development (R&D) in the agriculture sector. As for the future, both Divisions will still have to chart their own plans and consolidate their niches.

From the people perspective, it must be said that the people by and large – the rakyat of Sarawak, especially in the rural areas – have been so used and familiar with the administrative system made up of the Divisions, Districts, sub-districts, kampongs and longhouses in that hierarchy for the past 150 years. They see and relate the system as the Government or Perintah. Administrative Officers with titles of Residents, DOs, (District Officers), Kunsils (Sarawak Administrative Officers), are among some of the long enduring titles that still prevail today.

'Mahu jumpa Tuan Residen',

'Mesti cakap dengan DO',

'Tu Kunsil Kitai'

The above opening conversations are uniquely Sarawak sayings.

A visit to any of the District Officers in the rural areas today such as Julau, Pakan or Lubok Antu especially during the early mornings of the week will portray a scene of yesteryears where throngs of rural people will queue up to see the DO or other R&DO staff. The issues discussed can range from renewal of shotgun licences, land disputes, marital problems and kampung affairs. The same is true at the sub-district level. These scenes merely reflect the continued close associations of the people with the state administrative system. It further reiterates its long history, its uniqueness and its identity. Imagine, therefore, if there are no Divisions, what would be the repercussions and effects? It is for these reasons (leave alone the economic, development and other rationale) that the people welcome the creation of our new Divisions.

Challenges

The challenge for us in the state civil service is to continuously and continually upgrade our service, to perform and to serve and to be of use. We further need to recognize that our work not only has its theoretical and philosophical underpinnings. It is also significantly experiential. Through our experiences when we travel, we see, hear, communicate and speak the ground language of the people.

It is further recognized that the work challenges of the R&DOs and other offices do differ from place to place. For example, a visit to Bintangor District would portray a vibrant commercial area comprising of entrepreneurial traders and commercially-oriented farmers. A visit to Pakan District would portray a laid-back rural area with vast stretches of underutilised or unutilised land, dominated by subsistence and smallholding farmers. The work challenge facing the administrators clearly calls for a switch in style of administering and managing a modern community on the one hand and meeting basic needs, bringing in attitudinal change as well as to cope with cultural realities on the other hand.

Let us look further at the other challenges. The split of the former Divisions and creation of the new Divisions can bring in new challenges to the administration – especially to the Residents, Deputy Residents, DOs, SAOs and all the other officers and staff.

To the Residents and officers of the former Divisions, they now have to contend with a smaller administrative area. However, it does not necessarily mean a smaller or reduced responsibility. The challenge now is to deliver effectively, be focused, be creative and innovative, and prove that there is no longer the 'tyranny of size' or 'tyranny of distance'. The old team must now restrategise and set new targets. Both Sri Aman and Sarikei Divisions have still hitherto undeveloped areas. For Sri Aman Division, areas along the Batang Lupar or Engkilili/Lubok Antu axis have considerable agriculture and land development potentials. Sri Aman's link to the new Betong Division is yet another of the possible growth areas. Sarikei Division is now relatively much smaller in size but still has vast areas around Pakan and Julau and would clearly offer great opportunities for agriculture, land and rural development as well as for social forestry. And it requires planning of the areas with a big push. Herein lies the challenges of the old Divisions and the ground administration would need to enhance the development machinery and capacity. They must start and initiate their Socioeconomic Development Plan for their respective Divisions.

To the Residents and officers of the newly created Divisions in Mukah and Betong, the challenges would be different. For a start there is the fledgling administration and the urgent need to provide and put in place the physical and social infrastructures. It is acknowledged that the administration will start and operate from a position of limited and constrained surroundings and resources. The critical challenging issue would be the speed of delivery and creating impact within a short time period of 1-3 years and getting things done. Of the two new Divisions, both already have a very strong development niche, both have to contend with the coastal areas, with Mukah having a larger challenge to link its coastal stretches.

Thus, it would certainly seem clear that the challenge we are talking about for all the Divisions today (2002) is one relating to planning and development, for which the administration has to take a proactive role. Both Samarahan and Bintulu Divisions were also created to meet the development challenges. Compare and contrast therefore these challenges with the creation of Sarikei and Kapit Divisions through the splitting of the former Sibu Division in the early 1970s which was driven by security reasons. Then, the newly appointed Residents, DOs and other officers have to juggle their development and security roles.

At this stage too, it would also not be out of sync for the other Divisions to start looking at the challenges ahead. Kuching, Sibu, Bintulu and Miri are the 4 largest towns (cities) of Sarawak. Limbang and Kapit are distantly behind. Would it not be an even greater challenge for all the other Divisional, district and sub-district towns to aspire to join the 'Big Four' in the not too distant future? With the provision of all the facilities and amenities, it could mean that the local population need not only think of getting their education, medical treatment, shopping and so on by visiting the 'Big Four'. Rather people from the 'Big Four' can in fact reverse the process.

Implications

Let us now ponder at the rationale and implications of these discussions. What is the significance of discussing Sarawak's unique administrative identity? Firstly, the splitting of the State into various Divisions should be seen from a long-term perspective. Currently with a small population of 2.2 million, it would mean that the newer Divisions would start with a population base of about 100,000 people although the older Divisions will have much more. It would mean equitably enabling the population on a per capita basis to enjoy adequate socioeconomic amenities and services. It means laying down the foundation for future generation of people living in the Division. Witness the impact of development to Samarahan, Sarikei, Kapit and Bintulu today.

Secondly, we look at the institution of posts and titles. Not withstanding the obvious change in title, based on the designated and substantive posts of Pegawai Daerah (DO) and Penolong Pegawai Daerah (Assistant DO or ADO), to the people on the ground at the kampung or longhouse level today, these officers are still referred to as Tuan Residen, Tuan DO and Kunsil. There obviously is a strong attachment to such titles in their abbreviated or colloquial terms. Possibly these terms give them a better understanding of their roles and functions particularly as they relate their needs to these officers.

The people also has a certain level of expectation from these officers in terms of their ability not only to resolve administrative matters, but also to be familiar and knowledgeable about Sarawak's local customs, culture and adats. Knowledge of these matters was of paramount importance for all Residents, DOs and SAOs in the past. With the various ethnic groups, different languages and dialect, cultures and customs that were found in the State, such knowledge was imperative. It is perhaps for these reasons that there had been so many inter-marriages leading to better understanding of local cultures. More prominent has been the multilingual nature of most, or if not all officers and members of the Sarawak Civil Service. Multilingualism is easily thriving healthily in the service. Once an officer is posted to a particular area, it is almost impossible not to pick up and speak the local lingo or dialect. This also makes the Sarawak administrative service quite unique.

Thirdly, the most critical aspect of our roles and especially the manner we execute them pertains to the fact that we need to be suitably trained and qualified with the basic knowledge and skills of administration, management and the body of knowledge call government. We need to have all the basic facts and figures of our Divisions and Districts at our fingertips, so to speak. We need to be mindful of the socioeconomic, development and political framework of our State. We need to know our past history as well as to know how past administrators handled their jobs. Mindful that a lot of our work is experiential in nature, regular ground visits, constant communication, dialogues and working together as a team will enable us to ever move forward.

The Sarawak Civil Service provides such an avenue for us all to play our part and excel in our effort to bring socioeconomic transformation to the State. Let us together work hard to enhance and preserve our development administration through the existing Divisional, District and sub-District machinery. Indeed all these point to the fact that Sarawak has a unique administrative identity for which we can always be proud of.