Public Administration Optional (District Administration since Independence) by Abhishiekh Saxena

Model Answer

Question #1. The office of District Collector operates under multiple Constraints. Analyse. 10 marks (150 words)

Approach:

• Elaborate on the constraints.

The Collector has become an increasingly important functionary in district administration. Both in the regulatory and development functions, s/he has a very important role to play. In the performance of her/his functions, s/he faces a number of problems and constraints, which inhibit her/his work. In this regard, problems like frequent transfers, increasing workload, political pressures, crisis situations, and individual orientation of Collectors are a few, which need to be examined in this context.

The Civil Servants need to: have a tenure, which is long enough to understand the environment; and establish constructive, cooperative and cordial relationships with political leaders and administrators for smooth functioning, and to implement the development programmes. A well-accepted policy is to retain an officer in a particular place for a period of three to five years. Unfortunately, this policy does not seem to be the practice in case of the Collectors. A few studies, conducted on this issue indicate that there are too frequent transfers inhibiting the performance of the Collector’s functions. This indicates that they are dislocated before they acquaint themselves with the problems of the district. Some of the Collectors have tenure of less than four months, and there are very few Collectors who enjoy three years of tenure. This type of frequent transfers apart from having a negative influence on the Collector would adversely affect district development administration.

Political interference and pressure is another area affecting work of the Collectors. Such pressures are generally brought to restrain the District Administration in cases of land acquisition by the Government or use of judicial support for their followers or issue of licenses or permits for scarce commodities, etc. If the District Collectors concede the request, they are accused of partisanship; and if they resist the pressure, they are accused of being insensitive to the requests of the people’s representatives. Quite often, resistance to pressures leads to politicisation of issues. This may even lead to transfer of the Collectors. This has an adverse effect on performance of the Collector as an agent of change. It also adversely affects their job performance.

The visiting dignitaries like the Minister frequently interrupt the Collector’s work. Protocol requires that the Collector must receive; and be available to have discussions with the visiting dignitaries. Thus, protocol duty is another area, which affects the Collector’s work to some extent. One complaint often made is that the Collector is over-worked. Though, studies are few in this area.

In the district, the Collector is responsible for the maintenance of law and order. In practice Superintendent of Police, who is the Head of the Police force, in the district looks after this function under the overall supervision of the Collector. Quite often, the people come to the Collector with the complaints about the partisan attitude of the police and their failures. The Collector’s association is indirect and minimal after the separation of functions, that is, judicial and executive. The relations with the police have always been very delicate and sensitive to the Collector. In some areas, police began to resent the control of the Collector in the maintenance of law and order. There have been cases of strained relations between the two. With increasing unrest in the rural areas, the role of Collector is becoming increasingly important in the maintenance of peace and tranquility.

Crisis administration is another important and a necessary function of the Collector. The crises may include communal disturbances, floods, dacoity, terrorism, accidents and campus disturbances. These types of crises demand the Collector’s immediate intervention. This affects their normal functions, and the immediate casualty is neglect of development functions.

Finally the Collector, who is committed to change in development process, chooses her/his own area and preference for work. Some officers focus their attention on welfare of weaker sections; others on health activities; and some of the Collectors concentrate on special programmes and activities of their choice. Thereby, secondary importance to the remaining functions. This also constricts their role and performance in general.

The District Collectors should try to overcome these pressures through cordial relations with the politicians; proper time management; and delegation of work to their subordinates. Some officers make use of the political executives at the district and state levels to iron out the problems in development administration; and make positive use of their interactions with the politicians. There are others, who view the intervention as an unwelcome interference in their work and feel disgusted.

Question #2. District Collector enjoys a special and significant relationship w.r.t. Panchayati Raj Institutions. Comment. 15 marks (250 words)

Approach:

• Elaborate the relationship.

After independence, the Collector has become responsible for the implementation of the development programmes in the district. As an administrator, s/he is expected to coordinate all the development programmes being implemented in the district. The Collector’s role in development administration is more visible in case of Panchayati Raj Institutions (PRIs). S/he is closely associated with these institutions either from within or outside. The advent of PRIs in India has brought about several changes in the setup of district administration. This is particularly so in case of the role and functions of the District Collector. In practice, different types of linkages were established between the Collector and the PRIs in different States. In Rajasthan, for example, the Collector was made an associate member of ZilaParishad without the right to vote. In Andhra Pradesh, s/he was made a full-time member of ZilaParishad and Chairman of all the standing committees. Later, however in Andhra Pradesh, the Collector was disassociated from ZilaParishad. In Maharashtra, the Collector was kept out of ZilaParishad. But, generally it is felt that the Collectors should have a large share of responsibility in facilitating the success of PRIs. The relationship between Collector and PRIs can be studied under different heads, namely, control over staff, power to suspend resolutions, power to remove officers, and power to suspend and dissolve Panchayati Raj Institutions. In these areas, the role of Collector varies from state and state. The Collector has power to write confidential report and has authority to inflict various punishments. Such power varies from state to state. Similarly, the Collector can suspend the resolutions of Panchayats. An association with these bodies brings the Collector in intimate relationship with the people’s representatives. This provides an opportunity to understand the dynamics of Development Administration at the district level.

After the 73rd Constitutional Amendment, the relationship of District Collector with PRIs has changed immensely. The Constitutional amendment and the enactment of Panchayati Raj laws by various states in 1993 have reduced the burden of the District Collector on development activities. This Act has given scope to the State Government to set forth the yardstick of the relationship of the PRIs and Collector. In this context, some states have created the post of Chief Executive Officer and some states have opted for District Development Officer or Deputy Commissioner. The unique feature about the controlling authority assigned to the Collector in Tamil Nadu is that the District Collector has the overall controlling authority as the Inspectors of Panchayats in the district. The Project Director of the District Rural Development Agency (DRDA) assists her/him in implementing development programmes. In Haryana, the District Collector known as Deputy Commissioner, in Gurugram is the Chairperson of DRDA. In Kerala, Madhya Pradesh and Maharashtra s/he is Secretary of the District Planning Committee.

The study conducted by the Task Force on Panchayati Raj reveals that except a few States like Kerala and West Bengal, bureaucracy is a dominant partner in decentralised governance. In Andhra Pradesh, the Collector exercises direct control over the Gram Panchayats; in Orissa, s/he is the Chief Executive Officer of the ZilaParishad; and in Maharashtra, s/he has a limited role to play. Thus, even after implementation of the 73rd Constitutional Amendment Act, there is no uniform pattern regarding the position of District Collector in relation to the PRIs.