DISTRICT ADMINISTRATION:The British Period, After Independence, The Issues

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Introduction To Public AdministrationMGT111

LESSON 39

DISTRICT ADMINISTRATION

In this lecture and the lectures up to 42, we will discuss administration at the local level and its

responsibilities. At the end of this lecture students will be exposed to the

- Concept of district administration;

Functions of deputy commissioner as the head of district and

Other departments that function at district level.

District Administration

District administration is defined as the cutting edge of the tool of public administration (S S

Khera). By this it is meant that district form the pivot of administration. District administration as a concept

of public administration stems from the dispersal of state authority largely in countries with centralized

administration. It is at the district level that people have a feel of government. Before year 2000, district

administration was a unified organic administrative organization. The district magistrates or deputy

commissioner was responsible for the cooperation and orderly application of all resources. His task was of

five kinds: Revenue, magisterial, judicial, executive and development. The purpose of district

administration was:

Maintain law & order;

Structural arrangement for dispensation of justice;

Assessment and collection of a number of taxes including land revenue, irrigation rates etc;

Maintenance of land records;

Regulatory and control function such as rationing of food, regulation of movement of

commodities or purchase of agriculture produce;

6. Response for immediate action of natural calamities such as flood, disaster etc.

7. Execution of development activities

Background

The district administration has its origin from the Muslim revenue system established by Sher Shah

Suri (1529-45). He divided his empire into 47 divisions or Sarkar, which was subdivided into 113,000

parganas. He established office of revenue at sarkar and parganas. In the broad sense, Deputy Commissioner

was the descendent of Faujdar of Mughal administration (Mughal kings did not change the administrative

structure established by Sher Shah Suri). The Mughal Empire was divided into provinces (subas) and district

(sarkar). The provinces were headed by governor who was responsible for law & order and revenue

collection. The district (sarkar) was subdivided into parganas; which was headed by shiqdar who was

responsible for law & order and general administration. The Mughal had no functionary at the village level,

but Muqaddam use to perform revenue function. He used to collect revenue. Patwari was an accountant,

who uses to keep account of cropped areas, the crops sown and revenue demanded. In the Mughal system

there was separation of judicial and revenue collection functions.

The British largely adopted the administration of Mughal, in the North of sub continent.

The British Period

The evolution of modern district administration system can be traced back to Warren Hasting who

initiated the appointment of full time collector to supervise `zamindar'. Later they were given the dual

authority of revenue collection and judge. And were known as Judge-Magistrates. In 1818 , they were given

policy control of the districts in some provinces. In 1829 Lord William Bentick appointed commissioners of

revenue and circuit. These commissioners supervised the work of Judge-Magistrate and worked as court of

appeals. Between 1831- 1857 the main functions of Collector-cum-District Magistrates (DM) was to collect

revenue and law and order. After 1857 the responsibilities of DM were extended to development, irrigation

functions, hospital, roads, and railways. In 1861 the control of police in the district was given to DM, and

he was to be the head of all government departments in district.

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Introduction To Public AdministrationMGT111

After Independence

After independence the District administration was effective and useful in responding to the

requirements of public and organizing rehabilitation of refugees, settlement of evacuee properties etc. Apart

from the old regulatory functions he was to perform new functions like industrialization, education, health.

In the new situation he had to be more responsive, accessible, responsible and accountable. The functions

to be performed by DM were:

Functions

Executive

Judicial

Revenue

Coordinative functions

1. Executive

Law and order is one of the important functions to be performed by DM. In the executive

functions were included the power to give license, permits etc. He reported to the provincial government

on the political and criminal conditions

2. Judicial functions

Deputy Commissioner works as DM as he supervises the functioning of all executive magistrates.

DM was also performing judicial functions such as judicial inquiries, the trial of cases etc. DM presided over

many courts which deal with preventive laws relating to the breach of peace. In the past all the magistracy

was organized under the DC

3. Revenue

DM was also collector of revenues, like land revenue, water rates etc. the management of land,

accounting of revenue and implementation of reforms.

Land revenue was an important source during British period. The revenue on land, however,

declined after partition.

4. Coordinative

DM also performed coordinative functions in the districts. He was not a technical person but

person who had knowledge and experience of general administration departments like health, education,

irrigation, public work, industry etc. although independent in hierarchy, but their activities were coordinated

by DM.

Miscellaneous

As the head of district DM would organize election, relief and rehabilitation work, protocol duties,

attending functions, meetings etc. He was expected to remain constantly accessible to public

Other Departments at District Level

In addition to the office of DM, there were other important departments that existed. There were:

District and session judge was the highest court of criminal and civil in the district;

Superintendent of police at district level;

District Health officer at district level;

District Education officers at district level

Executive Engineer at district level;

Excise and taxation officer

The Issues

As the size of population increased the demand and pressure of work at the district level increased.

The district though still important from the administrative and development aspect, the office of Deputy

Commissioner (DC) could not come up to the challenge. The reasons were many for the declining

performance of the office of D.C. Some of the reasons for low performance were:

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Introduction To Public AdministrationMGT111

Administrative Reforms 1973 took the constitutional guarantees of civil servants. The

constitutional guarantees provided protection to civil servants against the unnecessary

intervention by the politician. These protections were taken away. This made them

vulnerable to political interference.

The technical vs. generalist debate: There was strong resentment that DC is a generalist, i.e.

does not specialize in any particular field and he coordinates the activities of specialized

department.

Inaccessibility of DC: Because of the pressure of work DC had become inaccessible to

general public.

Too much concentration of power in one individual: The office of DC had too much of

power and this made it inefficient.

Concepts

Executive function:

The responsibility to execute or implement development projects.

Judicial function:

To hear and announce verdict on criminal and civil cases.

Magisterial functions:

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