State and District Administration | Indian Polity for UPSC CSE PDF Download

 Page 1


GOVERNMENT OF INDIA
SECOND ADMINISTRA TIVE REFORMS COMMISSION
FIFTEENTH REPORT
STATE AND DISTRICT ADMINISTRATION
 
APRIL 2009
Page 2


GOVERNMENT OF INDIA
SECOND ADMINISTRA TIVE REFORMS COMMISSION
FIFTEENTH REPORT
STATE AND DISTRICT ADMINISTRATION
 
APRIL 2009
i
Government of India
Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances
Resolution
New Delhi, the 31st August, 2005
No. K-11022/9/2004-RC. — The President is pleased to set up a Commission of Inquiry 
to be called the Second Administrative Reforms Commission (ARC) to prepare a detailed 
blueprint for revamping the public administration system.
2. The Commission will consist of the following :
 (i) Shri V eerappa Moily - Chairperson
 (ii) Shri V. Ramachandran - Member
 (iii) Dr. A.P. Mukherjee - Member
 (iv) Dr. A.H. Kalro - Member
 (v) Dr. Jayaprakash Narayan - Member
 (vi) Smt. Vineeta Rai - Member-Secretary
3. The Commission will suggest measures to achieve a proactive, responsive, accountable, 
sustainable and efficient administration for the country at all levels of the government.
The Commission will, inter alia, consider the following :
(i) Organisational structure of the Government of India
(ii) Ethics in governance
(iii) Refurbishing of Personnel Administration
(iv) Strengthening of Financial Management Systems
(v) Steps to ensure effective administration at the State level
(vi) Steps to ensure effective District Administration
(vii) Local Self-Government/Panchayati Raj Institutions
(viii) Social Capital, T rust and Participative public service delivery
(ix) Citizen-centric administration
(x) Promoting e-governance
(xi) Issues of Federal Polity
(xii) Crisis Management
(xiii) Public Order
Some of the issues to be examined under each head are given in the T erms of Reference attached 
Page 3


GOVERNMENT OF INDIA
SECOND ADMINISTRA TIVE REFORMS COMMISSION
FIFTEENTH REPORT
STATE AND DISTRICT ADMINISTRATION
 
APRIL 2009
i
Government of India
Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances
Resolution
New Delhi, the 31st August, 2005
No. K-11022/9/2004-RC. — The President is pleased to set up a Commission of Inquiry 
to be called the Second Administrative Reforms Commission (ARC) to prepare a detailed 
blueprint for revamping the public administration system.
2. The Commission will consist of the following :
 (i) Shri V eerappa Moily - Chairperson
 (ii) Shri V. Ramachandran - Member
 (iii) Dr. A.P. Mukherjee - Member
 (iv) Dr. A.H. Kalro - Member
 (v) Dr. Jayaprakash Narayan - Member
 (vi) Smt. Vineeta Rai - Member-Secretary
3. The Commission will suggest measures to achieve a proactive, responsive, accountable, 
sustainable and efficient administration for the country at all levels of the government.
The Commission will, inter alia, consider the following :
(i) Organisational structure of the Government of India
(ii) Ethics in governance
(iii) Refurbishing of Personnel Administration
(iv) Strengthening of Financial Management Systems
(v) Steps to ensure effective administration at the State level
(vi) Steps to ensure effective District Administration
(vii) Local Self-Government/Panchayati Raj Institutions
(viii) Social Capital, T rust and Participative public service delivery
(ix) Citizen-centric administration
(x) Promoting e-governance
(xi) Issues of Federal Polity
(xii) Crisis Management
(xiii) Public Order
Some of the issues to be examined under each head are given in the T erms of Reference attached 
ii iii
as a Schedule to this Resolution.
4. The Commission may exclude from its purview the detailed examination of administration 
of Defence, Railways, External Affairs, Security and Intelligence, as also subjects such as 
Centre-State relations, judicial reforms etc. which are already being examined by other bodies. 
The Commission will, however, be free to take the problems of these sectors into account in 
recommending re-organisation of the machinery of the Government or of any of its service 
agencies.
5. The Commission will give due consideration to the need for consultation with the State 
Governments.
6. The Commission will devise its own procedures (including for consultations with the 
State Government as may be considered appropriate by the Commission), and may appoint 
committees, consultants/advisers to assist it. The Commission may take into account the 
existing material and reports available on the subject and consider building upon the same 
rather than attempting to address all the issues ab initio.
7. The Ministries and Departments of the Government of India will furnish such information 
and documents and provide other assistance as may be required by the Commission. The 
Government of India trusts that the State Governments and all others concerned will extend 
their fullest cooperation and assistance to the Commission.
8. The Commission will furnish its report(s) to the Ministry of Personnel, Public Grievances 
& Pensions, Government of India, within one year of its constitution.
Sd/-
(P.I. Suvrathan)
Additional Secretary to Government of India
ORGANISATION
Second Administrative Reforms Commission
 1. Dr. M.V eerappa Moily, Chairman*
 2. Shri V. Ramachandran, Member**
 3. Dr. A.P. Mukherjee, Member
 4. Dr. A.H. Kalro, Member
 5. Dr. Jayaprakash Narayan, Member***
 6. Smt. Vineeta Rai, Member-Secretary
Officers of the Commission
 1. Shri Anil Bhushan Prasad, Additional Secretary
 2. Shri P.S. Kharola, Joint Secretary#
 3. Shri R.K. Singh, PS to Chairman#
 4. Shri Sanjeev Kumar, Director
 5. Shri Shahi Sanjay Kumar, Deputy Secretary
*Dr. M. V eerappa Moily – Chairman, resigned with effect from 1st April, 2009 
(Resolution No.K-11022/26/2007-AR, dated 1st April, 2009)
**Shri V. Ramachandran, was appointed Acting Chairman vide Resolution 
No. K-11022/26/2007-AR, dated 27th April, 2009
***Dr. Jayaprakash Narayan – Member, resigned with effect from 1st September, 2007 (Resolution No.K-
11022/26/2007-AR, dated 17th August, 2007)
# Till 31.03.2009
Page 4


GOVERNMENT OF INDIA
SECOND ADMINISTRA TIVE REFORMS COMMISSION
FIFTEENTH REPORT
STATE AND DISTRICT ADMINISTRATION
 
APRIL 2009
i
Government of India
Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances
Resolution
New Delhi, the 31st August, 2005
No. K-11022/9/2004-RC. — The President is pleased to set up a Commission of Inquiry 
to be called the Second Administrative Reforms Commission (ARC) to prepare a detailed 
blueprint for revamping the public administration system.
2. The Commission will consist of the following :
 (i) Shri V eerappa Moily - Chairperson
 (ii) Shri V. Ramachandran - Member
 (iii) Dr. A.P. Mukherjee - Member
 (iv) Dr. A.H. Kalro - Member
 (v) Dr. Jayaprakash Narayan - Member
 (vi) Smt. Vineeta Rai - Member-Secretary
3. The Commission will suggest measures to achieve a proactive, responsive, accountable, 
sustainable and efficient administration for the country at all levels of the government.
The Commission will, inter alia, consider the following :
(i) Organisational structure of the Government of India
(ii) Ethics in governance
(iii) Refurbishing of Personnel Administration
(iv) Strengthening of Financial Management Systems
(v) Steps to ensure effective administration at the State level
(vi) Steps to ensure effective District Administration
(vii) Local Self-Government/Panchayati Raj Institutions
(viii) Social Capital, T rust and Participative public service delivery
(ix) Citizen-centric administration
(x) Promoting e-governance
(xi) Issues of Federal Polity
(xii) Crisis Management
(xiii) Public Order
Some of the issues to be examined under each head are given in the T erms of Reference attached 
ii iii
as a Schedule to this Resolution.
4. The Commission may exclude from its purview the detailed examination of administration 
of Defence, Railways, External Affairs, Security and Intelligence, as also subjects such as 
Centre-State relations, judicial reforms etc. which are already being examined by other bodies. 
The Commission will, however, be free to take the problems of these sectors into account in 
recommending re-organisation of the machinery of the Government or of any of its service 
agencies.
5. The Commission will give due consideration to the need for consultation with the State 
Governments.
6. The Commission will devise its own procedures (including for consultations with the 
State Government as may be considered appropriate by the Commission), and may appoint 
committees, consultants/advisers to assist it. The Commission may take into account the 
existing material and reports available on the subject and consider building upon the same 
rather than attempting to address all the issues ab initio.
7. The Ministries and Departments of the Government of India will furnish such information 
and documents and provide other assistance as may be required by the Commission. The 
Government of India trusts that the State Governments and all others concerned will extend 
their fullest cooperation and assistance to the Commission.
8. The Commission will furnish its report(s) to the Ministry of Personnel, Public Grievances 
& Pensions, Government of India, within one year of its constitution.
Sd/-
(P.I. Suvrathan)
Additional Secretary to Government of India
ORGANISATION
Second Administrative Reforms Commission
 1. Dr. M.V eerappa Moily, Chairman*
 2. Shri V. Ramachandran, Member**
 3. Dr. A.P. Mukherjee, Member
 4. Dr. A.H. Kalro, Member
 5. Dr. Jayaprakash Narayan, Member***
 6. Smt. Vineeta Rai, Member-Secretary
Officers of the Commission
 1. Shri Anil Bhushan Prasad, Additional Secretary
 2. Shri P.S. Kharola, Joint Secretary#
 3. Shri R.K. Singh, PS to Chairman#
 4. Shri Sanjeev Kumar, Director
 5. Shri Shahi Sanjay Kumar, Deputy Secretary
*Dr. M. V eerappa Moily – Chairman, resigned with effect from 1st April, 2009 
(Resolution No.K-11022/26/2007-AR, dated 1st April, 2009)
**Shri V. Ramachandran, was appointed Acting Chairman vide Resolution 
No. K-11022/26/2007-AR, dated 27th April, 2009
***Dr. Jayaprakash Narayan – Member, resigned with effect from 1st September, 2007 (Resolution No.K-
11022/26/2007-AR, dated 17th August, 2007)
# Till 31.03.2009
iv v
CONTENTS
Chapter 1 Introduction 1
Chapter 2 State Administration 5
 2.1 Introduction 5
 2.2 Relevant Recommendations of the Commission in its
  Earlier Reports 6
 2.3 Restructuring State Governments 21
 2.4 Refurbishing State Civil Services 35
 2.5 State Public Service Commission 52
Chapter 3 District Administration 59
 3.1 Introduction 59
 3.2 The Institution of District Collector / Deputy Commissioner 60
 3.3 Functional and Structural Reforms 86
Chapter 4 Administration of the Union T erritories  93
 4.1 Evolution of States and Union T erritories 93
 4.2 The National Capital T erritory of Delhi 98
 4.3 Chandigarh 140
 4.4 Puducherry 145
 4.5 Andaman and Nicobar Islands 151
 4.6 Lakshadweep 160
 4.7 Daman and Diu and Dadra & Nagar Haveli 164
Chapter 5 Governance Issues in the North-Eastern States 171
 5.1 Introduction 171
 5.2 Natural Resources and Constraints 177
 5.3 Ethnic Conflicts in Places, Manifesting as T erritorial  180 
  Conflict and Violance (Problem of Insurgency and Law  
  and Order) 
 5.4 Provisions of the Sixth Schedule of the Constitution 184
  with respect to Assam, Meghalaya, T ripura and Mizoram 
Page 5


GOVERNMENT OF INDIA
SECOND ADMINISTRA TIVE REFORMS COMMISSION
FIFTEENTH REPORT
STATE AND DISTRICT ADMINISTRATION
 
APRIL 2009
i
Government of India
Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances
Resolution
New Delhi, the 31st August, 2005
No. K-11022/9/2004-RC. — The President is pleased to set up a Commission of Inquiry 
to be called the Second Administrative Reforms Commission (ARC) to prepare a detailed 
blueprint for revamping the public administration system.
2. The Commission will consist of the following :
 (i) Shri V eerappa Moily - Chairperson
 (ii) Shri V. Ramachandran - Member
 (iii) Dr. A.P. Mukherjee - Member
 (iv) Dr. A.H. Kalro - Member
 (v) Dr. Jayaprakash Narayan - Member
 (vi) Smt. Vineeta Rai - Member-Secretary
3. The Commission will suggest measures to achieve a proactive, responsive, accountable, 
sustainable and efficient administration for the country at all levels of the government.
The Commission will, inter alia, consider the following :
(i) Organisational structure of the Government of India
(ii) Ethics in governance
(iii) Refurbishing of Personnel Administration
(iv) Strengthening of Financial Management Systems
(v) Steps to ensure effective administration at the State level
(vi) Steps to ensure effective District Administration
(vii) Local Self-Government/Panchayati Raj Institutions
(viii) Social Capital, T rust and Participative public service delivery
(ix) Citizen-centric administration
(x) Promoting e-governance
(xi) Issues of Federal Polity
(xii) Crisis Management
(xiii) Public Order
Some of the issues to be examined under each head are given in the T erms of Reference attached 
ii iii
as a Schedule to this Resolution.
4. The Commission may exclude from its purview the detailed examination of administration 
of Defence, Railways, External Affairs, Security and Intelligence, as also subjects such as 
Centre-State relations, judicial reforms etc. which are already being examined by other bodies. 
The Commission will, however, be free to take the problems of these sectors into account in 
recommending re-organisation of the machinery of the Government or of any of its service 
agencies.
5. The Commission will give due consideration to the need for consultation with the State 
Governments.
6. The Commission will devise its own procedures (including for consultations with the 
State Government as may be considered appropriate by the Commission), and may appoint 
committees, consultants/advisers to assist it. The Commission may take into account the 
existing material and reports available on the subject and consider building upon the same 
rather than attempting to address all the issues ab initio.
7. The Ministries and Departments of the Government of India will furnish such information 
and documents and provide other assistance as may be required by the Commission. The 
Government of India trusts that the State Governments and all others concerned will extend 
their fullest cooperation and assistance to the Commission.
8. The Commission will furnish its report(s) to the Ministry of Personnel, Public Grievances 
& Pensions, Government of India, within one year of its constitution.
Sd/-
(P.I. Suvrathan)
Additional Secretary to Government of India
ORGANISATION
Second Administrative Reforms Commission
 1. Dr. M.V eerappa Moily, Chairman*
 2. Shri V. Ramachandran, Member**
 3. Dr. A.P. Mukherjee, Member
 4. Dr. A.H. Kalro, Member
 5. Dr. Jayaprakash Narayan, Member***
 6. Smt. Vineeta Rai, Member-Secretary
Officers of the Commission
 1. Shri Anil Bhushan Prasad, Additional Secretary
 2. Shri P.S. Kharola, Joint Secretary#
 3. Shri R.K. Singh, PS to Chairman#
 4. Shri Sanjeev Kumar, Director
 5. Shri Shahi Sanjay Kumar, Deputy Secretary
*Dr. M. V eerappa Moily – Chairman, resigned with effect from 1st April, 2009 
(Resolution No.K-11022/26/2007-AR, dated 1st April, 2009)
**Shri V. Ramachandran, was appointed Acting Chairman vide Resolution 
No. K-11022/26/2007-AR, dated 27th April, 2009
***Dr. Jayaprakash Narayan – Member, resigned with effect from 1st September, 2007 (Resolution No.K-
11022/26/2007-AR, dated 17th August, 2007)
# Till 31.03.2009
iv v
CONTENTS
Chapter 1 Introduction 1
Chapter 2 State Administration 5
 2.1 Introduction 5
 2.2 Relevant Recommendations of the Commission in its
  Earlier Reports 6
 2.3 Restructuring State Governments 21
 2.4 Refurbishing State Civil Services 35
 2.5 State Public Service Commission 52
Chapter 3 District Administration 59
 3.1 Introduction 59
 3.2 The Institution of District Collector / Deputy Commissioner 60
 3.3 Functional and Structural Reforms 86
Chapter 4 Administration of the Union T erritories  93
 4.1 Evolution of States and Union T erritories 93
 4.2 The National Capital T erritory of Delhi 98
 4.3 Chandigarh 140
 4.4 Puducherry 145
 4.5 Andaman and Nicobar Islands 151
 4.6 Lakshadweep 160
 4.7 Daman and Diu and Dadra & Nagar Haveli 164
Chapter 5 Governance Issues in the North-Eastern States 171
 5.1 Introduction 171
 5.2 Natural Resources and Constraints 177
 5.3 Ethnic Conflicts in Places, Manifesting as T erritorial  180 
  Conflict and Violance (Problem of Insurgency and Law  
  and Order) 
 5.4 Provisions of the Sixth Schedule of the Constitution 184
  with respect to Assam, Meghalaya, T ripura and Mizoram 
vi vii
 5.5 Adhoc T ransfer of Subjects/Activities 188
  to the Autonomous Councils  
 5.6 Predominance of non-elected Customary Heads/Bodies  190
  at the Village Level; Issue of Village Self Governance in 
  the Sixth Schedule Areas 
 5.7 Absence of linkage between the Sixth Schedule and  192
  the 73rd Amendment 
 5.8 Special powers of the Governors of Assam, Meghalaya,  193
  T ripura and Mizoram with Respect to 
  Schedule Sixth Areas 
 5.9 Special provisions in the Constitution under  207
  Articles 371A, 371B, 371C, 371F, 371G & 371H 
  applicable to North-Eastern States 
 5.10 Special Autonomous Councils created by State Enactments  209
  (in Assam and Manipur)
 5.11 Issues of T ribal Areas lying outside the Sixth Schedule 209
 5.12 Personnel Management and Capacity Building of 211  
  Administration
 5.13 Issues of Recruitment in the Sixth Schedule Areas 215
 5.14 Regional Institutes 216
 5.15 State Specific Issues 218
  5.15.1 Assam 219
  5.15.2 Arunachal Pradesh 232
  5.15.3 Manipur 235
  5.15.4 Meghalaya 244
  5.15.5 Mizoram 252
  5.15.6 Nagaland 258
  5.15.7 Sikkim 264
  5.15.8 T ripura 266
Chapter 6 Managing State Finances 272
 Conclusion 283
 Summary of Recommendations 284
LIST OF TABLES
T able No. Title
2.1 Strength of the Legislative Assembly of various States 23
2.2 Composition of the Public Service Commissions 56
3.1 Functions of the District Collector/Deputy Commissioner 65
3.2 Function of the Revenue Department in Andhra Pradesh  73
4.1 State set-up at the Commencement of the Constitution 93
4.2 Statistical Details regarding the Union T erritories  96
4.3 Statistical Details regarding the Union T erritories 96
4.4 Recommendations of V arious Committees on Governing Issues 107
 of the NCT of Delhi 
4.5 T erms and Mode of Election of Mayors in V arious States 112
4.6 Suggestion of the Balakrishnan Committee 115
4.7 Suggestion of the Virendra Prakash Committee 116
4.8 Proposal of Delhi Government Regarding  117
 Splitting up of the MCD 
4.9 Demand No. 55 – Demand for Grants-Budget 2008-09  134
4.10 NCR Limits 136
4.11 Composition of the NCR Planning Board 136
4.12 Proposed Financial Delegation in respect of Chandigarh 143
4.13 Proposed Financial Delegation in respect of 149
 Puducherry Administration