Changing Role of the Collector | Public Administration Optional for UPSC (Notes) PDF Download

Introduction

• Annadata: Referring to the Collector as a provider or benefactor. 
• Captain of the team: Highlighting leadership and coordination. 
• Eyes and ears of Government: Emphasizing the Collector’s role in monitoring and reporting. 
• Kingpin of administration: Indicating centrality in governance. 
• Friend, philosopher, and guide:. more recent, benevolent characterization. 
• Adviser, educator, and helper: Reflecting the supportive role of the Collector. 
• Fulcrum of grassroots democracy: Highlighting the role in local governance. 
• Mainspring of development: Indicating the role in driving development. 

 Despite the changes since independence, the Collector remains a key figure at the district level and an essential functionary of the State Government. This unit focuses on the role of the District Collector in district administration and the constraints that hinder their performance. 

Functions of the Collector 

Broad Functions of the Collector:

1. Revenue Administration:

•  The Collector was originally appointed as a revenue officer and continues to be the principal Revenue Officer and Head of Revenue Administration in the district. 
•  While revenue administration has become less central since independence, the Collector still oversees revenue functions, including land reforms and custody of government lands. 
•  The Collector is assisted by officers like the Additional Collector or Joint Collector in these duties. 
•  The Collector also serves as the officer-in-charge under the State Excise Act. 

2. Disaster Management:

•  The Collector chairs the District Disaster Management Committee, responsible for planning disaster mitigation and providing immediate and long-term assistance to affected individuals and areas. 
•  During emergencies such as floods, the Collector plays a pivotal role in coordinating relief operations. 
•  Government decisions regarding relief amounts and distribution are often based on the Collector's assessments. 

3. Law and Order Maintenance:

•  As the District Magistrate, the Collector is responsible for maintaining law and order in the district. 
•  Following the separation of the judiciary from the executive, the Collector's role is limited to preventive sections of the Criminal Procedure Code. 
•  The Collector has the authority to issue custody and detention warrants under special anti-crime and security laws, such as the National Security Act. 
•  The Superintendent of Police, who heads the police force in the district, assists the Collector in police functions and takes orders from the Collector in important matters. 
•  Under the Bihar Police Act 2007, the Collector chairs the District Accountability Authority, which monitors departmental inquiries and complaints against junior police officers. 

4. Head of District Administration:

•  The Collector continues to be the Head of District Administration, responsible for coordinating various departments such as Revenue, Police, Rural Development, Panchayati Raj, and Social Welfare. 
•  The Collector has the power to suspend resolutions of local bodies that threaten public peace and heads several official and non-official bodies in the district. 
•  The Collector also exercises supervision over the District National Informatics Centre (NIC). 

5. Government Representative and Protocol Functions:

•  The Collector is seen as the representative of the government at the district level, hoisting the national flag on Independence and Republic Days. 
•  The Collector performs various protocol functions, such as meeting with ministers and important dignitaries. 
•  In emergencies, the Collector can direct any branch of the District Administration to undertake specific tasks. 
•  The Collector is involved in conducting the census and elections for various democratic bodies, from the Parliament to the Gram Panchayat. 
•  In some districts, the Collector acts as an agent of the Governor concerning scheduled tribe areas. 

6. Public Distribution System and Essential Commodities:

•  The Collector plays a direct role in the functioning of the Food and Civil Supplies Department, overseeing the Public Distribution System (PDS) and enforcing the Essential Commodities Act and related rules. 
•  The Collector is responsible for ensuring timely and equitable distribution of scarce commodities through the PDS. 

7. Presiding over Meetings and Committees:

•  The Collector presides over numerous meetings, including those related to Agriculture, Animal Husbandry, Veterinary, Handlooms, Irrigation, and Industries departments. 
• These meetings provide valuable insights into how policies are implemented and help the Collector understand local issues and problems.

• Revenue Administration: Manages land reforms and oversees revenue matters, including the management of government lands. This role is supported by an Additional Collector or Joint Collector. Also acts as the officer responsible under the State Excise Act. 
• Executive Magistracy and Maintenance of Law and Order: Functions as the Magistrate for the district, carrying out duties under different parts of the Criminal Procedure Code (Cr.PC). Responsible for overall law enforcement and security within the district. Has the power to issue custody or detention orders under specific anti-crime laws. 
• Licensing and Regulatory Authority: Acts as the authority for issuing licenses and regulating under various special laws such as the Arms Act and the Cinematography Act. 
• Disaster Management: The branch that manages disaster relief and recovery directly oversees all disaster management tasks. 
• Elections: Serves as the District Election Officer for elections at the national, state, and local levels. 
• Food and Civil Supplies: Responsible for the implementation of the Public Distribution System and ensures compliance with the Essential Commodities Act along with its related rules and regulations. 
• Welfare: Plays a vital role in carrying out welfare programs, such as pensions for the elderly and those with disabilities, either by direct management or oversight. 
• Census: Acts as the main Census Officer during census activities. 
• Coordination: Facilitates cooperation among various agencies and departments at the district level. 
• Economic Development (Agriculture, Irrigation, Industry, etc.): Leads meetings for committees related to agriculture, animal husbandry, irrigation, and other industrial sectors. Reviews and coordinates activities across these departments. 
• Human Resource Development: Often serves as the Chairman or Co-Chairman in committees focused on primary education at the district level. 
• Rural Development: In some states, remains the key authority for certain rural programs and is designated as the District Programme Coordinator under the National Rural Employment Guarantee Act in some regions. 
• Local Self Government (PRIs/ULBs): The responsibilities and powers over local self-governments vary among states, including actions like suspension and resolution. 
• Preparation of Development Plan: Works with various departments and agencies to coordinate the execution of development projects, even though planning tasks are assigned to other bodies. 
• Information Technology: Oversees the operations of the District National Informatics Centre (NIC). 

Collector and Panchayati Raj Institutions 

After India gained independence, the role of the District Collector evolved significantly. The Collector became responsible for implementing various development programs in the district and coordinating these efforts as an administrator.

Role of Collector in Development Administration:

• The Collector's role in development administration is particularly evident in their work with Panchayati Raj Institutions (PRIs).
• The introduction of PRIs in India brought about substantial changes in district administration, especially regarding the functions of the District Collector.
• Different states established various linkages between the Collector and PRIs, reflecting the unique administrative needs and structures of each state.

Variations Across States:

• In Rajasthan, the Collector became an associate member of the Zila Parishad without voting rights.
• In Andhra Pradesh, initially, the Collector was a full-time member of the Zila Parishad and chairperson of all standing committees, though this relationship changed over time.
• In Maharashtra, the Collector was excluded from the Zila Parishad.

Powers and Responsibilities:

• The Collector's responsibilities include writing confidential reports, inflicting various punishments, and suspending resolutions of Panchayati Raj Institutions.
• The extent of these powers varies by state.
• The relationship between the Collector and PRIs allows the Collector to work closely with people’s representatives, gaining insights into the dynamics of development administration at the district level.

Impact of the 73rd Constitutional Amendment:

• The 73rd Constitutional Amendment significantly transformed the relationship between the District Collector and PRIs.
• It reduced the Collector's burden regarding development activities and allowed state governments to define the relationship between PRIs and the Collector.
• Some states created new positions, such as Chief Executive Officer, District Development Officer, or Deputy Commissioner, to oversee these functions.
• In Tamil Nadu, the District Collector serves as the overall controlling authority for Panchayati Raj institutions, assisted by the Project Director of the District Rural Development Agency (DRDA).
• In states like Haryana, the District Collector (Deputy Commissioner) in Gurugram chairs the DRDA. In Kerala, Madhya Pradesh, and Maharashtra, the Collector serves as the Secretary of the District Planning Committee.

Bureaucracy and Decentralized Governance:

• A study by the Task Force on Panchayati Raj found that, except for a few states like Kerala and West Bengal, bureaucracy remains a dominant force in decentralized governance.
• In Andhra Pradesh, the Collector has direct control over Gram Panchayats; in Orissa, the Collector serves as the Chief Executive Officer of the Zila Parishad; and in Maharashtra, the Collector's role is more limited.

Overall, the relationship between the District Collector and Panchayati Raj Institutions varies significantly across states, reflecting different administrative practices and the impact of constitutional reforms.

Administrative Support

• The Collector is supported by various officers at different levels, including two or three senior officers of Joint or Additional Collector rank who oversee revenue, law and order, and developmental functions.
• Deputy Collectors assist the Collector in the Collectorate, handling functions such as revenue, law, relief, and establishment duties.
• District technical officers, like the District Agricultural Officer and District Educational Officer, usually work under the Collector's supervision, except in some states where they collaborate with the Zila Parishad.
• The District is divided into Sub-Divisions, each headed by a Sub-Divisional Officer (also known as Revenue Divisional Officers in some states).
• The Collector guides and leads the Joint Collectors and Sub-Divisional Officers, ensuring effective administration.
• At the taluka and block levels, Tahsildars and Block Development Officers are responsible for revenue and development functions, respectively, and are in regular contact with the public.
• Subject matter specialists at the block level initiate and implement specific programs under the Collector's supervision.
• The Collector monitors program implementation and provides guidance to field officers through visits, inspections, and review meetings.
• During village visits, the Collector listens to citizens' complaints about issues such as drinking water, irrigation, roads, housing, essential commodities, and officer misconduct.
• These visits help the Collector assess district problems and initiate solutions, fostering a personal connection to the administrative system.
• An essential role of the Collector is to coordinate between different departments in the district, acting as a development catalyst.
• Depending on the state, district-level officers may be under the Collector's control or operate independently.
• As the highest district functionary, the government relies on the Collector for guidance and direction to other officers.

Constraints Faced by Collectors

• Role of the Collector. The Collector plays a crucial role in both regulatory and development functions within district administration. However, they face several constraints that hinder their performance.
• Frequent Transfers. Collectors often experience frequent transfers, which prevent them from understanding the local environment and building necessary relationships. Studies indicate that frequent transfers, sometimes as short as four months, negatively impact their ability to address district issues effectively. A policy of retaining officers for three to five years is ideal but not commonly practiced.
• Workload. The workload for Collectors is increasing, adding to the challenges they face in performing their duties.
• Political Pressures. Collectors encounter political pressures that can compromise their integrity. These pressures often relate to land acquisition, license issuance, and other sensitive matters. Succumbing to such pressures can lead to accusations of partisanship, while resisting them can result in political backlash and even transfer.
• Protocol Duties. Collectors are required to adhere to protocol duties, such as receiving and meeting with visiting dignitaries. This can interrupt their work and add to their burden.
• Law and Order Responsibilities. Although responsible for maintaining law and order, the Collector's role in this area is often indirect, with the Superintendent of Police handling day-to-day functions. However, public complaints about police partisanship can lead to increased scrutiny of the Collector's role. The relationship between Collectors and police is delicate, with potential for strain, especially in areas of increasing rural unrest.
• Crisis Management. Collectors are also responsible for crisis management, including communal disturbances, natural disasters, and other emergencies. These crises require immediate attention and can detract from developmental functions.
• Individual Priorities. Collectors may prioritize certain areas of work based on personal preference, such as welfare of weaker sections, health activities, or specific programmes. This focus can lead to neglect of other important functions and constrain overall performance.

To navigate these challenges, District Collectors can:

• Build cordial relationships with political leaders
• Manage their time effectively
• Delegate tasks to subordinates
• Use political executives to facilitate development administration
• View political interactions as opportunities rather than interference

Role of District Collector: Way Forward

• District Government can be empowered while fully utilising the institutional strength of the District Collector. Further, it has been observed that the 73rd and 74th Constitutional Amendments (1992) have empowered the rural and urban local bodies to function effectively.
• As per the new administrative and development environment, the PRIs/ULBs are the third-tier of government; they do not totally remove the Collector’s responsibility in matters of local development.
• Even, declining significance of land revenue has also not lessened the importance of the District Collector in management of land records, maintenance of law and order and general administration; and as an effective grievance redressal authority.
• The Second Administrative Reforms Commission has expressed, “These have remained and will remain central and core areas of State activities at the district level even when there is full fructification of local self-government.”
• Thus, it is evident that the District Collector will continue to be responsible for a multiplicity of tasks at the district level like improving human capabilities, improving economic opportunities for marginalised sections of society, creating physical infrastructure and facing challenges posed by disasters in her/his jurisdiction.
• S/he will have a new role in the District Administration, that is, role of a coordinator, facilitator and a person who is responsible for inter-sectoral coordination of various activities of the grassroots administration.
• S/he would provide overall leadership in the district in the task of nation building. Hence, it is evident that the Collector would remain a key figure in the scheme of administration at the field level.
• The performance of Collector depends upon her/his own inclination and orientation towards the development goals. It also depends on her/his capacity to make use of the environment in the district positively and constructively to undertake her/his functions.
• To overcome constraints and perform effectively, just to quote an example, Lakhina experiment has presented best solution, which is still relevant.
• Need for administrative efficiency and also responsiveness to the community led Mr. Anil Kumar Lakhina, a District Collector, to undertake an exercise to reform district administration.
• The exercise was done in the Collectorate of Ahmednagar in Satara district of Maharashtra. Some of the changes brought about in the District Administration includes regulation of visitors to the Collectorate; designing the office as per task sequence, making documents available to those who handle them; preparation of desk manuals, weeding out documents, which had outlived their usefulness, provision of dust proof and fire fighting equipment; motivation and training etc.
• This experiment revolved around the assumption that attitudinal changes in the administrator can result in effective administration. It sought to link attitudinal changes with physical work environment.
• The experiment was undertaken in only one district and possibility of its adoption elsewhere will also bring positive results. But the Lakhina experiment is a pointer that structural changes coupled with attitudinal changes and the “will” to adopt reforms can bring efficiency in district administration.
• What is true of the Collectorate is equally true of other administrative organs at the district level.
•  The way forward has been shown by the Government of Himachal Pradesh, that is, by devising the District Good Governance Index (DDGI) to rank the performance of districts on 7 vital themes, 18 focus subjects and 45 indicators to identify and plug performance gaps in vital areas (Essential Infrastructure; Support to Human Development; Social Protection; Women and Children; Crime, Law and Order; Environment; and Transparency & Accountability). 
•  In this context, Bilaspur district ranked first in 2019. It is a best practice that needs to be followed by other states to add immense value to decision-making especially in allocation of resources; and in design of policies and programmes for development and balanced growth, equity and sustainability. 

Conclusion

In the past, the District Collector was primarily responsible for land revenue, maintaining law and order, and other regulatory functions. However, in independent India, with the adoption of a socialistic approach and a focus on development, the role of Collectors in most states evolved into that of development functionaries and change agents.

• This unit has explored the evolution of the Office of District Collector and detailed the various roles and functions of the District Collector, including their responsibilities in Revenue Administration, Police Administration, and District Administration, as well as their role as a representative of the government. The close relationship between District Collectors and development institutions like Panchayati Raj has also been highlighted. 
• However, following the 73rd and 74th Constitutional Amendments, the role of the Collector in development administration has undergone changes. Despite this, the District Collector remains a central figure in District Administration. 
• The unit also discusses the various problems and constraints faced by Collectors, such as heavy workloads, frequent transfers, and political interference. To overcome these challenges, Collectors are encouraged to improve their relationships with different functionaries, political leaders, and citizens, as well as enhance their work environment. In the next unit, we will focus on Panchayati Raj Institutions.