PART

II

Roles, Responsibilities and Functions of District Collectors

in
Madhya Pradesh









A Study by
Atal Bihari Vajpayee Institute of Good Governance and Policy Analysis

Table of Contents

Introduction ............................................................................................................ 4
Roles and Functions of District Collectors .............................................................. 7
Revenue Functions ................................................................................................................... 7
Judicial and Regulatory Functions ........................................................................................... 8
Development Functions ........................................................................................................... 9
Residual Functions ................................................................................................................. 10
Time Devoted to Various Roles and Activities ..................................................... 22
Collectors Working Hours ..................................................................................................... 22
Activity-wise Breakup of Collectors Responsibilities ........................................................... 24
Collectors Preferences for Work .......................................................................................... 24
Challenges faced by Collectors .............................................................................................. 25
Collectors Responses to Challenges ..................................................................................... 26
Major Findings ...................................................................................................... 29
Recommendations ................................................................................................ 32
References ............................................................................................................ 43

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List of figures

Figure 1:Collectors' perception of their working hours ......................................................... 23
Figure 2: Collectors' working hours per month from time log ............................................... 24
Figure 3: Most time consuming activities .............................................................................. 24
Figure 4: Collectors' priorites ................................................................................................. 25
Figure 5: Work management .................................................................................................. 27
Figure 6: Possible delegation avenues ................................................................................... 28


List of Tables

Table 1: Statutory powers of District Collectors ...................................................................... 12
Table 2: Main challenges faced by Collectors .......................................................................... 26
Table 3: Committees and whom to be delegated ................................................................... 33

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 Introduction
The office of the District Collector and Magistrate is the lynchpin of district administration in
India. They are the face of the government at the last mile. It is through their office that
government schemes are administered to the public, law and order maintained at the
district level, and public grievances addressed. Their office is the conduit of vertical and
horizontal accountability for the administration. The institution of the Collector has been
considered indispensable in achieving coordination among various departments, agencies
(including NGOs), officials etc. The Collector is considered as the key functionary, best
equipped to bring about synergy in the whole gamut of district administration. As the
number of activities, institutions and departments involved in rural development have
increased, the coordinating and synthesizing role of the Collector in the development efforts
of the government has proliferated and assumed greater importance.

Given this scenario, for some years now reforms have focused on streamlining activities at
the districts to most effectively use the office of the Collector and ensure good governance.
These reforms have included decentralisation of administration and planning especially in
decision making; simplification of rules, regulation and procedures; accountability of
officials to the elected representatives; transparency and expediency in administration
through technical innovations and effective machinery for redressal of grievances
concerning public affairs, to name a few.

With the creation of Panchayati Raj via the 73rd Constitutional Amendment Act 1992, there
has been general debate to downsize or even de-link the Collectors function in
development administration. This de-emphasis on the Collectors development roles has
taken place to varying degrees across the country. In the case of Karnataka, the Collector is
outside the system of elected local governments but the Chief Executive Officer of the Zilla
Parishad is a bureaucrat. In West Bengal, the Collector is the Member Secretary of the
District Planning Committee (DPC) with the Chairman of the Zilla Parishad serving as the
Chairman of the DPC. In Gujarat, both the Collector and the Chairman of the District
Panchayat are Co-vice Chairmen of the District Panchayat Board. Each State has evolved its
own administrative arrangements to make democratic decentralisation and good
governance functional on the ground.

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Various reform Commissions have examined the issue of whether there is any need to
retain the office of the District Collector in its present form. One view holds that the acme of
empowerment of Panchayati Raj Institutions (PRIs) or Urban Local Bodies (ULBs) in the
districts would be to gradually fade the institution of the District Collector and pare it down
to its essential role as a land revenue functionary, responsible to the local bodies. This view
is based on the fact that power through various schemes, committees and structural
arrangements continues to be vested in the Collector presenting him as a counter-point to
public representatives, thereby disabling the latters growth. The opposing view highlights
the historical and evolutionary nature of the Collectors institution and cautions against its
hasty demolition in the face of still nascent PRI.

Suggestions set forth by theoretically oriented analysts that regulatory and development
administration be separated at the district level, with the Collector looking after regulatory
and general administration and another officer of similar status looking after development
administration (some have proposed this second district officer could be placed within the
Panchayati Raj set up, while others have suggested that he/she be jointly responsible to
State Government and to the Zila Parishad) have not proved practical. In actual practice,
regulatory administration and development administration have remained intertwined and
co-dependent. Proper management of land and land records, provision of unencumbered
land for various developmental purposes, provision of civil supplies, maintenance of law and
order, maintenance and provision of civic (municipal or municipal type) amenities, and the
regulation of trade, industry, business, and building bye-laws, etc. all of which are
considered part of regulatory administration are necessary for and feed into developmental
activities. Similarly if development lags behind it can lead to protests and civil unrest, thus
adversely affecting both regulatory activities and future development. Over the years, it has
been found that both the regulatory and the developmental administration need to be
coordinated and that the Collector has proved to be best placed to ensure coordination of
all governmental regulatory and developmental efforts in the district. In fact the powers and
authority or conventional coordinating role that a Collector enjoys in one sphere of activity
very often enhances his capabilities for coordination in another sphere of activity.

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However, there has been a general consensus that with the gradual evolution of PRIs and
ULBs, and various measures of administrative reforms aimed at deconcentration of powers,
and delegation of responsibilities there is a need to realign the functions of the District
Collector so that he concentrates on the core functions such as land and revenue
administration, maintenance of law and order, disaster management, public distribution
and civil supplies, excise, elections, transport, census, protocol, general administration,
treasury management and coordination with various agencies and departments. To this end
this study has captured the present functions and roles of District Collectors in Madhya
Pradesh and made recommendations about the various activities they can delegate.

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 Roles and Functions of District Collectors
Collectors primarily draw their powers from acts and schemes both central and state level.
They have formally been accorded a role in over 76 important national and sub-national
legislations, and 129 key central and state government schemes and programmes.
Additionally, they also derive their functionality from their roles in various departmental
committees.

The Collector exercises several functions and powers under a large number of Union and
State laws on a diverse range of subjects such as those dealing with land acquisition,
tenancy of land, abolition of debt bondage, money lending, manufacture and sale of liquor
and opium, settlement in forests, distribution of essential commodities, arms and
explosives, encroachment on government land, granting license for minor minerals, conduct
of exams, recovery of public demands, grant of homestead, workmen compensation and
regulation of sarais and inns. Whilst upon first look these activities may look discrete and
disconnected, upon closer inspection they appear to have certain common threads tying
them together. Broadly the functions of Collectors may be divided as: revenue, judicial and
regulatory, development and residual.

Revenue Functions

The Land Revenue Code, 1959 defines that the Collector is the principal Revenue Officer of a
district and the head of the revenue administration. His foremost task in this capacity is the
assessment and collection of land revenue for the government. Various important land
related statues (such as the Right to Fair Compensation and Transparency in Land
Acquisition, Rehabilitation and Resettlement Act, 2013) empower him to responsibly attend
to all land related matters such as survey, allotment, acquisition, relief, rehabilitation and
grievance redressal related to claims on land and compensation.

In addition to this, different types of taxes such as irrigation dues, income tax dues,
agricultural dues, canal dues, sales tax, arrears, court fees, stamp duties, etc. are collected
by his office. The Collector is also responsible for assessing the amount of relief required in
case of calamities as the Chairperson of the Disaster Management Committee. He also
undertakes the sanctioning and execution of relief work.

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Land acquisition for various government purposes, creation and maintenance of land
records as well as determining right of water supply is another important function carried
out by the Collector in his revenue capacity. The District Treasury comes under his control
and officers attached to it function under his supervision.

All land records (Record of Rights) related activity, their maintenance, updating, survey and
settlement, consolidation of land holdings, registration of transfer of property, dispute
resolution and revenue court work, both for urban and rural areas is often considered
amongst the primary duties of the District Collector.

Judicial and Regulatory Functions

Maintenance of law and order and public safety in the district is the primary function of the
District Magistrate as defined in the Criminal Procedures Code. The Collector monitors
problems arising out of social and political tensions, communal disharmony, caste,
terrorism, smuggling and economic offences which may threaten a districts peace and
security. As opposed to a Judicial Magistrate, whose role is to adjudicate on matters related
to a potential crime already committed, the District Magistrates role is to take preventive
action for the maintenance of law and order in the District in close co-ordination with and
support of the Police machinery in the district. Several legislations such as The Madhya
Pradesh Rajya Suraksha Adhiniyam, 1990 empower him appropriately in this regard.

Officers interviewed highlighted that there has been an erosion in the authority of the
District Magistrate, due to the separation of Judiciary from the Executive Magistracy.
Notwithstanding, the District Magistrate is a First Class Magistrate and carries many powers
for detention, parole, curfew imposition, and hearing appeals. The jails in the district are
also under the general control of the District Magistrate further highlighting the important
role played by him in the criminal-justice administration of the District.

Over and above these judicial and quasi-judicial functions, the Collector also has a very
important role as regulator. He has to maintain control, regulation and distribution of food
and civil supplies and essential commodities, as well as regulate matters related to excise
and prohibition such as by serving as a Registrar of Trusts under the Madhya Pradesh Public
Trusts Act, 1951 , and Licensing Authority under the Madhya Pradesh Cinemas (Regulation)
Act, 1952.

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Development Functions

The Collector has a plethora of development responsibilities. These include, but are not
limited to, formal roles in 129 state and national level schemes. Additionally, collectors also
serve as Chairperson, Secretary or Member in over 82 district level committees which
require regular meetings.

In Madhya Pradesh, the District Collector as the head of the government at the district level,
is responsible for a diverse portfolio of functions ranging from delivery of essential services,
land revenue administration, execution of rural development programmes, disaster
management, maintenance of law and order and collection of excise and transport revenue.
All these discrete functions form the bedrock of the comprehensive development
administration. As such, effectively all the instruments of the State Government that
operate at the local levels do so in conjunction with the Collectors office either formally or
informally. To facilitate this coordination and alignment structurally diverse arrangements
have been built up over time. The relationships and reporting structures of these
arrangements range from the Collectors undertaking broad oversight/supervision of the
activities undertaken by line departments- to specific day-today management of some
services. In recent years, the line departments have become more independent yet these
structures persist. Committees are a key instrument for planning, coordination, and
supervision in this system.

However departmental committees are not the only ones placing demands on a Collectors
time. There may be other important organizations functioning in the district such as the Red
Cross Society, a Degree College or Sports Associations, Parastatals and Special Purpose
Vehicles which may have attendant committees headed by the Collector. Furthermore, the
Collector is also frequently appointed as the Chairman of a Committee to manage a major
trust/endowment or religious site located in the district. Thus, in addition to their routine
statutory duties discussed in the previous chapter a Collector spends considerable time and
energy being accountable for these various committees.

A legacy of Collector-centric statuettes and governance style ensures that they have the
overall responsibility of every important official activity in the district whether it is related to
law and order or development. All important activities and events are notified to the office

9
of the Collector. Being the highest administrative authority in a district Collectors are tasked
with ensuring coordination between line-departments, parastatals, private parties and
other agencies, giving them suggestions, removing bottlenecks and raising funds for
implementation where required. They are also responsible for coordination with the
political brass of the district and keeping the state updated on progress via reports and
video conferences. The weekly Time Limit meetings have evolved into an important
instrument to help the Collectors perform this coordinating and supervisory role. Regularly
holding Jan Sunwais and touring the district, for speedily attending to the grievances of
people and identifying structural problems in the administration, is another important
development functions of the Collectors.

In Madhya Pradesh, since the institution of the three tier Panchayati Raj system there have
been attempts to assign several powers of the District Collector to the Panchayats,
particularly the Zila Panchayats. Nevertheless, the Collector continues to have a role of
primacy in the development of a district. Many development schemes specify the District
Collector as the Chairperson/President responsible for deciding fund allocation and
implementation to be assisted by the officers of the Panchayat. Furthermore, Collectors are
also expected to check the absenteeism of grassroots staff of various departments posted in
rural areas, and also to be associated with physical verifications of various departmental
activities in the field. In the event of any irregularity the Collector is finally held accountable.

It is also important to note that Collectors regulatory and revenue functions are intricately
interwoven with the development and welfare of the district. For instance, many
departments prescribe a large number of certificates like those of bonafide residence, or
income, or about belonging to a certain caste, which the revenue or district administration
under the Collector have to prepare for the citizens to be able to access various benefits of
various Government schemes. Collectors have to ensure that his field level subordinates like
Patwari and Tehsildar provide such certificates correctly and in a timely manner.

Residual Functions

All other management roles that require decision-making at the highest level are
automatically assumed by the office of the District Collector. These include, but are not
limited to, duties as chief election officer, disaster management, protocol, human resource

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management, etc. Rules for the same are defined and issued from time to time under
various circulars, orders and statutes. The Collector also serves as a medium facilitating
interaction between civil society and the State Government through the media and public-
private partnerships. Increasingly, ensuring god communication with the public has
assumed a lot of importance lately due to the need for public validation of government
schemes and performance from people.

Some main residual fucntions of the Collector are as follows:

1. District Environmental Protection Officer under Section 4(1) of Environment

Protection Act, 1986.
2. Public authority under Right to Information Act 2005.
3. For elections, the Collector is the District Election Officer (DEO) and is responsible for
(a) preparation / updation of electoral rolls and (b) for holding free and fair elections
in his jurisdiction. Under election laws, he is the Returning Officer (RO) for the
Parliamentary elections. In other cases, his juniors function as Returning Officers; but
he still remains the District Election Officer.
4. The Collector is the overall in-charge of the Treasury in the district and is responsible
for sending detailed accounts of financial transactions taking place in the district to
the office of the Accountant General. He is also responsible for census, protocol and
other related works.
5. The Collector is the Chief Mining Officer of the district and exercises powers to grant
prospecting license and mining lease under provisions of the Mines and Minerals
(development and regulation) Act, 1957. The Collector has also been vested with
powers under some labour laws such as Bonded Labour (Abolition) Act 1976 and
Workmens Compensation Act, 1923
6. The Collector is the principal officer of the State Law Department at the district level
and in this capacity he has a major role in the appointment of Government Counsels
for District Courts.
7. The Collector is the head of the public relations department of the government at
the district level and is responsible for disseminating information on the working of
the government to the print and electronic media and the general public.

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 8. Periodically empowered to sanction assistance from Chief Ministers Relief Fund. The
purpose is to extend assistance to the deserving persons immediately at the time of
their need.

Table 1: Statutory powers of District Collectors

No Act Key Powers of the Collector

1 Criminal Procedures Code, The Act provides the Collector his powers as a
1973 Magistrate to maintain law and order in his
jurisdiction. It defines the local jurisdiction of the
District Magistrate and specifically empowers him
to issue summons and search warrants; arrest
suspects; prevent the spread of seditious material
and material detrimental to maintaining peace
and harmony in the district; prevent unlawful
assemblies; remove constructions and objects
that pose a threat to the community; make
inquisitions; and revise and withdraw cases from
magistrates subordinate to him.

2 Code of Civil Procedures, The Code of Civil Procedures defines the

1908 procedural aspects of Collector's administrative
and court related work. It delineates Collector's
powers with respect to trying suits, receiving
proof of facts by affidavits, summoning and
enforcing attendance of persons and examining
them on oath, compelling the production of
documents, issuing of commissions, and
execution of decrees.

3 Madhya Pradesh Land This Act defines the primary revenue powers of
Revenue Code, 1959 Collectors in Madhya Pradesh. It defines the
supreme control of Collector overall Revenue
Officers in the district, the Collector's power to
delegate his/her revenue functions to any officer
of Additional Collector rank in the district, and
delegate the powers of Tahsildars to Additional
Tahsildars. The Collector also has powers to make
a Joint Collector/Deputy Collector/Assistant
Collector rank officer in-charge of a sub-division.
The Act empowers Collectors to make land
revenue assessment on any unassessed land. The
Collector is also equipped with the powers of a
Settlement Officer defined under Sections 68-73.
The Act defines the procedure of Revenue
Officers and Revenue Courts. Additionally, the

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 No Act Key Powers of the Collector
Collector is empowered to determine nistar rights
or right of grazing cattle for villages on
unoccupied land.

4 The Mines Act, 1952 This Act empowers the Collector to serve as an
Inspector of Mines allowing him to inspect mines
and mining operations, conduct searches to
determine unlawful mining and working
conditions at mines, and seize any article under
suspicion.

5 Madhya Pradesh Excise The Act empowers the Collector to grant and
Act, 1915 cancel passes for the import, export and transport
of intoxicants; seize any promotional material
banned by the State government, close shops to
maintain public peace and confiscate any
materials related to an offence under the Act.

6 Madhya Pradesh The Act empowers the Collector to tax

Entertainments Duty and entertainment and advertisements in his district.
Advertisements Tax Act, The Collector is empowered to revoke
1936 entertainment licences, and exempt
entertainment and advertisements from duty.

7 Madhya Pradesh Cinemas The Act empowers the Collector to serve as a

(Regulation) Act, 1952 Licensing Authority for cinemas and suspend
exhibitions in case of any violations.

8 Madhya Pradesh Dramatic The Act empowers the Collector to prohibit

Performances Act, 1961 exhibition of any dramatic performances and
review their script for approval.

9 Madhya Pradesh Public The Act empowers the Collector to serve as the
Trusts Act, 1951 Registrar of Public Trusts and regulate the
management of trust properties in his district
which includes power to inspect, audit and permit
use of trust funds and properties, including sales.

10 Madhya Pradesh The Act empowers the Collector to allot

Investment Region government land to agencies.
Development and
Management Act, 2013

11 Scheduled Castes and This Act empowers the District Magistrate to

Scheduled Tribes maintain law and order by declaring an area
Prevention of Atrocities prone to violence and detaining persons

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 No Act Key Powers of the Collector
Act, 1989 threatening to commit atrocities.

12 The Madhya Pradesh This Act empowers the District Magistrate to

Rajya Suraksha maintain law and order by ordering restriction on
Adhiniyam, 1990 movement, detention or removal from district of
persons or groups posing a threat to the district's
peace and security.

13 Unlawful Activities This Act empowers the District Magistrate to

(Prevention) Act, 1967 regulate the use of public spaces for unlawful
activities and associations. The Collector is
empowered to notify places frequently used for
unlawful activities and prevent peoples entry
there.

14 Civil Defence Act 1968 This Act empowers the District Magistrate to
serve as a Controller of the Civil Defence Corps
and in this role dismiss officers found guilty of
improper conduct.

15 Immoral Traffic This Act empowers the Collector to prevent

(Prevention) Act, 1956 prostitution and trafficking in his district by
regulating prostitution near public places,
searching premises without warrant and rescuing
persons from prostitution and placing them in
protective institutions.

16 Indecent Representation This Act empowers the Collector to enter and

of Women (Prohibition) search premises where he suspects an offence
Act, 1986 under the Act is being committed.

17 Prevention of Black This Act empowers the District Magistrate to

Marketing and detain persons disrupting the supply of essential
Maintenance of Supplies commodities in his district.
of Essential Commodities
Act, 1980

18 Narcotics, Drugs and This Act empowers the District Magistrate to

Psychotropic Substance search premises, arrest suspects and seize
Act, 1985 contraband narcotics, drugs and psychotropic
substances, including illegally cultivated crops.

19 Mental Health Act, 1987 This Act empowers the Collector to make judicial
inquisitions into the health of mental persons,
and appoint and supervise the proper conduct of
guardians and managers for their

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 No Act Key Powers of the Collector
estate/property.

20 The Mental Healthcare The Act empowers the Collector to nominate his
Act, 2017 representative on the Review Board and regulate
the operation of mental health institutions.

21 The Special Marriage Act, This Act empowers the Collector to function as a
1954 Civil Court for the purpose of solemnising
marriages under this Act.

22 Madhya Pradesh Lok The Act empowers the Collector to recover dues
Dhan (Shodhya Rashiyon on behalf of banking companies from defaulters.
Ki Vasuli) Adhiniyam, 1987

23 Waqf Act, 1954 This Act empowers the Collector to recover

damages and dues from Waqf properties on
behalf of The Tribunal.

24 Madhya Pradesh The Act provides legal protection to all decisions

Anusuchit Jati Tatha of Collectors passed in accordance with the Act
Anusuchit Jan Jati Rini for recovery of debts through possession of
Sahayata (Sanshodhan immovable property.
Tatha Vidhimanva Karan)
Adhiniyam, 1984

25 Madhya Pradesh The Act empowers the Collector to recover debts

Anusuchit Jati Tatha on behalf of the Debt Relief Court, and gives
Anusuchit Jan Jati (Rini revisional jurisdiction over the orders of the Debt
Sahayata) Adhiniyam, Relief Court.
1967

26 Madhya Pradesh Adim Jan The Act empowers the Collector to regulate the
Jatiyon Ka Sanrakshan cutting of trees in his district.
(Vrakshon Me Hit)
Adhiniyam, 1999

27 Madhya Pradesh The Act empowers the Collector to regulate

Accommodation Control tenancies in his district by appointing a Rent
Act, 1961 Controlling Authority and granting permission for
letting of properties in his district. The Collector is
empowered to allot any vacant accommodation in
the district to a person holding an office of profit
under the State or Central Government or
agencies mentioned in the Act.

28 Madhya Pradesh The Act empowers the Collector to declare wards

Municipal Corporation unreserved, facilitate election of speaker and pass

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 No Act Key Powers of the Collector
Act, 1956 a no-confidence motion against him, decide
property claims by or against the Corporation and
make inquiries or inspection of any department of
office under the Corporation.

29 Madhya Pradesh The Act empowers the Collector to approve

Municipalities Act, 1961 boundary marks to be erected by the Council.

30 Madhya Pradesh Nagar The Act empowers the Collector to serve as a

Tatha Gram Nivesh member of the Town and Country Development
Adhiniyam, 1973 Authority and demolish any unauthorised
constructions at the cost of the defaulter.

31 Madhya Pradesh Nagariya The Act empowers the Collector to call for and
Kshetro Ke Bhoomihin examine record of any case disposed of under the
Vyakti (Pattadhriti Act.
Adhikaron Ka Pradan Kiya
Jana) Adhiniyam, 1984

32 Madhya Pradesh Bhiksha The Act empowers the Collector to take finger
Vritti Nivaran Adhiniyam, prints of people ordered to be detained under the
1973 Act.

33 Bhumi Sudhar Yojana The Act empowers the Collector to preside over
Adhiniyam, 1967 the meetings of the District Committee and
recover dues from defaulters to be paid to land
owners, terminate possession on completion of
reclamation, authorise officers to enter and
survey land, and to determine compensation.

34 Madhya Pradesh (Rajya) The Act empowers the Collector to recover dues
Bhumi Vikas Nigam from land holders and pay the same to the Nigam.
Adhiniyam, 1976

35 The Indian Stamp The Act empowers the Collector to stamp

(Madhya Pradesh instruments, and take duty on instruments
Amendment) Act, 2016 omitted from stamping.

36 Madhya Pradesh Society The Act empowers the Collector to take charge of
Registrikaran Adhiniyam, all movable and immovable assets of a society
1973 after the cancellation of its registration.

37 The Public Liability This Act empowers the Collector to verify the
Insurance Act, 1991 occurrence of accidents and determine
appropriate relief for victims.

38 Madhya Pradesh The Act empowers the Collector to regulate land

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 No Act Key Powers of the Collector
Regulation of Uses of Land use in his district by notifying controlled areas,
Act, 1948 acquire lands for various purposes and handle
appeals and compensation claims.

39 Wild Life Protection Act, This Act empowers the Collector to protect the
1960 rights of persons residing in areas notified as
sanctuaries by inquiring into the legitimacy of
their claims, and facilitate land acquisition by
awarding compensation where rightfully
determined.

40 The Indian Forest Act, The Act empowers the Collector to acquire forest
1927 land, hear appeals on claims and manage private
land as protected forest at the owners' behest.

41 Madhya Pradesh The Act empowers the Collector to expedite

Resettlement and resettlement of displaced persons from acquired
Rehabilitation of land.
Displaced Persons (Land
Acquisition) Act, 1949

42 Madhya Pradesh This Act empowers the Collector to execute and

Pariyojana Ke Karan maintain abadi layouts, extend abadi for public
Visthapit Vyakti utilities and ensure Record of Rights is
(Punhsthapan) Adhiniyam, maintained.
1985

43 Madhya Pradesh The Act empowers the Collector to acquire, mark

Resettlement of Displaced out, measure and dispose notified land after
Landholders (Land hearing objections to acquisition and settling
Acquisition) Act, 1954 compensation.

44 Madhya Pradesh Sinchai The Act empowers the Collector to manage water
Prabandhan Me Krishkon supply in the district by facilitating the election
Ki Bhagidari Adhiniyam, (and removal) of the President of the Water
1999 Users' Association.

45 Madhya Pradesh Irrigation The Act empowers the Collector to ensure supply
Act, 1931 and maintenance of water for irrigation through
canals by authorising removal of obstructions to
supply, settling claims for compensation, cause
inquiry over canals running through the district
and recommend the amount of Betterment
Contribution to be made by people whose lands
lie in the command area of the canal. It also
empowers the Collector to facilitate constitution
of Irrigation Panchayats and grant permissions to

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 No Act Key Powers of the Collector
permanent land holders for the construction of a
dam etc. on any river or stream.

46 Madhya Pradesh Peya Jal The Act empowers the Collector to regulate the
Parirakshan Adhiniyam, availability of water to the public. The Collector
1986 may do so by declaring an area as water scarce
and prohibiting use of water for industrial or
irrigation purposes in the interest of maintaining
supply to the public as well as regulating the
digging of tube-wells.

47 Madhya Pradesh Peya Jal The Act empowers the Collector to address water
Parirakshan (Sanshodhan) scarcity by temporarily requisitioning any water
Vidheyak, 2002 source in the area for supplying water to public.

48 Madhya Pradesh The Act empowers the Collector to grant

Extension of Laws Act, petitioners right of supply of water through any
1958 private water-course.

49 Madhya Pradesh This Act empowers the Collector to organise Gram

Panchayati Raj Evam Sabhas, divide Gram Panchayat into wards and
Gram Swaraj Adhiniyam, allot reserved seats to these wards on rotation.
1993 The Collector is also empowered to collect taxes
and fines from the Gram Panchayat and disqualify
office bearers.

50 Madhya Pradesh Gram The Act empowers the Collector to settle disputes
Nyayalaya Adhiniyam, over disqualification of members from Gram
1996 Nyayalaya and recover dues to the body.

51 The Industrial Disputes The Act empowers the Collector to recover any
Act, 1947 money due to workmen from their employers.

52 The Consumer Protection The Act empowers the Collector to serve as

Act, 1986 Chairperson of the District Consumer Protection
Council.

53 The Disaster Management This Act empowers the Collector to act as the
Act, 2005 Chair of the District Disaster Management
Authority and direct disaster efforts in the district.

54 The Right to Fair This Act empowers the Collector to facilitate land
Compensation and acquisition for the appropriate Government and
Transparency in Land serve as acquiring authority. The Collector is
Acquisition, Rehabilitation empowered to assess and report on the feasibility
and Resettlement Act, and cost of acquisition, market value of land,
2013 solatium and impact of acquisition on families.

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 No Act Key Powers of the Collector
The Act ensures the Collector updates land
records and pays up to four times the value to
correct any inaccuracies. It protects agricultural
interests by enforcing that the Collector ensure
that no other unutilized lands are available before
he moves to acquire farm land. It also stipulates
that the Collector take possession of land only
after ensuring that full payment of compensation
as well as rehabilitation and resettlement
entitlements are paid.

55 Madhya Pradesh Drugs The Act empowers the Collector to discharge the
(Control) Act, 1949 powers of the State Government related to
marking of prices and prohibition of sales.

56 The Essential The Act empowers the Collector to confiscate

Commodities Act, 1955 seized essential commodities and put them up for
sale under special circumstances.

57 Madhya Pradesh Co- The Act empowers the Collector to take

Operative Societies Act, possession of record and property of any Society
1960 suspected of fraud.

58 Madhya Pradesh Krishi This Act empowers the Collector to better

Upaj Mandi Adhiniyam, regulate the buying and selling of agricultural
1972 produce and manage the establishment and
proper administration of markets of agricultural
produce in their district.

59 Madhya Pradesh The Act empowers the Collector to recover cane

Sugarcane (Regulation of prices from occupier and determine occupier for
Supply and Purchase) Act, the purpose of the Act.
1958

60 Madhya Pradesh Tractor The Act empowers the Collector to recover

Dwara Kheti (Prabharo Ki tractor cultivation charges from the cultivator.
Vasuli) Adhiniyam, 1972

61 Madhya Pradesh Vas- The Act empowers the Collector to hear appeals
Sthan Dakhalkar against the orders of the Authorised Officer.
(Bhumiswami Adhikaron
Ka Pradan Kiya Jana)
Adhiniyam, 1980

62 Madhya Pradesh Sahakari The Act empowers the Collector to put a

Krishi Aur Gramin Vikas purchaser in possession of a property.

19
 No Act Key Powers of the Collector
Bank Adhiniyam, 1999

63 Madhya Pradesh Padat The Act empowers the Collector to hear appeals
Bhumi Ka Krishikaran against the orders of the Authorised Officer.
Adhiniyam, 1966

64 Madhya Pradesh Tractor The Act empowers the Collector to authorise

Dwara Tori Gai Revenue Officers to perform certain functions
Bhoomiyon Par Asudhar under the Act.
Shulka Adhiniyam, 1972

65 Madhya Pradesh Samaj Ke The Act empowers the Collector to hear appeals,
Kamjor Vargon Ke Krishi revise orders made by officers junior to him and
Bhumi Dharakon Ke states that all proceedings before the Collector
Bhumi Hadapane shall be considered judicial proceedings.
Sambandhi Kuchakron Se
Paritran Tatha Mukti
Adhiniyam, 1976

66 Madhya Pradesh Ceiling This Act empowers the Collector to regulate sub-
on Agricultural Holding division of agricultural land holdings.
Act, 1960

67 Madhya Pradesh Cattle This Act empowers the Collector to auction cattle
Diseases Act, 1934 if marking and vaccination fees remain unpaid.

68 Madhya Pradesh Fisheries This Act empowers the Collector to compound

Act, 1948 scheduled offences under the Act.

69 Madhya Pradesh The Act empowers the Collector to hear appeals

Agricultural Cattle on orders of Competent Authority under the Act,
Preservation Act, 1959 and grant exemptions for slaughtering for
medical, religious purposes.

70 Madhya Pradesh The Act empowers the Collector to regulate the

Dharmadaya Funds Act, establishment and use of dharmadaya funds by
1951 summoning accounts for inspection, appointing
maintainer, and recover dharmadaya funds from
defaulters.

71 Madhya Pradesh Public This Act empowers the Collector to regulate the
Religious Building and construction, and use of religious buildings in his
Place Regulation Act, 1984 district.

72 Madhya Pradesh Freedom This Act empowers the District Magistrate to

of Religion Act, 1968 maintain a record of religious conversions in his
district.

20
 No Act Key Powers of the Collector

73 Madhya Pradesh Ancient The Act empowers the Collector to remove any
Monuments and building or persons from within a State-protected
Archaeological Sites and monument as well as regulate excavations in
Remains Act, 1964 State-protected areas.

74 Madhya Pradesh Zila The Act empowers the Collector to act as the
Yojana Samiti Adhiniyam, Secretary of the Zila Yojana Samiti.
1995

75 Madhya Pradesh Shri The Act empowers the Collector to serve as a

Mahakaleshwar Mandir member of the temple management committee
Adhiniyam, 1982 and appoint the Administrator.

76 Madhya Pradesh Maa The Act empowers the Collector to serve as a

Sharda Devi Mandir member of the temple management committee
Adhiniyam, 2002 and appoint the Administrator.

21
 Time Devoted to Various Roles and Activities
The main thrust of this study has been to catalogue the various roles, functions and
committees that Collectors manage. This chapter moves beyond their stated responsibilities
to look at what collectors are actually doing with their time and understand the following
things:

1. Collectors working hours pursuant to their multiple responsibilities

2. Activity-wise breakup of their responsibilities

3. Their preferences for different types of work

The following sections unpack the answers to these issues using the findings of from the
study. It is important to note that during the interviews and data validation process
respondents stressed that many of these figures related to time-per-activity are
conservative estimates as they assume best-case-scenarios, that is that all other things
being equal the district is running smoothly and there are no anomalies in governance.
During times of local disturbance or emergency Collectors are mandated and expected to
work round-the-clock coordinating with all agencies without care for office hours.

Collectors Working Hours

Upon asking Collectors their time for reaching and leaving office to understand if they were
putting in overtime at the office it was found that they usually adhere to official timings. All
Collectors reported reaching the office between 10-10:45am and leaving between 6-
6:45pm, effectively putting in 8-8.5 hours of work at office.

This, however, is not a true and complete reflection of the working hours of Collectors as
they reported performing many official duties during non-office hours these could be
outside the office or at home. They clarified that their work began much before they
reached their office and continued much after. Some of this work includes protocol duties,
emergency law and order related activities, coordination on phone, file work, and most
importantly planning for meetings/reviews/giving instructions to subordinates/new
programmes etc. Some Collectors shared that they preferred holding meetings related to
planning and innovation at their camp office (at home) after official office hours as this gave
them the opportunity to discuss things peacefully with other officers. According to

22
Collectors, they spend 13-14 hours per week working at home on average. Furthermore,
they added that they are constantly multitasking juggling two-three activities at a time. For
instance, they often issue instructions to officers or hold meetings over minor issues whilst
performing file work.

Collectors Perception
Upon analysing the time given weekly by Collectors to routine activities (such as doing file
work, maintaining law and order, planning and coordination, touring, grievance redressal
etc.) it was discovered that on an average Collectors observe a 64 hour week approximately
(Figure 1). This figure includes time they spend at their office, during office-hours on
tours/meetings outside office, and time spent on work related matters at home. Upon
comparing this data against the 42 hours per week legal requirement of the Government of
Madhya Pradesh (10:30-5:30 office timing) an average Collector spends 34 per cent
overtime.

Figure 1:Collectors' perception of their working hours

Activity-wise time consumption

(in hrs/week)

District meetings 18.2

File work 12.5
Touring 11.1
Grievance redressal 4.5
Court work 4.3
VCs 3
Meetings -outside 2.6
Law & order 2.4
Protocol 2.1
Public functions 1
At home hours 6.3
Total working hours 68

Time Log Analysis

However, comparing this data against data from their time logs a more conservative picture
emerges. Collectors were asked to share a random months schedule of their activities. This
data was received from six districts and is analysed in Figure 2. It shows that in a typical
working month (with government holidays and second/third Saturday off) on an average a
Collector works 48 hours per week. It is important to note that there is substantial inter-
district variation, and thus this inference cannot be generalised. Some Collectors may be
observing a 60 hour week, while others maintain a 42 hour week. This means that some of
them may be working longer hours than others, and some may be working overtime in

23
particular weeks. In fact, 60 per cent of the respondents felt that Collectors are not
overburdened while 40 per cent did not answer the question.

Figure 2: Collectors' working hours per month from time log

District Court Grievance Law & Meetings Public Average

Protocol Planning File work VCs Tour Total
meetings work redressal order outside function hrs/week

Raisen 0 40 33 83 13 9 8 0 0 36 15 237 59
Ujjain 3 42 20 70 8 8 7 5 0 22 9 191 48
Indore 5 50 15 60 8 8 4 3 6 16 12 187 47
Sheopur 0 38 18 68 10 8 7 1 0 17 2 169 42
Jabalpur 2 43 12 70 10 9 5 4 0 28 5 188 47
Chhatarpur 0 45 10 75 8 8 8 0 0 18 9 181 45
Total 10 258 108 426 57 50 39 13 6 137 52 1153 288
Average/month 1.7 43.0 18.0 71.0 9.5 8.3 6.5 2.2 1.0 22.8 8.7 192.2 48

Average/week 0 11 5 18 2 2 2 1 0 6 2 48

Activity-wise Breakup of Collectors Responsibilities

Data shows that on average Collectors spend close to 48 hours per week working (Figure 2).
Upon disaggregating this figure (Figure 3), it is revealed that Collectors spend most of their
time (38 per cent) on file work. Attending to meetings with departments and people is the
second most time consuming activity. It takes up to 23 per cent of their time. Touring in the
district for inspecting public works, and understanding grievances comes third (13 per cent).
Collectors reported spending the least amount of time on attending to protocol duties, on
an average.

Figure 3: Most time consuming activities

Most time consuming hrs % of total

activities time

File work 18 38%

District meetings 11 23%

Touring 6 13%

Collectors Preferences for Work

When inquiring about preferences for the type of work Collectors wished to devote most
time to they unanimously favoured law and order (Figure 4). They said that this was their
primary function as a District Magistrate and as such could not be delegated. Planning for

24
development works and coordination activities were placed second in preference. Attending
VCs and public functions were ranked lowest in their order of priority.

By comparing data presented in Figures 4 and 5 it can be inferred that Collectors are
spending a large amount of time on in-district meetings and attending to file work (largely
focused on development works) whilst they wish to be spending it on performing more
regulatory and planning related work (Figure 4).

Figure 4: Collectors' priorites

Work Priority of District Collectors

Law & order

Planning/coordination
Court & file work
Touring
Grievance redressal
Inspections
Meetings (outside)
Protocol work
VCs
Public functions

Challenges faced by Collectors

While enumerating challenges in running a district, shortage of staff emerged as the biggest
problem (40%) (Table 2). This was mentioned repeatedly during interviews and discussions,
including with other subordinate officers such as CEO-ZP, and Additional Collectors. It was
elaborated that this shortage exists at the highest echelons of district administration and
runs right down to the lowest levels, conveyed by the absence of clerks and stenos. Officers
highlighted how often even key departmental positions such as Deputy Director (Social
Justice), Chief Medical & Health Officer, Deputy Director (Agriculture) remained vacant in
their districts. This was especially the case if the serving officer had retired leaving the post
vacant. Collectors reasoned that they had to ensure the smooth operation of schemes,
coordination amongst departments and achieve performance targets with these gaps
extant. Even when positions were not lying vacant the lack of motivated and competent
staff was presented as an important obstacle to performance.

25
Lack of untied funds was listed as the second biggest problem (30%). Whilst funds are
available aplenty to the district, these are tied and earmarked for various predetermined
activities. Officers interviewed argued that funds under instruments such as District
Innovation Fund were difficult to access. They had to, thus, seek creative convergence
between schemes, often pushing forth with innovations at their own risk. The absence of
flexi-funds, one officer argued, has made many Collectors risk averse as financial liability
made local problem solving through innovations cumbersome.

Table 2: Main challenges faced by Collectors

Sr. No Challenges Response

1 Shortage of staff 4/10

2 Lack of untied funds 3/10

3 Shortage of motivated 2/10

staff

4. No response 1/10

Collectors Responses to Challenges

Interestingly, however, upon comparing these responses to official reportage made under
the Performance Assessment Reports, 85 per cent of the officers noted no barriers to
performance. One mentioned short duration of tenure, and two mentioned shortage of
staff. The implication being that these constraints - whether institutional or procedural-
have had no bearing upon their individual performance while serving as a District Collector
and Magistrate.

Thus, despite the diffusion of responsibilities and lack of staff to help essay their roles
effectively Collectors do not find these challenges insurmountable. This is further borne out
by the fact that despite the general uncertainty of day-to-day governance at the district
level they are able to maintain control over their schedules.

All of the respondents stated that they plan a monthly schedule of their activities and
stressed that mostly they are able to follow it, and that it allows them the time to plan
innovations - over and above their routine work (Figure 5).

26
Figure 5: Work management

Work Management
12
Yes Mostly Yes
10

0
Plan schedule Observe schedule Time for innovations

An important point that emerged from discussions with Collectors was that within the broad
framework provided by governance norms, and their onerous work schedules they had
enough latitude to decide their own priorities. This means that within reason they can
decide what activities to focus on and what to merely manage through supervision or
delegate to other officers. This is one of the main reasons why varying levels and models of
delegation can be witnessed across the districts.

In states like Maharashtra and Gujarat there is a definite and clear division between the
powers of CEO-ZP, and Collector. Here the CEO is an independent officer with the Parishad
being an autonomous entity on its own. This model allows for greater decentralisation of
functions, functionaries and funds. It also frees up space in the Collectors schedule to focus
on magisterial and revenue related activities. This form of delegation is statutory in nature.
In the study, Collectors favoured functional delegation over this model. Whilst none of the
Collectors clearly supported legal and permanent delegation, they suggested that
functionally some activities - such as departmental work, or committees may be delegated
to CEOs or additional Collectors such that the DC maintains supervisory control alone (

Figure 6).

Furthermore, 50 per cent of the serving Collectors interviewed (5/10) felt that some
departmental activities and committee-related work could be delegated. They suggested
that the day-to-day management and file work could be handled by these officers. But they
insisted that as the head of the district administration the Collector is finally accountable for
all development performance and as such cannot be relieved of all authority.

27


Figure 6: Possible delegation avenues

50% 50%

30%

0 0

Dpt activities Committees Law and Court cases No

order

This view on delegation was even more pronounced in the feedback from former Collectors.
Of the ten former Collectors interviewed all held the opinion that some departmental
activities, sanction of civil works, and most committees could be delegated to relevant
officers. In respect of the committees, Collectors argued that these may be delegated to
Additional Collector rank officers but not any lower.

Furthermore, data from the monthly schedule of Collectors1 shows that Collectors already
practice varying levels of delegation. They end up delegating anywhere from 25-30 per cent
of their meetings to subordinate officers. This is especially true in bigger districts like Indore
and less so in smaller ones like Alirajpur and Sheopur that suffer from acute shortage of
staff. In discussions, Collectors revealed that whilst mostly they attended important
meetings that had been scheduled in advance sometimes emergency situations or protocol
duties pulled them away.

1
Collectors PAs were requested to share one months schedule of activities, marking those meetings in red which were
delegated to other officers.

28
 Major Findings
This study was undertaken with four key objectives: cataloguing the powers and
responsibilities of Collectors systematically to generate an online database, cataloguing the
various committees they are a part of and their purpose, understanding the work collectors
are doing and capturing what collectors wish to be doing with their time. In the process the
study sought to discover if Collectors may be working overtime to fulfil their multiple roles,
and if there are avenues for delegation or rationalisation to make the system more efficient.
In this respect, the major findings of the study are as follows:

1. Collectors have multiple roles and widely diffused responsibilities

Collectors are the guardian and chief anchor of the district administration. A Collector is
chairperson/secretary/member to a minimum of 80 permanent committees at the district
level. Numbers vary across districts depending upon the temporal nature and urgency of
some transitionally important committees such as committees for enquiries, committees
for special events (Simhasth), committees for relief (Narmada Valley Development
Committee, Bundelkhand Package) etc. Similarly, the Collector is official-in-charge of close
to 130 major state and central government schemes and programmes. In addition to this
Collectors have law and order, magisterial, regulatory and revenue responsibilities which
many argue are their central roles. As seen in the report before, in over 76 key statutes they
have major and important roles and responsibilities related to these functions.

Over and above this they also have sundry responsibilities as the Chief Protocol Officer and
troubleshooting responsibilities as the senior-most administrative officer at the district. This
has created a system wherein the myriad and diffused roles of Collectors require them to
shoulder accountability on multiple fronts notwithstanding any functional overlap with
other agencies, institutions and posts.

2. Committee-system requires an overhaul

Many committees at the district level have become unwieldy, and obsolete. They often exist
notionally, and meetings are held merely on paper to meet legal requirements. This defeats
the purpose of constituting these committees in the first place because they are unable to
bring all the stakeholders together in a room to discuss pertinent issues. This implies that
either the issues for which these committees have been formed are unworthy of

29
Collector/other stakeholders attention or they are hard pressed for time and cannot
prioritise these committee meetings in their schedule or that these committee-type
institutional arrangements have broken down. In any of the above scenarios, the takeaway
is the same that the instrument needs rethinking and reworking.

3. Collectors do not consider themselves overburdened

Data from Collectors time logs shows that in a typical working month (with government
holidays and second/third Saturday off) on an average a Collector works 48 hours per week,
5 hours more than required legally. It is important to note that there is substantial inter-
district variation, and thus this inference cannot be generalised. This means that some of
them may be working longer hours than others, and some may be working overtime in
particular weeks. This is borne out by the general articulation that most Collectors in the
sample do not consider themselves overburdened.

4. Disconnect between present workload and preferences

There appears to be a disconnect between what Collectors are doing and what they wish to
be doing. Collectors are spending the majority of their time on file work (18 hrs./week) and
meetings (11 hours/week) whilst they wish to be spending it on performing more law and
order, and planning related work.

5. Shortage of staff and untied funds are constraints

Majority of the respondents stated that Collectors had to ensure satisfactory district
performance in spite of a shortage of staff. Whilst absence of untied funds curtailed
innovation and local problem solving, shortage of competent and motivated staff compelled
Collectors to assume many departmental responsibilities further adding to their workload.
With better human resources at their disposal they could ensure proper delegation, and
channel their energies on subjects of greater priority.

6. Collectors favour delegation of departmental activities and committees

Varying models of practical/functional delegation are operational across districts. In

districts, where CEO-ZPs have been empowered to handle greater responsibilities the
workload on DCs (file work, meetings) appears reduced. This can arguably be used to direct
their energies to areas of their choosing or their core functions. Fifty percent of presently

30
serving Collectors and all of the former Collectors interviewed supported delegation of
some of their departmental and committee related responsibilities.

31
 Recommendations
The vast and widespread functions of Collectors have resulted in a diffusion of the
Collectors responsibilities, as well as energies. Presently, there appears to be a lot of
duplicity in roles and overlap in functions with other institutions such as the CEO-ZP, PRIs
and ULBs. Research in administrative reforms suggests that the Collectors work profile
should consist of well-defined, and exclusive activities that help optimise his performance.
To this end, CEO-ZPs could be empowered with greater financial powers and autonomy to
take development decisions. This would not only significantly reduce Collectors file-work
but also create a more efficient rural delivery network.

An important means of creating more efficiency in work at the district level would be to
calibrate the committee system. The Collectors presence could be made optional or
removed altogether from several committees that are repetitive in nature, technical or only
require the collectors notional presence. These could well be handled by the technical
heads of the department or sector experts in the government. Some such committees are
related to health (TB, Immunization, AIDS and Family Planning), traffic, social welfare etc.
Similarly, committees related to urban development could be delegated to the Municipal
Commissioner.

Another way of reducing the number of redundant committees is by creating a

central Nodal Committee for each department with the Collectors membership. This parent
committee would have integrated command and all committees could serve as subsidiaries
to their respective departments nodal committee. Either additional members could attend
as special invitees or the department head could filter the most important and discussion-
worthy issues from the meetings of these subsidiary committees and bring them to the
table for discussion at the meeting of the Nodal Committee.

Literature on administrative decentralization shows that Indian states are amongst the
worst performers in the area when compared with other countries. In India local decision
making remains in the hands of the state bureaucracy, and at the district level concentrated
in the office of the Collector. A practice often seen in administrative delegation and
decentralisation is that criteria for assigning roles to other officers is not clearly defined nor
anchored to any national or international benchmarks. Often the least significant functions

32
seem to be transferred to other officers without any understanding of the most efficient
system of public service delivery to be achieved through this delegation. Thus, based on
feedback from former and serving Collectors in Madhya Pradesh, as well as other officers
the following pattern for delegation is recommended for various committees:

Table 3: Committees and whom to be delegated

Committee Delegation Remarks

Department of Urban Housing and Environment

1. Shasi Nikaay No This committee requires coordination with

several agencies in the urban area, as well
as management of public representatives.
Thus, it requires the Collector's presence.

2. MM Arthik Kalyan Yes Matters related to this committee are

Yojana Shahari routinely handled by the Additional
Samitiyan Collector rank officers, and as such can be
formally delegated to them.

3. AMRUT (Atal Mission for No This scheme is of paramount importance

Rejuvenation and Urban to city development at present and
Transformation) Samiti requires coordination at the senior most
level for effective implementation. It is
also crucial for engaging with public
representatives on issues of urban
planning and resolving implementation
deadlocks. Thus, it requires the Collector's
presence.

4. Kesh Shilp Yojana Samiti Yes Matters related to this committee are
routinely handled by the Additional
Collector rank officers, and as such can be
formally delegated to them.

5. Zila Paryatan No This committee is important for creating

Samvardhan Vikas an overall tourism roadmap of the district
Parishad / Tourism and requires inter-departmental
Promotion Council coordination and significant resource
mobilization. Thus, it requires the
Collector's presence.

33
 Committee Delegation Remarks
6. Zila Stariya Samiti This scheme is of paramount importance
Swachch Bhaarat to city development at the moment and
Mission (Urban) requires coordination at the senior most
level for effective implementation. Thus, it
requires the Collector's presence.

7. Smart City No This is a new and unique initiative by the

Government of India to create model,
aspirational cities in a timely manner. It
requires strategic inputs for urban
planning and rigorous monitoring of
quality and progress of works. Thus, it
requires the Collectors presence.

8. Saadhikar Samiti, No This committee is important in planning

Madhya Pradesh Grah for district growth and coordinating with
Nirman Mandal different urban bodies. Thus, it requires
the Collector's presence.

Department of Commerce, Industry and Employment

9. Zila Stariya Sameeksha Yes CEO - Zila Panchayat is competent to

Samiti (Mukhyamantri handle matters related to this committee.
Swarozgaar Yojana)

10. Zila Stariya Taskforce No A very limited number of extremely

Samiti (Mukhya Mantri competent entrepreneurs is chosen under
Yuva Udhyami Yojana) the scheme. This requires effective
oversight from the Collector. Thus, it
requires the Collector's presence.

11. Zila Udyog Kendra No All employees are members.

Sanyukt Paramarshdatri
Samiti

12. Beemar Ikaiyon Ke Yes Financial powers should be given to an

Punarvaas Hetu Ghoshit Additional Collector rank officer.
Punarvas Yojana 2014 Ke
Anatrgat Gathit Zila
Stariya Task Force Samiti

13. Zila Udyog Kendra Ke No This committee has been constituted to

Liye Udyog Samvardhan facilitate high-level and quick decision
Evam Sahayata Samiti making for ease-of-doing business. Thus, it
(Single Window Pranali) requires the Collector's presence.

34
 Committee Delegation Remarks
14. Laagat Poonji Anudan Yes This committee should be delegated to an
Udyog Nivesh Additional Collector rank officer as there
Samvardhan Sahayata, are often delays in case approvals, and
Byaj Anudaan, Pravesh potential for mismanagement due to
Kar Choot, Mandi Shulk, these delays.
Vidyut Shulk Choot
Sambandhit Prakrano Ka
Nirakaran Hetu Jila
Stariya Samiti.

Department of Horticulture

15. Udyaniki Mission Samiti Yes Matters related to this committee are
routinely handled by the CEO - Zila
Panchayat and as such can be formally
delegated to him/her.

16. Aushadhiya Paudh Yes Matters related to this committee are

Mission Yojana Samiti routinely handled by the CEO - Zila
Panchayat and as such can be formally
delegated to him/her.

17. Pradhanmantri Krishi No This scheme is an important focus for the

Sinchai Samiti government and requires diligent
monitoring at the senior most level for
effective implementation. Thus, it requires
the Collector's presence.

Department of Women and Child Development

18. Zila Samanvay Samiti, Yes This committee is routinely delegated to

Usha Kiran Yojana the CEO - Zila Panchayat or other
Additional Collector rank officers and as
such can be formally delegated to them.

19. Zila Bal Sanrakshan Yes This committee is routinely delegated to

Samiti the CEO - Zila Panchayat or other
Additional Collector rank officers and as
such can be formally delegated to them.

20. Zila Stariya ICDS No These committees could be merged

Anushravan Samiti together as they deal with overlapping
issues, and are held together in practice.

35
 Committee Delegation Remarks
21. Atal Bihari Baal Arogya These committees should stay with the
Evam Poshan Mission Collector as they are crucial in the overall
Samiti planning of nutrition programmes and
profiling of the district. The programmes
also span across both urban and rural
areas. The Collector, here, often has to
use their magisterial powers to ensure
enforcement. Thus, it requires the
Collector's presence.

Department of Panchayati Raj & Rural Development

22. DISHA - Zila Vikas No This is one of the most important

Samanvay Evam Nigrani committees at the district level. It serves
Samiti as an instrument for engaging public
representatives and the administration to
envision a development roadmap for the
district together. Thus, it requires the
Collector's presence.

23. Swachch Bhaarat No The scheme is the main focus of

Mission (Rural) Government of India presently. Major
works are being undertaken under this
scheme. It often requires inter-
departmental coordination and high-level
monitoring. Thus, it requires the
Collector's presence.

24. Madhya Pradesh Khadi Yes This committee can be delegated to the
Tatha Gramodyog Board CEO - Zila Panchayat as s/he primarily
handles matters related to the scheme.

25. Haat Samiti Yes This committee can be delegated to the

CEO - Zila Panchayat as s/he primarily
handles matters related to the scheme.

26. Gram Panchayat Sachiv Yes This committee can be delegated to the
Niyukti Samiti CEO - Zila Panchayat as s/he primarily
handles matters related to the scheme.

27. Zila Stariya Appeal - This committee has been formed very
Samiti Pradhaan Mantri recently in 2017.
Awaas Yojana - Gramin

28. Zila Stariya Antyodaya No Given the highly political nature of this
Samiti committee, it cannot be delegated to a

36
 Committee Delegation Remarks
junior officer.

Department of Commercial Tax

29. Zila Abkari Samiti No This is one of the primary functions of the
(Deshi/Videshi Evam District Collector and often requires
Bhang Dukanon Ke extensive law enforcement. Thus, it
Nishpadan Ke Sambandh requires the Collector's presence.
Mein)

Department of Sports and Youth Welfare

30. Khiladi Prashikshan Yes This committee can be delegated to the

Samiti CEO - Zila Panchayat as s/he primarily
handles matters related to the schemes.

31. Samvida Niyukti - There should be one overall district-level

Sambandhi Samiti committee for all forms of contractual
appointments. All committees related to
appointments should be merged.

32. Vibhinn Vibhagiya Yes This committee can be delegated to the

Pratiyogita Ayojan Samiti CEO - Zila Panchayat as s/he primarily
handles matters related to the schemes.

33. Samayman Vetanman - It has been recommended that one overall

Swikriti Samiti committee in the district look after all
human resource issues such as
appointments, salary and timescale
approvals.
Department of School Education

34. Zila Stariya Anudan Yes This committee can be delegated to the
Samiti CEO - Zila Panchayat as s/he primarily
handles matters related to the scheme.
The CEO - Zila Panchayat is also Ex-Officio
Director of Education and Additional
Commissioner Tribal, and thus
competent and empowered to handle
these matters.

35. Zila Stariya Nirman No The quality of works needs to be

Samiti monitored regularly and rigorously. Thus,
it requires the Collector's presence.

36. Zila Stariya Niyukti Yes These four committees (Niyukti, Ikaai,
Samiti Kray, Nihshulk Shiksha) can be delegated

37
 Committee Delegation Remarks
37. Zila Ikai Samiti to the CEO - Zila Panchayat as s/he
primarily handles matters related to the
38. Zila Stariya Kray Samiti scheme. The CEO - Zila Panchayat is also
Ex-Officio Director of Education and
39. Nihshulk Shiksha Additional Commissioner Tribal, and
Antargat Pados Seema thus competent and empowered to
Apatti Nirakaran Samiti handle these matters.

40. Zila Stariya Utkrisht No This scheme focuses on creating

Vidhyalay Prabandhan exemplary educational institutions in the
Samiti district and as such requires the
Collector's intervention for planning,
coordination and resource mobilization.
Thus, it requires the Collector's presence.

41. Zila Padonnati Samiti Yes These committee can be delegated to the
CEO - Zila Panchayat as s/he primarily
42. Zila Stariya Core Group handles matters related to the scheme.
The CEO - Zila Panchayat is also Ex-Officio
Director of Education and Additional
Commissioner Tribal, and thus
competent and empowered to handle
these matters.

Department of Economics, Planning and Statistics

43. Zila Moolyankan Samiti Yes This committee should stay with the
Collector as it serves as an important
instrument in determining land prices in
the district and essaying attendant
revenue functions.

44. Zila Antarvibhagiya Yes This committee can be delegated to any

Samanvay Samiti Additional Collector rank officer as the
(Jeevan-Mrityu) matter is a routine administrative activity.

45. Zila Yojana Samiti No This committee provides a forum for

dialogue between the public
representatives and administration. Thus,
it requires the Collector's presence.

Department of Social Welfare

46. Zila Local Level Samiti Yes Collectors never take meetings of this
committee. Matters related to schemes
for people with disabilities are routinely
handled by Additional Collector rank

38
 Committee Delegation Remarks
officers.

47. Zila Viklang Punarvas Yes These committees should be merged, and
Kendra Samiti delegated to the CEO - Zila Panchayat.

48. Zila Stariya Nirashrit

Prashikshan/Shiksha Aur
Punarvas Samiti

49. Mata Pita Bharan No This committee has been formed at the
Poshan Adhiniyam Zila Collectors behest in many districts to
Stariya Samiti monitor issues of social welfare. This can
continue to be with the Collector.

Department of Farmer Welfare and Agriculture Development

50. Rashtriya Khadya - These committees should be merged and

Suraksha Mission Yojana continue to be headed by the Collector.

51. Soil Health Card Yojana

52. Pradhan Mantri Fasal

Beema Yojana

53. Pradhan Mandtri Krishi

Sinchai Yojana

54. National Mission On

Sustainable Agriculture

55. Atma Governing Body

56. Urvarak Vikray Samiti - This committee was formed recently in

June 2017.

Department of Transport

57. Sadak Suraksha/ Yatayat No These are important committees for

Samiti attending to road safety, traffic and
regulatory issues in transport in the
58. Bus Stand Nigrani Samiti district. Thus, they require the Collector's
presence.
59. School Bus Sanchalan
Samiti

Department of Public Health and Family Welfare

39
 Committee Delegation Remarks
60. Rogi Kalyan Samiti , Zila No This is an important committee for making
Chikitsaalay health related provisions for the poor. It
entails judicious use of RKS funds to this
end. Thus, it requires the Collector's
presence.

61. Zila Swasthya Samiti (13 No One single committee should exist for
Upsamitiyan): monitoring pertinent problems in the sub-
areas. Other sub-committees may be
handled by the CMHO and nodal officers
of respective programmes.

62. Committee for No The Collector's magisterial role is crucial in

inspection of ensuring paramedical institutions adhere
paramedical institutions to norms. Thus, it requires the Collector's
presence.

63. PCPNDT Samiti No The Collector's magisterial role is crucial in

ensuring sonography centres do not
violate the law, and incidence of female
foeticide are brought down. Thus, it
requires the Collector's presence.

Department of Science and Technology

64. Zila E-Governance No This area is a key focus for the

Society - 1 government and requires high-level inter-
departmental monitoring and
65. Zila E-Governance coordination. Thus, it requires the
Society - 2 Collector's presence.

Department of Water Resources

66. Zila Jal Upyogita Samiti No This committee is crucial for agriculture
and a major focus of the administration. It
also facilitates coordination with senior-
most public representatives over issues in
water distribution and use. Thus, it
requires the Collector's presence.

Department of Tribal Welfare

67. Van Adhikar Samiti No It is an important committee especially in

districts with large areas under forest
cover and high tribal populations. Thus, it
requires the Collector's presence.

40
 Committee Delegation Remarks
68. Antarjatiya Vivaah Yes These committees can be delegated to the
Protsahan Chayan Samiti CEO - Zila Panchayat as s/he primarily
handles matters related to the scheme.
69. Adivasi Vitt Vikaas The CEO - Zila Panchayat is also Ex-Officio
Nigam Laabhaarthi Director of Education and Additional
Chayan Samiti Commissioner - Tribal. Thus, the CEO is
sufficiently empowered and competent to
70. Anusoochit Jati Janjati handle matters brought to the notice of
Chatravaas Chayan this committee.
Samiti

71. Anusoochit Jati Janjati

Zila Stariya Satarkta
Evam Monitoring
Sammiti

Department of Revenue

72. Mining Task Force No In districts with major minerals this is a

very important committee for regulating
mining, and preventing illegal activities.
Thus, it requires the Collector's presence.

Department of Home

73. Shanti Samiti No This committee is crucial for the Collector

to maintain law and order in the district.

74. Disaster Management No Disaster management requires

Advisory Committee coordination and planning at the highest
level, and quick decision making powers.
Thus, it requires the Collector's presence.

Department of Finance

75. District Level (Bankers) No Financial inclusion is a primary focus in

Coordination Committee rural areas for the government. This
- DLCC committee is a very important and useful
tool in brining bankers together to resolve
schematic roadblocks and expedite
financial inclusion through inter-agency
coordination. Thus, it requires the
Collector's presence.

Department of Animal Husbandry

41
 Committee Delegation Remarks
76. Zila Gaupalan Evam No This committee can be delegated to an
Pashudhan Samvardhan Additional Collector rank officer.
Samiti

Department of Labour

77. Bandhak Shram Satarkta No This committee is part of the core

Samiti functions of the Collector. Thus, it requires
the Collector's presence.

Department of Co-operatives

78. Sahkari Sansthaon Mein - This committee should either be scrapped

Gaban Dhokhadhadi Ki as it is archaic and obsolete or it should be
Sameeksha delegated to any Additional Collector rank
officer.

79. Dugd Salahkaar Samiti - This committee is obsolete.

Department of Public Works

80. Gramin Evam Anya Zila - This committee can be scrapped as the
Margon Ko Mukhya Zila meetings are rarely held.
Marg Ghoshit Karne Ke
Liye Zila Stariya Samiti

Department of General Administration

81. Narmada Sewa Mission No Narmada development is a focus area for

Samiti the government, especially with the
impending Sardar Sarovar Project. Thus,
the Collector's presence is crucial here to
facilitate high level coordination and
monitoring.

Department of Energy

82. Committee for pump - This committee has been formed recently.
electrification scheme

42
 References

1. Ahmad, Junaid Kamal and Devarajan, Shantayanan and Khemani, Stuti and Shah,
Shekhar, Decentralization and Service Delivery (May 2005). World Bank
2. Akhileshwar Prasad Singh. 1994. The Changing Role of Collector and District
Magistrate. The Indian Journal of Political Science. Vol. 55, No. 2 (April - June 1994),
pp. 166-172

3. Craig Johnson. 2003. Decentralisation in India: Poverty, Politics and Panchayati Raj
4. Government of India. 2009. State and District Administration, Fifteenth Report of the
2nd Administrative Reforms Commission.

5. Government of India. State and District Administration. Fifteenth Administrative

Reforms Commission Report.
6. http://code.mp.gov.in/content/Eng/index.aspx.

7. N. Ambedkar. 2014. Changing contours of District Collector in Local Governance in

India, European Scientific Journal November 2014 edition vol.10, No.32.

8. Proceedings from 4th Annual Conference of Secretaries (Administrative Reforms)

16th July, 2012
9. S. Mishra. 1996. Changing Pattern of District Administration. New Delhi: Mittal
Publications.

10. World Bank. 2004. Overview of Rural Decentralization in India

http://www1.worldbank.org/publicsector/civilservice/june2004seminar/RuralDecen
t.pdf

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