DOI Page / Citation link:
https://doi.org/10.11588/diglit.68025#0187
ROYAL COMMISSION UPON DECENTRALIZATION.
181
by constant unofficial communications and conferences
on all subjects of administration. Such unofficial
communications and conferences should be continued
and extended. I can remember no cases in which the
action of the Provincial Government has been too
much dominated by considerations of revenue.
The influence of the Commissioner of a division in
Bengal is as strong as he likes to make it in all matters,
unless in regard to Public Works and railway adminis-
tration.
Executive Officers in Bengal do not come sufficiently
into personal contact with the people, chiefly because
they are too much taken up with desk work, ^Iso
because they do not stay long enough in their charges.
Relief can be given by increasing and improving the
staff and establishment, and by the reduction of
correspondence.
Executive Officers in Bengal frequently do not
possess as much knowledge of the vernaculars as is
desirable. They have to master two distinct languages,
viz., Hindustani and Bengali, and if they serve in
Orissa they must master three languages. In addition
the province has many local languages and dialects.
Greater conversational fluency and greater readiness in
reading at least one language should ordinarily be
required. But it would be possible to require too
much in this matter. All persons have not the gift
of tongues ; and it may be remembered that Sir Ashley
Eden, who was among the best of District Officers and
administrators, is stated to have been a “ poor linguist.”
Intercourse with the people is prescribed, but is not
sufficiently required.
I have never served in a district which had a staff
at all adequate for the work. The district staff should
be strengthened. With regard to areas and charges,
the first requirements are that the Patna Division and
the Midnapur district should be divided, and that
Sub-Divisional Officers should be appointed for head-
quarters sub-divisions.
The care taken in selection of Commissioners, Heads
of Departments and officers of higher rank is ordi-
narily sufficient. Selection of District Officers would
be more careful if it were practicable to require com-
pulsory retirement of weak or otherwise inefficient
officers.
Transfers of officers both of the Indian Civil Service
and of the Provincial Executive Service are too fre-
quent. Increase of the cadre, specialization of depart-
ments, allocation of officers to districts for fixed
periods, and some regulation of leave would mitigate
the evil.
I am not in favour of establishing Advisory or
Administrative Councils for districts or divisions, with
responsible functions. The District Officer has his
district Board and Municipal Commissioners to deal
with the business committed to it; and he frequently
consults them collectively or individually on matters
not immediately within their cognizance. District
Officers and Commissioners of divisions frequently
consult, formally and informally, the Associations and
non official leaders of the communities. There is no
need to lay down hard-and-fast rules in the matter ;,
but neglect to take such advice, when it should be
sought, should always be pointed out.
It is desirable to give respected residents of villages
greater powers in the disposal of local affairs. This
matter is being carefully considered in Bengal. The
organization of such local authority itself requires a
special staff.
18801. Are the financial powers of the Lieutenant-
Governor sufficient ?—I think so. In matters of
establishments the Lieutenant-Governor’s powers might
well be increased.
18802. You say that the necessity of reference to
the Government of India often prevents questions
being brought forward. What kind of subjects have
you in your mind ? — The position of the Bengal
Secretariat was very aptly described in a letter of the
Government of India which referred to the question
of the grant of special pensions. The Government of
India said that in so many years they had only referred
25 cases of applications for special pension to the
Secretariat. No doubt, there would have been more
frequent grants of special pensions if the matter had
been in their own hands. In the case of a Local
Government it is too often a question, “ How will the
Government of India look at this question ; will it go
through ? ”
18803. Might that not possibly be a reasonable
check upon the desire of the Local Government to
give an excellent officer something more than he is
entitled to ?—No doubt there is much te be said in
favour of the check, but improvements and progress
are also impeded.
18804. The Board of Revenue acts in many ways as
a sort of consultative body to the Lieutenant-Governor
in this province ?—Yes, not only as a consultative body,
but they are a judicial tribunal with large powers.
They are defined in the Regulation as the Lieutenant-
Governor’s confidential advisers.
18805. If their consultative position was more defi-
nitely recognised, could the administrative powers
exercised by the Lieutenant-Governor be extended ; it
might be that the responsibility which is too heavy for
one man might be increased, if there were three men,
for instance ?—I am not aware that in matters of
real importance the Lieutenant-Governor has in fact
smaller powers than the Governors in Bombay and
Madras who have their Councils to help them.
18806. You do not think that the responsibility is
too great for one man ?—I do not.
18807. You say that there is some tendency in the
departments of the Government of India towards
rigidity and uniformity, and that they have not suffi-
cient knowledge of the conditions in Bengal and so
on ; would not one way of getting over that want of
knowledge be to demand statistics and information ?—
The way to get over it is to leave more control as to
details in the hands of the local authorities. For
instance, officers with great experience in settlement in
other provinces wished to apply their experience to the
conditions connected with Bengal settlement work,
but in Bengal it was considered that the analogy was
not complete, and the economies that were suggested
were earnestly deprecated.
18808. Have you noticed any tendency on the part
of the Government of India to increase their know-
ledge by periodical demands for information ?—I
should say that the tendeney was checked in Lord
Curzon’s time.
18809. Has it sprung up at all since then?—No.
18810. Do you in this Government make too many
demands on the time of local officers ?—I think it is
our constant effort to control any tendency in that
direction.
18811. Notwithstanding your efforts, might your
demands be still further curtailed ?—I think so ; since
conferences of Heads of Departments and Commis-
sioners were instituted four years ago, very useful
work has been done with regard to delegating powers
and cutting down reports, returns, and correspondence.
18812. We have been told that a great deal of in-
formation is demanded by the Board of Revenue in
the way of periodical returns ; has any systematic
attempt been made by the Board of Revenue to go
through the returns required from local officers ?—It
was done very thoroughly in the years 1902-03. From
time to time since in particular departments the reports
have been overhauled and considered in isolated cases,
not in the mass.
18813. Are there still outstanding returns which
might be dispensed with ?—I think it is quite possible
that some pruning might be done. I was, perhaps,
wrong in saying that the work had not been looked at
in the mass, because we had a Committee sitting a
year or two ago which enquired into the whole work
of the District Officers. The fact is that pruning and
examination of the returns and reports is constantly
going on under the examination of the superior in-
specting officers, whether it be the Board or the Com-
missioners of divisions. I suppose hardly a month
passes without their considering some return or report.
The improvement of the form and matter of the report
is discussed, and suggestions are made in the way of
reduction.
18814. Without any corresponding subsequent
attempt in another direction ?—I hope not. I should
say that a great deal has been done apart from Lord
Curzon’s orders in that direction.
18815. Do you agree with the evidence of the pre-
vious witness with regard to the work of Directors
and Inspectors-General ?—Generally I agree with Mr.
Slacke’s evidence.
The Hon.
Mr. William
Charles
Macpherson.
29 Jan., 1908
181
by constant unofficial communications and conferences
on all subjects of administration. Such unofficial
communications and conferences should be continued
and extended. I can remember no cases in which the
action of the Provincial Government has been too
much dominated by considerations of revenue.
The influence of the Commissioner of a division in
Bengal is as strong as he likes to make it in all matters,
unless in regard to Public Works and railway adminis-
tration.
Executive Officers in Bengal do not come sufficiently
into personal contact with the people, chiefly because
they are too much taken up with desk work, ^Iso
because they do not stay long enough in their charges.
Relief can be given by increasing and improving the
staff and establishment, and by the reduction of
correspondence.
Executive Officers in Bengal frequently do not
possess as much knowledge of the vernaculars as is
desirable. They have to master two distinct languages,
viz., Hindustani and Bengali, and if they serve in
Orissa they must master three languages. In addition
the province has many local languages and dialects.
Greater conversational fluency and greater readiness in
reading at least one language should ordinarily be
required. But it would be possible to require too
much in this matter. All persons have not the gift
of tongues ; and it may be remembered that Sir Ashley
Eden, who was among the best of District Officers and
administrators, is stated to have been a “ poor linguist.”
Intercourse with the people is prescribed, but is not
sufficiently required.
I have never served in a district which had a staff
at all adequate for the work. The district staff should
be strengthened. With regard to areas and charges,
the first requirements are that the Patna Division and
the Midnapur district should be divided, and that
Sub-Divisional Officers should be appointed for head-
quarters sub-divisions.
The care taken in selection of Commissioners, Heads
of Departments and officers of higher rank is ordi-
narily sufficient. Selection of District Officers would
be more careful if it were practicable to require com-
pulsory retirement of weak or otherwise inefficient
officers.
Transfers of officers both of the Indian Civil Service
and of the Provincial Executive Service are too fre-
quent. Increase of the cadre, specialization of depart-
ments, allocation of officers to districts for fixed
periods, and some regulation of leave would mitigate
the evil.
I am not in favour of establishing Advisory or
Administrative Councils for districts or divisions, with
responsible functions. The District Officer has his
district Board and Municipal Commissioners to deal
with the business committed to it; and he frequently
consults them collectively or individually on matters
not immediately within their cognizance. District
Officers and Commissioners of divisions frequently
consult, formally and informally, the Associations and
non official leaders of the communities. There is no
need to lay down hard-and-fast rules in the matter ;,
but neglect to take such advice, when it should be
sought, should always be pointed out.
It is desirable to give respected residents of villages
greater powers in the disposal of local affairs. This
matter is being carefully considered in Bengal. The
organization of such local authority itself requires a
special staff.
18801. Are the financial powers of the Lieutenant-
Governor sufficient ?—I think so. In matters of
establishments the Lieutenant-Governor’s powers might
well be increased.
18802. You say that the necessity of reference to
the Government of India often prevents questions
being brought forward. What kind of subjects have
you in your mind ? — The position of the Bengal
Secretariat was very aptly described in a letter of the
Government of India which referred to the question
of the grant of special pensions. The Government of
India said that in so many years they had only referred
25 cases of applications for special pension to the
Secretariat. No doubt, there would have been more
frequent grants of special pensions if the matter had
been in their own hands. In the case of a Local
Government it is too often a question, “ How will the
Government of India look at this question ; will it go
through ? ”
18803. Might that not possibly be a reasonable
check upon the desire of the Local Government to
give an excellent officer something more than he is
entitled to ?—No doubt there is much te be said in
favour of the check, but improvements and progress
are also impeded.
18804. The Board of Revenue acts in many ways as
a sort of consultative body to the Lieutenant-Governor
in this province ?—Yes, not only as a consultative body,
but they are a judicial tribunal with large powers.
They are defined in the Regulation as the Lieutenant-
Governor’s confidential advisers.
18805. If their consultative position was more defi-
nitely recognised, could the administrative powers
exercised by the Lieutenant-Governor be extended ; it
might be that the responsibility which is too heavy for
one man might be increased, if there were three men,
for instance ?—I am not aware that in matters of
real importance the Lieutenant-Governor has in fact
smaller powers than the Governors in Bombay and
Madras who have their Councils to help them.
18806. You do not think that the responsibility is
too great for one man ?—I do not.
18807. You say that there is some tendency in the
departments of the Government of India towards
rigidity and uniformity, and that they have not suffi-
cient knowledge of the conditions in Bengal and so
on ; would not one way of getting over that want of
knowledge be to demand statistics and information ?—
The way to get over it is to leave more control as to
details in the hands of the local authorities. For
instance, officers with great experience in settlement in
other provinces wished to apply their experience to the
conditions connected with Bengal settlement work,
but in Bengal it was considered that the analogy was
not complete, and the economies that were suggested
were earnestly deprecated.
18808. Have you noticed any tendency on the part
of the Government of India to increase their know-
ledge by periodical demands for information ?—I
should say that the tendeney was checked in Lord
Curzon’s time.
18809. Has it sprung up at all since then?—No.
18810. Do you in this Government make too many
demands on the time of local officers ?—I think it is
our constant effort to control any tendency in that
direction.
18811. Notwithstanding your efforts, might your
demands be still further curtailed ?—I think so ; since
conferences of Heads of Departments and Commis-
sioners were instituted four years ago, very useful
work has been done with regard to delegating powers
and cutting down reports, returns, and correspondence.
18812. We have been told that a great deal of in-
formation is demanded by the Board of Revenue in
the way of periodical returns ; has any systematic
attempt been made by the Board of Revenue to go
through the returns required from local officers ?—It
was done very thoroughly in the years 1902-03. From
time to time since in particular departments the reports
have been overhauled and considered in isolated cases,
not in the mass.
18813. Are there still outstanding returns which
might be dispensed with ?—I think it is quite possible
that some pruning might be done. I was, perhaps,
wrong in saying that the work had not been looked at
in the mass, because we had a Committee sitting a
year or two ago which enquired into the whole work
of the District Officers. The fact is that pruning and
examination of the returns and reports is constantly
going on under the examination of the superior in-
specting officers, whether it be the Board or the Com-
missioners of divisions. I suppose hardly a month
passes without their considering some return or report.
The improvement of the form and matter of the report
is discussed, and suggestions are made in the way of
reduction.
18814. Without any corresponding subsequent
attempt in another direction ?—I hope not. I should
say that a great deal has been done apart from Lord
Curzon’s orders in that direction.
18815. Do you agree with the evidence of the pre-
vious witness with regard to the work of Directors
and Inspectors-General ?—Generally I agree with Mr.
Slacke’s evidence.
The Hon.
Mr. William
Charles
Macpherson.
29 Jan., 1908