DOI Seite / Zitierlink:
https://doi.org/10.11588/diglit.68026#0107
ROYAL COMMISSION UPON DECENTRALIZATION.
101
(ii.) In the case of Provincial buildings if the
cost exceeds Rs. 5,000, and if the 8 per
cent, limit of salary is exceeded ; the Local
Government (being competent to sanction
buildings costing less than Rs. 5,000,
irrespective of limit of salary.
The restrictions could, of course, be relaxed in
many different ways, or altogether removed, par-
ticularly in the case of quarters chargeable to Pro-
vincial revenues. I do not, however, think that
the present demands, under Public Works Code,
1068, I. (a) are unreasonable. It is only asked
that the rent should cover the interest on the
capital outlay at 3 per cent, plus the annual
charges for maintenance. No private landlord
would be content with this small return on house
property ; and, except in special cases, I do not
see why an expert building department should
not be able to conform with the rule. It is true
that the references on the subject to the Govern-
ment of India are very frequent, but in the
majority of cases the references are avoidable.
The difference between the action taken by the
various provinces is very marked. Some provinces
work very loyally to the rules, and others refer to
the Government of India without any real neces-
sity ; and I may mention that those provinces
which refer least are not those most advantage-
ously placed in the matter of rates. The question
very largely depends on the personnel of the
Public Works Department of the time being. If
the Chief Engineer of the Buildings and Roads
Branch insisted on economical construction, and
in those provinces where there is a Consulting
Architect consulted him freely, I believe that the
number of references would be enormously reduced.
The removal of the restrictions altogether would
save the Government of India a good deal of
work, but it is quite certain that there would be,
for a time at any rate, a want of economy in
the provinces. The only check would be their
own financial check. The construction of
quarters for officials is everywhere on the increase,
and if these quarters were extravagantly designed
a time would come when the money pinch would
be felt and more attention would be paid to
economical design. I am inclined to think that
the restrictions had better not be entirely removed
at present ; the questions involved are largely per-
sonal, and it would be difficult for the head of a
province, however interested he might be in re-
ducing expenditure, to challenge the statement
of his professional adviser that the cost of any
building was a minimum. At the same time some
relaxation of the rulings might be permitted.
For instance, when the (Government of India
never refuse sanction when a full rental up to
10 per cent, of salary can be assessed, it is useless
to require references on excesses between 8 and
10 per cent. The minimum limit of Rs. 2,500
and Rs. 5,000, for Imperial and Provincial Works
respectively, up to which Local Governments and
Administrations can sanction without reference
to the Government of India might remain, but in
all other cases Local Governments and Adminis-
trations might be empowered to sanction expendi-
ture, the rental calculated on which under the
ordinary rules will not exceed 12 per cent, of
average salary. I consider also that if the limit
of cost is raised to 12 per cent, the limit recover-
able from an officer should be raised from 10 to
12 per cent, of salary and allowances.
44482*. Could the special restrictions as to ex-
penditure on residences of the Heads of Pro-
vinces and Circuit Houses be relaxed?—As regards
residences of Heads of Provinces, at present Local
Governments can sanction expenditure on original
works and special repairs on any one residence
and its connected buildings up to a limit of
Rs. 15,000 only in any one year. Beyond that
sum the sanction of the Government of India is
necessary.
The restriction regarding the limit of expenditure
might be removed, and Local Governments and
Local Administrations given powers to sanction
as in the case of ordinary works.
With regard to Circuit Houses, prior to 1903
there was no limit of expenditure, but in the
above year (in Public Works Department letter
No. 555 C. W.—B., dated 27th April, 1903), limits Mr. L. M.
of Rs. 25,000 for original construction and of Jacob.
Rs. 1,000 for extensions and alterations were fixed. -
In 1905 (Public Works Department No. 1330 4 -dpr., 1908.
C. W.—B., dated 2nd October, 1905), the limit for
original construction was raised to Rs. 30,000.
Local Governments and Administrations might
be given the same powers in regard to Circuit
Houses as they possess in respect of ordinary
public works.
44483*. Have you anything to add to what was
proposed in a recent circular letter of the Govern-
ment of India in regard to the grant of larger
powers of professional sanction to Superintending
and Executive Engineers ?—I have nothing further
to add at present. I attach a copy of my note
giving my own personal opinion on the subject,
and on which action was afterwards taken by the
Government of India in their letter No. 1352 E.,
dated the 5th November, 1907, to Local Govern-
ments and Administrations. The replies so far
received are entirely favourable to the suggestions
made by the Government of India, though they
differ in points of detail. When the case is
complete, the Government of India will no doubt
largely increase the powers of Superintending En-
gineers, and to a less extent those 'of Executive
Engineers.
Note.
The officer whose powers and responsibilities I
should like to see largely increased, is the Superin-
tending Engineer. To the Public Works Depart-
ment officer-establishment coach there may be
said to be four wheels—the Assistant, Executive,
Superintending, and Chief Engineers, and under-
present conditions the Superintending Engineer is
the weak wheel in it. If he happens to be a
weak, easy-going officer, he is liable to be a mere
dummy, and his office a post office between his
Executives and his Chief. He may of course be a
strong man, in which case he will make his
presence felt, but he will nevertheless chafe at
his fetters. I should like to see the Superin-
tending Engineers, Engineers-in-Chief of their
Circles, in fact I would call them so, and make
them practically responsible for all engineering.
They would then submit engineering details only
of large works, costing over some limit which
could be fixed, with any others that the Secre-
tary, Public Works Department, chose to call for
specially for any special reason. Freed from
having to report to their Secretary at every turn,
they would write a great deal less to him, and
be able to devote more time to their Executives,
preferably by sitting in their office chairs less and
inspecting more, and freely assisting their subor-
dinate officers with their advice.
The Secretary would then be, not Chief Engineer
and Secretary, but Director and Secretary, and
control the general Public Works Department
policy of the province under the orders of his
Local Government. This will not prevent him
inspecting ; on the contrary, relieved of much
drudgery, it will enable him to inspect the more.
And he should inspect the whole province to see
its needs, with time to think and initiate, and to
snake the personal acquaintance of his officers.
During such inspections he would not of course
neglect the engineering side, he would keep in
touch with what his Superintending Engineers
were doing, pointing out any improvements that
occurred to him, keeping his circles well informed
of good points in other circles, but otherwise not
interfering with the responsibilities of his circle
officers, on the contrary cultivating initiative on
their part, and seeing that they themselves
did not encroach on the duties of their subordinate
officers. In this way he could work eight circles
as easily as he could four under present con-
ditions, and he would have more time for adminis-
tration, which he should keep closely in his hands,
and be a more valuable adviser to his Local
Government.
The present state of affairs is the result of a
gradual change in the working of the Department.
In the old days, the Executive Engineer was really
an executive officer-—the officer executing works.
He had assistants—Assistant Engineers—themselves
destined to become Executives in a comparatively
101
(ii.) In the case of Provincial buildings if the
cost exceeds Rs. 5,000, and if the 8 per
cent, limit of salary is exceeded ; the Local
Government (being competent to sanction
buildings costing less than Rs. 5,000,
irrespective of limit of salary.
The restrictions could, of course, be relaxed in
many different ways, or altogether removed, par-
ticularly in the case of quarters chargeable to Pro-
vincial revenues. I do not, however, think that
the present demands, under Public Works Code,
1068, I. (a) are unreasonable. It is only asked
that the rent should cover the interest on the
capital outlay at 3 per cent, plus the annual
charges for maintenance. No private landlord
would be content with this small return on house
property ; and, except in special cases, I do not
see why an expert building department should
not be able to conform with the rule. It is true
that the references on the subject to the Govern-
ment of India are very frequent, but in the
majority of cases the references are avoidable.
The difference between the action taken by the
various provinces is very marked. Some provinces
work very loyally to the rules, and others refer to
the Government of India without any real neces-
sity ; and I may mention that those provinces
which refer least are not those most advantage-
ously placed in the matter of rates. The question
very largely depends on the personnel of the
Public Works Department of the time being. If
the Chief Engineer of the Buildings and Roads
Branch insisted on economical construction, and
in those provinces where there is a Consulting
Architect consulted him freely, I believe that the
number of references would be enormously reduced.
The removal of the restrictions altogether would
save the Government of India a good deal of
work, but it is quite certain that there would be,
for a time at any rate, a want of economy in
the provinces. The only check would be their
own financial check. The construction of
quarters for officials is everywhere on the increase,
and if these quarters were extravagantly designed
a time would come when the money pinch would
be felt and more attention would be paid to
economical design. I am inclined to think that
the restrictions had better not be entirely removed
at present ; the questions involved are largely per-
sonal, and it would be difficult for the head of a
province, however interested he might be in re-
ducing expenditure, to challenge the statement
of his professional adviser that the cost of any
building was a minimum. At the same time some
relaxation of the rulings might be permitted.
For instance, when the (Government of India
never refuse sanction when a full rental up to
10 per cent, of salary can be assessed, it is useless
to require references on excesses between 8 and
10 per cent. The minimum limit of Rs. 2,500
and Rs. 5,000, for Imperial and Provincial Works
respectively, up to which Local Governments and
Administrations can sanction without reference
to the Government of India might remain, but in
all other cases Local Governments and Adminis-
trations might be empowered to sanction expendi-
ture, the rental calculated on which under the
ordinary rules will not exceed 12 per cent, of
average salary. I consider also that if the limit
of cost is raised to 12 per cent, the limit recover-
able from an officer should be raised from 10 to
12 per cent, of salary and allowances.
44482*. Could the special restrictions as to ex-
penditure on residences of the Heads of Pro-
vinces and Circuit Houses be relaxed?—As regards
residences of Heads of Provinces, at present Local
Governments can sanction expenditure on original
works and special repairs on any one residence
and its connected buildings up to a limit of
Rs. 15,000 only in any one year. Beyond that
sum the sanction of the Government of India is
necessary.
The restriction regarding the limit of expenditure
might be removed, and Local Governments and
Local Administrations given powers to sanction
as in the case of ordinary works.
With regard to Circuit Houses, prior to 1903
there was no limit of expenditure, but in the
above year (in Public Works Department letter
No. 555 C. W.—B., dated 27th April, 1903), limits Mr. L. M.
of Rs. 25,000 for original construction and of Jacob.
Rs. 1,000 for extensions and alterations were fixed. -
In 1905 (Public Works Department No. 1330 4 -dpr., 1908.
C. W.—B., dated 2nd October, 1905), the limit for
original construction was raised to Rs. 30,000.
Local Governments and Administrations might
be given the same powers in regard to Circuit
Houses as they possess in respect of ordinary
public works.
44483*. Have you anything to add to what was
proposed in a recent circular letter of the Govern-
ment of India in regard to the grant of larger
powers of professional sanction to Superintending
and Executive Engineers ?—I have nothing further
to add at present. I attach a copy of my note
giving my own personal opinion on the subject,
and on which action was afterwards taken by the
Government of India in their letter No. 1352 E.,
dated the 5th November, 1907, to Local Govern-
ments and Administrations. The replies so far
received are entirely favourable to the suggestions
made by the Government of India, though they
differ in points of detail. When the case is
complete, the Government of India will no doubt
largely increase the powers of Superintending En-
gineers, and to a less extent those 'of Executive
Engineers.
Note.
The officer whose powers and responsibilities I
should like to see largely increased, is the Superin-
tending Engineer. To the Public Works Depart-
ment officer-establishment coach there may be
said to be four wheels—the Assistant, Executive,
Superintending, and Chief Engineers, and under-
present conditions the Superintending Engineer is
the weak wheel in it. If he happens to be a
weak, easy-going officer, he is liable to be a mere
dummy, and his office a post office between his
Executives and his Chief. He may of course be a
strong man, in which case he will make his
presence felt, but he will nevertheless chafe at
his fetters. I should like to see the Superin-
tending Engineers, Engineers-in-Chief of their
Circles, in fact I would call them so, and make
them practically responsible for all engineering.
They would then submit engineering details only
of large works, costing over some limit which
could be fixed, with any others that the Secre-
tary, Public Works Department, chose to call for
specially for any special reason. Freed from
having to report to their Secretary at every turn,
they would write a great deal less to him, and
be able to devote more time to their Executives,
preferably by sitting in their office chairs less and
inspecting more, and freely assisting their subor-
dinate officers with their advice.
The Secretary would then be, not Chief Engineer
and Secretary, but Director and Secretary, and
control the general Public Works Department
policy of the province under the orders of his
Local Government. This will not prevent him
inspecting ; on the contrary, relieved of much
drudgery, it will enable him to inspect the more.
And he should inspect the whole province to see
its needs, with time to think and initiate, and to
snake the personal acquaintance of his officers.
During such inspections he would not of course
neglect the engineering side, he would keep in
touch with what his Superintending Engineers
were doing, pointing out any improvements that
occurred to him, keeping his circles well informed
of good points in other circles, but otherwise not
interfering with the responsibilities of his circle
officers, on the contrary cultivating initiative on
their part, and seeing that they themselves
did not encroach on the duties of their subordinate
officers. In this way he could work eight circles
as easily as he could four under present con-
ditions, and he would have more time for adminis-
tration, which he should keep closely in his hands,
and be a more valuable adviser to his Local
Government.
The present state of affairs is the result of a
gradual change in the working of the Department.
In the old days, the Executive Engineer was really
an executive officer-—the officer executing works.
He had assistants—Assistant Engineers—themselves
destined to become Executives in a comparatively