Accessibility
The commissioner's office is a public office. Citizens, representatives and delegations come to it with grievances that have not been resolved lower down the system, and the working test of accessibility is whether that route stays open and whether it produces a result rather than a hearing.
Reporting from the Nagpur tenure records the pattern directly: a resident's visit to the commissioner's office followed by a detection target being set for the investigating teams. Access matters when it converts into instruction.