Module I

Unit 1

1
AN INTRODUCTION TO PUBLIC
ADMINSTRATION
Meaning & Scope
Unit Structure 0.1 Introduction
0.2 Definition of Public Adminstration
0.3 Scope of Public Adminstration
0.4 Role and Importance of Public Adminstration.
0.5 Unit End Questions

OBJECTIVE
Public Adminstration is an activity as old as human civilization. In
modern age it became the dominant factor of life. To Study about
meaning, scope and importance of Public Adminstration is the main
objective of this unit.

1.1 INTRODUCTION
Public Adminstration as independent Subject of a social science
has recent origin. Traditionly Public Adminstration was considered
as a part of political science. But in Modern age the nature of
state-under went change and it became from police stale to social
service state. As a consequence, the Public Adminstration,
irrespective of the nature of the political system, has become the
dominant factor of life. The modern political system is essentially
bureaucratic and characterised by the rule of officials. Hence
modern democracy has been described as executive democracy
or bupeaucratic democracy. The adminstrative branch, described
as civil service or bureaucracy is the most significant component of
governmental machinery of the state.
1.2 Meaning of Public Adminstration :Administer is a English word, which is originated from the Latin
word ad and ministrare. It means to serve or to manage.
Adminstration means mangement of affairs, public or private.
Various definitions of Public Adminstration are as follows1.2.1 : Prof. Woodrow Wilson, the pioneer of the social science of
Public Adminstration says in his book The study of Public

2
Adminstration, published in 1887 Public Adminstration is a
detailed and systematic application of law.
1.2.2 : According to L. D. White Public Adminstration consists of all
those operations having for their purpose the fulfilment of public
policy as declared by authority. Both above definitions are done
from traditional viewpoint and related only to the functions and
actions of Adminstration.
Following thinkers have taken a broard view while defining Public
Adminstration 1.2.3: According to Simon - By Public Adminstration is meant the
activities of the executive branches of the national, state, & local
governments.
According to Willough - Public Adminstration in broadest sense
denotes the work involved in the actual conduct of governmental
affairs, and in narrowest senses denotes the operations of the
administrative branch only.
1.2.4 : According to Gullick Public Adminstration is that part of the science of administration
which has to do with government and thus, concerns itself primarily
with the executive branch where the work of the government is
done.
1.2.5 : According to Waldo Public Adminstration is the art and science of mangement as
applied to the affairs of the state.
1.2.6 : Marshall E. Dimock Administration is concerned with what and How of the
government. The what is the subjectmatter, the technical
knowledge of afield which enables the administrator to perform his
tasks. The How is the technique of management according to
which co-operative programmes are carried to success.
2.2.7 : Conclusion :All above modern definitions of Public Adminstration emphasize the
value based character of Public Adminstration and Public
Adminstration as a science and art of administration. A close scrutin
of the definitions reveal that Public Adminstration has following
important characteristics or features.
1.2.8 : Important characteristics of Public Adminstration :1. It is part of executive branch of government.
2. It is related with the activities of the state.
3. It carries out the public policies.
4. It realise the aspirations of the people as formulated and

5.

6.

expressed in the laws.

Waldo and other thinkers insist on the commitment and
dedication to the well being of the people. Otherwise Public
Adminstration behaves in a mechanical, impersonal and
inhuman way.
Public Adminstration is politically neutral.

1.3 : SCOPE OF PUBLIC ADMINSTRATION

1.3.1 Introduction :The views of L.D. White and traditionalist on the one hand and
those of Gullick and the scientific management school on the other
hand differ regarding the nature and scope of Public Adminstration.
Hence, we should understand verious perspectives about the scope
of Public Adminstration.
Scope :Following are the three important perspectives about the scope of
Public Adminstration.
1. Narrow perspective or posdcord perspective.
2. Broad perspective or subjectmatter view.
3. Prevailing view.
1.3.3 : Narrow perspective or posdcord perspective Luther Gullick is the main exponent of this perspective. According
to him the scope of public administration is narrow or limited. It is
also regarded as posdcord view. It insist that the Public
Adminstration is concerned only with those aspects of
administration which are related with the executive branch and its
seven types of administrative functions.
These seven types of functions which shows the scope of Public
Adminstration are as follows 1. P stands for planning
2. O stands for organization
3. S stands for staffing.
4. D stands for Directing.
5. Co. stands for Co-ordination.
6. R stands for Reporting
7. B stands for Budgeting
1. P stands for Planning Planning is the first step of Public Adminstration. i.e. working out
the broad outline of the things that need to be done.
2. O stands for organization It means establishment of the formal structure of authority through
which the work is sub-divided, arranged and co-ordinated for the
defined objective.

4
3. S stands for staffing It means the recruitment and training of the staff and maintenance
of favourable conditions of work for the staff.
4. D stands for Directing It means the continuous task of making decisions and embodying
them in specific and general orders and instructions, and thus
guiding the enterprise.
5. Co stands for Co-ordination It means interrelating the various parts of organization such as
branches, divisions, sections of the work and elimination of
overlapping.
6. R stands for Reporting It means informing the authority to whom the executive is
responsible as to what is going on.
7. B stands for Budgeting It means accounting, fiscal planning and control.
Evaluation POSDCORB Perspective about the Scope of Public Adminstration
is limited and narrow. It stressed on the tools of Public
Adminstration. It does not show the substance of administration. It
is a technique oriented perspective, not a subject oriented.
1.3.4 :
2. Broad perspective or subject - oriented perspective :Prof. Woodrow Wilson, L D While are main exponent of this
perspective. They have taken a very broad approach about the
scope of Public Adminstration.
According to them (A) Public Adminstration covers all three
branches of the government. Legislative, Executive and Judicial
and their interrelationship. Legislative organ makes the laws,
Executive organ of the government implements the laws. and
Judicial organ of the government interprets the laws. There is
interrelationship between these three organs.
B) Scope of Public Adminstration is like a cooperative group. It
consist of all from class one officer to class four employees.
C) Public Adminstration is a part of the political process. It has an
important role in the formulation of public policy at all levels, from
national to grassroot. It is closely associated with numerous private
groups and individuals in providing services to the community. It
has been influenced in recent years by the human relations
approach.

5
1.3.5 :
3. Prevailing view :Prevailing view divides the scope of Public Adminstration into two
parts.1) Administrative theory
2) Applied administration
1. Adminstrative theory It includes the following aspects.
a) Organisational Theory The Structure, organization, functions and methods of all types of
public authority engaged in administration, whether national,
regional or local and executive.
b) Behaviour The functions of adminstrative authorities and the various methods
appropriate to different types of functions. The various forms of
control of administration.
c) Public Personal Adminstration The problems concerning personnel e.g. recruitment, training,
promotion, retirement etc. and the problems relating to planning,
research, information and public relation services.
2. Applied administration It includes the following aspects :a) Political functions It includes the executive - legislative relationship, administrative
activities of the cabinet, the minister and permanent official
relationship.
b) Legislative function It includes delegated legislation and the preparatory work done by
the officials in connection with the drawing up of bills.
c) Financial functions It includes total financial administration from the preparation of the
budget to its execution, accounting and audit etc.
d) Defence - Functions relating to military adminstration.
e) Educational function - It includes functions relating to educational
administration.
f) Social welfare administration It includes the activities of the departments concerned with food;
housing, social security and development activities.

6
g) Economic Adminstration It is concerned with the production and encouragement of industries
and agriculture.
h) Foreign administration It includes the conduct of foreign affairs, diplomacy, international
cooperation etc.
i) Local administration It concern with the activities of the local self-governing institutions.
1.3.6 : Conclusion :The modern state cannot confine its field of activities to only
maintenance of law and order, dispensation of justice, collection of
revenue and taxes. The modern state is expected to provide more
and more services and amenities to the people. This results in
tremendous growth both in the governmental responsibilies as well
as in the administrative machinery of the state. Naturally the scope
of public administration is increased.
1.3.7 :
Table - Scope of Public Adminstration
Three perspectives
1

Narrow perspective
or
POSDCORB

Broad perspective

Prevailing view divides

the scope in two parts.

1) Planning
2) Organisation
3) Staffing
4) Directing
5) Co-ordination
6) Reporting
7) Budgeting
Exponent - LutherGullick
View - Technique Oriented

1) Covers all three branches

of the govt
2) like a cooperative group.
3) Part of political process
exponent - Woodrow Wilson
View - Subject oriented

Adminstrative Theory
1. Organisational Theory
2. Behaviour
3. Public personal
Adminstration.

Applied administration
1. Political functions
2. Legislative
3. Financial
4. Defence
5. Educational
6. Social Welfare
7. Economic
8. Foreign Administration
9. Local

7
1.7 : Role and Importance of Public Adminstration In todays modern state and in developing countries functions and
role of Public Adminstration is very important. The role and
importance of Public Adminstration are as follows.
1. It is the basis of government.
2. It is the instrument of change in the society.
3. It plays vital role in the life of the people.
4. It is an instrument for executing laws, policies, programmes of
the state.
5. It is a stabilising force in the society as it provides continuity.
6. It is instrument of national integration in the developing countries
which are facing classwars.
1. It is the basis of Government It is possible for a state to exist without a legislature or judiciary; but
not even the most backward state can do without administrative
machinery. The modern state cannot confine its field of activities to
merely maintenance of law and order, dispensation of Justice,
collection of revenue and taxes and participation in welfare
activities. The modern welfare state is expected to provide more
and more services and amenities to the people. Public
Adminstration is the machinery used by the state to place itself in a
position to make plans and programmes that can be carried out.
2. It is the instrument of change in the society Public Adminstration is regarded as an instrument of change and is
expected to accelerate the process of development. In our country,
the government has undertaken the task of levelling down the
economic inequalities, spreading education among all abolishing
untouchability securing equality of status, rights of women and
effective and all round economic and industrial development. The
burden of carrying out these social changes in a planned and
orderly way rests upon the Public Adminstration of the country. The
success of Indian democracy will depend not only on the wisdom of
the legislature but more on the capability and sense of purpose on
the part of the Adminstration.
3. It plays vital role in the life of the people Today every aspect of human life come within the range of Public
Adminstration. Various departments of government such as
education, social welfare, food, agriculture, health, sanitation,
transport, communication etc. are run by the department of Public
Adminstration. Thus Public Adminstration is rendering various types
of services to the people from birth to death of an individuel.
4. It is a stabilizing force in the society as it provides continuity
Public Adminstration is carried on by the civil servants who are the
permanent executives. Political executives i.e. ministers may come
and go, systems of government or constitutions may under go
change but administation goes on for ever. Hence, Public

8
Adminstration is a great stabilising force in society. It is a preserver
of the society and its culture.
5. It is instrument of national integration in the developing
countries which are facing classwars
Conclusion The success of governement is dependent on the ability of public
administration. The future of civilized government rests upon the
ability, to develop a service and philosophy and a practice of
adminstration competent to discharge the Public functions of
civilized society.
1.5 : QUESTIONS UNIT END QUESTIONS
1.
2.
3.

Define Public Adminstration and discuss its scope.

What is Public Adminstration? Examine its role in the modern
state.
Write short notes 1) Importance of Public Adminstration
2) POSBCORB

Module 1
Unit 2

2
CHANGING NATURE OF PUBLIC
ADMINISTRATION
Unit structure :2.0 Objective :2.1 Introduction
2.2 Changing nature of Public Administration
2.3 Comparative Public Administration
2.4 Development Administration
2.5 New Public Administration
2.6 Unit End Questions

2.0 OBJECTIVE
Today every aspect of human life is within the range of public
administration. In that context we should understand the changing
nature and new trends of Public Administration.

2.1 INTRODUCTION
Public Administration as an activity as old as human civilization. But
as a social science theorization on public administration is very
recent. In 1887, Woodrow wilson has written the book on The
Study of Public Administration, and laid the foundation of the
science of Public Administration. After that it had underwent rapid
transformation in its scope, nature and role. Avasthi and
Maheshwari have divided the evolution of Public Administration into
the following five phases.
2.2 Changing nature :It is divided into five phases.
1.

1887 to 1926

1927 to 1937

1938 to 1947

Period of
Dichotomy

1) developed as Behavioural
independent
Challenge
discipline
2) Posdcord view
3) developed
principles of
administration
4) Science

1948 to 1970 1971 onwads

Crisis of
identity

New
Public
administration
Public policy
prespective

10
2.2 1. Phase I - 1887-1926 :About the changing nature of Public Administration, in this phase
following changes came out a) Separation of Public Administration from political science
b) Public Administration is the visible side of Goverment.
c) Prof. Woodrow Wilson has given definition, nature, role and
importance of Public Administration.
d) L. D. White has written the first textbook on the subject i.e.
Introduction to the study of Public Administration.
Prof. Woodrow Wilson is called the Father of Public Administration
because the genesis of the subject can be traced back to Wilsons
book The study of Public Administration published in 1887. In this
book he made a distraction between political - Science and Public
Administration. Before this, it was treated as a branch of political
science. Secondly, while commenting on the role of Public
Administration, he said Administration is the most obvious part of
government. It is government in action and the most visible side of
the government. Hence, he defined Public Administration as
detailed and systematic application of law. It consists of all those
operations having for their purpose the enforcement of public policy
as declared by authority. He argued for a science of administration
Which shall seek to straighten the paths of government. Thus,
Wilson had projected the dichotomy view, which was picked up by
other writers.
In 1900, Frank J. Goodnow published his book Politics and
Administration. In his book he developed the wilsonian theme. He
argued that Politics and administration were two distinct functions
of a government. According to him politics formulate the policies
and administration execute these policies. Thus, Goodnow made a
technical distinction between politics and administration.
In 1926, L. D. While published the first text-book on the subject.
This book reflects the theme of dichotomy between politics and
administration. He emphasized that politics and administration are
to be kept separate. He also visualized involvement of
administration in policy matters and through policy with politics.
Conclusion It may be seen that the dominant feature of the first period was a
passionate belief in politics - administration dichotomy.
2.2.2. Phase II - 1927-1937 :
In the changing nature of public Administration this period can be
called as principles of Administration and established the discipline
of Public Administration as an independent science.
In 1927, W.F. Willough has written a book Principles of Public
Administration. The title of the book indicates the new thrust in

11
thinking and established the subject as an independent science.
This period witnessed publication of a number of important works
on this subject. The more important among them are 1. Mary Parker Follefts Creative Experience
2. Henri Fayols Industrial and General Mangement.
3. Mooneys Principles of Organisation.
4. Luther Gulick Science of Administration.
Gulick explained the principles of administration. These are seven
principles known as POSDCORB.
Conclusion - Thus in this period subject acquired 1) The Status of separate subject of social science
2) Secondly. It was considered, as the science of administration.
3) Developed the principles of administration and theories. These
theories and principles were in great demand both in government
and business.
2.2.3) Phase III - 1938-1947 :This period brought new changes in the nature of Public
Administration
1. Some thinkers refuted politics administration dichotomy.
2. They challenged the claim of Public Administration as a science.
3. Emphasised the environmental effects on adminstrative
behaviour.
While Public Administration Was taking shape as an independent
discipline, C. I. Barnard, Simon, Robat Dahl challenged the claim of
Public Administration as a science of administration. These thinkers
disagrees with the stand taken by Gullick. Simon, in 1947 published
his book Administrative Behaviour. In that he said there is no such
thing as principles of administration; what are paraded as
Principles are in truth no better than proverbs. There is lack of
scientific validity and universal relevancy in Public Administration.
Robert Dahl emphasizes the need to take into account normative
considerations, human behaviour and sociological factors while
defining the parameters of public administration. He brought
behaviouralism in Public Administration. He emphasised the
environmental effects on administrative behaviour.
Conclusion - Hence this period is called as era of challange to
Public Administration.
2.2.4. Phase IV - 1948 to 1970
Owing to the challenge posed by the behaviouralist, the discipline
of Public Administration passed through the crisis of identity in the
forth phase.

12
Because pre 1947 viewpoint upheld the politics - administration
dichotomy and the post 1947 view point adocated their fusion.
Pfiffner stated that politics and administration are so intermingled
and confused that a clear distinction is difficult.
Kingsley saw Adminstration as a branch of Politics.
Paul Appleby upheld the fusion view, He said at higher levels
administration is more generalised, takes on a greater poitical
character and has a total governmental significance. At lower
levels, it is less political and more particularistic.
1) Waldo in his Administrative State (1948) Widened the orientation
of Public Administration to include policy issues and decision making processes.
On the other hand, many political scientists began to argue that the
true objective of Public Administration was intellectualized
understanding of the executive. There was also a talk of continued
dominion of political science over Public Administration.
In Short, this period witnessed the spectacle of Political - Science
not only letting Public Administration separate itself from it, but also
not fostering and encouraging its growth and development within its
own field.
Therefore, in the post world war II period, the credentials of Public
Administration to being a science and a distinct discipline and apart
from political, - Science were questioned. This led to the twin
development of Public Administration being viewed as political
science an also as an Administration science.
2.2.5. Fifth Phase 1971 onwards
In this period Public Administration registered great progress and
enriched vision.
1. Focus on the dynamics of adminstration.
2. It is considered as inter-disciplinary.
3. Talk of New Public Administration
4. New trends emerged in the subject of Public Administration i.e.
i) Comparative Administration
ii) Development Administration
iii) Market orientation - State and Market
1. Focus on the dynamics of administration It is focusing its attention on the dynamics of administration. It is
also drawing heavily on the management sciences.

13
2. It is considered as inter-disciplinary- Public Administration has
attracted within its fold scholars from various disciplines and thus is
becoming inter-disciplinery in its nature.
2.3. New trends :-

2.3. COMPARATIVE PUBLIC ADMINISTRATION

Fred Riggs is the father of Comparative Public Administration. In
1962 Fred Riggs in his article Trends in comparative study of
Public Administration, emphasised on following points :2.3.1) (A) Emphasised the need to study politico-administrative
institutions in their Social settings.
After the second world war, the study of third world countries
became a common subject of almost all social sciences. Scholars
of comparative Public Administration analysed the question of
administrative development to direct socio-economic change in
cross - cultural contexts.
b) Hence Comparative Public Administration means cross-cultural
and cross national study of Public Administration.
c) To understand impact of comparative Public Administration is
necessary.
d) Fred Riggs pointed out three trends in the Comparative study of
public administration.
1) From normative to empirical orientation.
2) From ideographic to nomothetic orientation
3) From non-ecological to ecological orientation
1) From normative to empirical orientation It means emphasis on the scientific methods, with a view to evolve
the science of public Administration, Normative study stress on
What ought to be and Empirical study stress on What is. In
comparative Public Administration we study from What ought to
be to What is.
2. From ideographic to nomothetic orientationIdeographic orientation means study of one nation only or
individualistic studies. e.g. concentration on the unique case or
case study, the single country, the biography etc.
Nomothetic orientation means Universal studies. This approach
seeks generalisations, laws hypotheses that assert regularities of
behaviour, correlation with variables. In comparative public
administration, we go from individualistic study to universal study.

14
From non-ecological to ecological orientation The ecological orientation meant the study of the environment of
the administrative system and interaction between the two.
Administrative system operates within the political system and is
also influenced by social and economic forces. Thus the political,
social and economic factors constitute the environment of the
administrative system.
E) Comparative administrative studies have been conducted
on three levels.
1

Macro studies

Middle Range studies

Micro studies

1. Macro studies
It means focus on the comparisons of whole administrative system.
e.g. India and the United States in their ecological contexts.
Generaly the relationship between an administrative system and its
external environment are highlighted in the macro level studies.
2. Middle Range studies
It means studies are of specific aspects of administrative system.
e.g. a comparison of local government in different countries.
3. Micro studies
It relates to an analysis of a part of an administrative system. e.g.
the recruitment or training in two or more administrative
organisations.
Thus the question of modernisation and developmental diversity in
different systems are of great importance to the students of
comparative public administration.
F) Ramesh Arora has summed up the elements of comparative
public administration as under :1. Cross cultural Comparison
2. Developmental Dimensions
3. Ecological perspective
4. Goal orientation
1. Cross cultural comparison It means broad comparisons among administrative system of
western and non-western countries.
2. Developmental Dimensions It means broad comparison of linkage with the question of
modernisation.

15
3. Ecological perspective It means comparative study of the interaction between the
administrative system and their environment.
4. Goal orientation It means analysis of the unique goals of particular cultures in
relation to their administrative system.
2.3.2 Importance
administration :-

of

the

study

of

comparative

public

1. Provide a scientific basis and help for theory building.

Now it is believed that generalisations relating to administrative
structures and behaviour emerging out of comparative studies in
different nations and cultures can help informulating theoretical
constructs which can provide a scientific basis to the study of public
administration
2. Contributes to a greater understandingThe study of comarative public administration contributes to a
greater understanding of the individual characteristics of
administrative system functioning in different nations and cultures.
Besides, Comparative studies also help in explaining factors
responsible for cross-national and cross-cultural similarities as well
as difference in the administrative system.
3. Can understand impact of environmental factors on
administration Through comparative analysis we can find out which important
environmental factor help in the promotion of administrative
effectiveness and which administrative structures function
appropriately and successfully in what type of environmental
settings. Accordingly we learn about the administrative practices
followed in various nations and then we can try to adopt those
practices which can fit in our own nations and systems.
4. Academic utility Scientific and systematic study of public administration is possible
with the approach of comparative study. Appropriate administrative
reforms and changes can be brought about in different nations.

16
2.3.3 Table - Comparative Public Adminstration.
1

Study of
administrative
institutions in
their social
settings.

Cross cultural
crossnational
study

Fred Riggs

Three levels
U

Father of this
Trend
Pointed 3
trends

Ramesh Aropa
explained
1. Cross-cultural
2. Developmental
Dimensions
3. Ecological

1
Narmative to
empirical

2
Ideographic
to nomothetic

5
Ramesh Aropa
explained
1. Cross-cultural
2. Developmental
Dimensions
3. Ecological
Perspective
4. Goal
orientation

6
Importance
of the Study

3
non-ecological
to ecological

2.4 DEVELOPMENT ADMINISTRATION

The concept of Development Administration is a development of the
post 1945 era. Following reasons are responsible for the
emergence of this concept 2.4.1 Reasons :
1. Emergence of newly independent developing countries.
2. Development schemes in the developing countries.
3. Establishment of comparative administration group in 1960
1. Emergence of newly independent developing countries :The traditional concept of public Administration as law and order
machinery or revenue administration underwent transformation with
the emergence of the Welfare state during the 20th century. Also It
a was response to the emergence of the Newly Independent
states in Asia and Africa, These countries have problems of
poverty, unemployment, illiteracy, malnutrition etc. In these
countries, the government and its administrative machinery are
looked upon as agents of change. The necessities have made the
administration in developing countries development - oriented.
2. Development schemes in the developing countries :These developments have had a profound impact on the public
administration. The concern with administration for development
has compelled attempts to formulate a system of thought capable of
integrating complex socio-economic and political systems hitherto
considered to be outside the area of public administration. Further,
most developing countries have realised that national development
is essentially an integrated process of change. It is a dynamic
process directed towards transforming the entire society,
enmeshing its economic, social, political and administrative
aspects, for an alround, balanced change.

17
3. Establishment of comparative Administration group in 1960D. Waldo, Fred Riggs, Weidner were talk of New Public
Adminstration. These scholars in 1968, in Minnibook conference,
attempted to define public Administration anew. They focussed on
the concept of development administration, in different ecological
settings, operates in order to achieve a set of social goals.
2.4.2 Meaning and definitions of development administration :
Weidner stated that Development Administration means an actionoriended and goal-oriented administrative systems. Weidner
emphasised that the study of development administration can help
to identify the conditions under which a maximum rate of
development is sought and obtained. He contended that existing
models for comparison were limited in their usefulness because
they made inadquate provision for social change. He suggested
development administration as a separate focus for research, the
end being to relate different administrative roles, practices,
organisational arrangements and procedures to the maximising of
development objectives. Pai Panadikar identifies Development
Administration with administration of planned change.
2.4.3 Hallmarks of Development Administration :1. Change - oriented
2. Goal - Oriented and result oriented
3. Citizen participation in the administration
4. Commitment to development
5. integrated and holistic process
6. It has two sides one is
development programmes and other is
Its implication
7. Its scope of Operation is wide.
8. Stress on planning
9. believes in decentralization.
1. Change - oriented
Development administration is change-oriented. Traditional
administration which was oriented towards the maintenance of
stability and statusquo. Hence, Pai Panandikar said development
Administration means administration of planned change. The
planned development is intended to achieve specific results within
the specified time.
2. Goal-oriented and result-oriented
It is result-oriented. It expects specific results and expresses in
most areas clearcut norms of performance. Consequently, it would
also be judged on the basis of results achieved.

18
3. Citizen participation Development being a process of social and economic change,
citizen participation in the task of administration is vital. The public
servants must be able to carry the citizens with them and draw
them activety into the developmental processes. To basic change in
the outlook of the civil servants.
4. Commitment to development
Development administration requires a firm commitment, a sense of
involvement and concern on the part of civil servants, if the goals of
development are to be realised.
5. Integrated and holistic process Development administration is inter-related and holistic process of
change. It refers to the structure, organisation and behaviour
necessary for the implementation of schemes and programmes of
socio-economic change undertaken by the governments of
developing nations.
2.4.4 : 6. It has two sides Firstly, it refers to the administration of developmental programmes,
the methods used by large-scale organizations, especially
governments, to implement policies and plans designed to meet
developmental goals.
Secondly, Development Administration involves the strengthening
of administrative capabilities. These two aspects are intertwined in
development administration.
7. Its scope of operation is wide Traditional public administration was limited to its function of
maintaining law and order. But the scope of development
administration is wider.
8. Stress on planning It is planned change. The administrative
strengthened to achieve developmental goals.

capabilities

are

This objective is linked with planning. The planned development is

intended to achieve specific results within the specified time.
9. Believes in decentralization Traditional administration believes in centralization.
Development administration believes in decentralization.

But

2.4.5 : Difference between traditional public administration and

Development Administration :Development Administration 1. change - oriented

19
2. goal and result oriented
3. flexible and dynamic
4. Its objectives are complex and multiple
5. Concerned with new tasks.
6. believes in decentralization
7. stress on planning
8. Creative and innovative
9. Stress on participation of people
Traditional Public Administration
1. Status-quo oriented
2. emphasis on economy and efficiency
3. It is hierarchical and rigid.
4. Its objectives are simple and limited.
5. Concerned with routine operations.
6. believes in centralization.
7. Does not rely much on planning.
8. It resists organisational change.
9. Stress on directions from authority.
2.4.6 Conclusion :Though there is difference in public administration and
Development administration, yet both are supplimentary to
eachother. One cannot sustain in the absence of another.
2.4.7 Table :Development Administration
1

Reasons of
Emergence
of public
administration

Definitions

1. Developing Countries
2. Developing Schemes
3. Comparative
administraion

Hallmakrs

Difference
between
Development
Administration
and Public
Administration

1. Change - Oriental
2. Result - Oriental
3. Citizen Participation
4. Commitment to development
5. Integrated
6. development programmes
7. operation is wide
8. Stress in planning
9. believes in decentralization.

2.5 NEW PUBLIC ADMINISTRATION

Introduction :- In the evolution of Public Administration one more
stage is the emergence of New Public Administration. During
1960s it was found that the science of Public Administration

20
displayed unawereness of numerous socio-economic and political
problems as well as its inadequacy to offer any solution to the
problems.
2.5.1 : Emergence
In 1967, American Academy of political and social science
organised a conference in Philedelphia. The topic was The Theory
and practice of Public Administration : Scope, objectives and
methods. In this conference participants expressed their views and
after discussion following points emerged 1. Bureaucracy should be studied structurally as well as
functionally.
2. Definition of the subject is as difficult as de-lineation of its
scope.
3. A hierarchical view of organisational authority needs to be
changed; administrators must view workers as coordinates
rather than subordinates,
4. Policy and political considerations are replacing management
concerns as the major focus of public Administration.
5. Future administrators should be trained in professional schools.
Public Administration courses should emphasis not only
Administrative organisation and procedures but also in
interdisciplinary approach.
6. Public Administration has not been able to deal with societal
problems.
Conclusion of the discussion was - Public Administration should be
viewed as an acadmic discipline, as a field exercise and as
administration in the public interest.
2.5.2 In 1968 in Minnowbrook conference Dwight Waldo expressed
following points about new Public Administration.
1. What is the proper terrain of Public Administration?
2. What are the logics of inquiry appropriate to the tarrain?
3. What is the social relevance of knowledge in Public
Administration?
In 1971, Frank Marini published a book Towards a new Public
Administration New Public Administration emphasis on the
following themes :1. Rejected the value neutral view
2. Less generic and more public
3. Stress on social equity
4. Anti-bureaucratic, anti-hierachical, anti-technical.
5. Socially conscious and client oriented view.
6. Stress on Decentralization of administrative process.
7. Stress on qualitative transformation.

21
1. Rejected the value neutral view The new Public Administration made clear its basic normative
concern in administrative studies. It rejected the value neutral view
taken by behavioural political science.
2. Less generic and more public New Public Administration stresses on innovation and change.
Hence, it take more public and client oriented view.
3. Stress on Social equity The protagonists of new Public Administration state that the
distributive functions and impact of governmental institutions should
be Public Administrations basic concern. The purpose of public
action should be the reduction of economic and social disparities
and the enhancement of life opportunities for all social groups.
They take action-oriented stand and said that Public Administrators
should work for the removal of the wrongs of society.
4. Anti-bureaucratic, anti-theoretic and anti-technical To serve the cause of social equity is to actively work for social
change. The attack is on the status-quo and against the powerful
interest entrenched in permanent institutions.
5. Take client-oriented and socially Conscious view In the third - world countries where Public Administration is in dire
need of basic, qualitative transformation. New Public Administration
displays an intense concern for relevant societal problems.
6. Stress on Decentralization of Administrative process New Public Administration give importance to Institutional pluralism.
Functions, responsibilities should be distributed in many parts.
7. Stress on qualitative transformation It stresses ethics and values. It lays emphasis on change. The
study of formal organisation, its structure and processes is of
secondary importance to the new theorists.
According to this new approach the most important need of the
times is to be alive to the contemporary issue and problems with a
view to finding ways and means for their solution, and to have
organisational change to suit the changing times.
2.5.3 Conclusion - Public Administration of the state will become
more meaning and useful with this characteristics of new Public
Administration.
Table - New Public Administration
1. Origin and development
2. Characteristics

22
3. Conclusion

2.6 QUESTIONS
1.
2.
3.
4.

Trace the evolution of Public Administration.

Explain the changing nature of Public Administration.
Comment on any one of the new concept in the science of
Public Administration.
Write short Notes.
1. Comparative Administration
2. Development Administration
3. New Public Administration

Module 2
Unit 3

3
WORKING OF BUREAUCRACY
Theory of Bureaucracy - Max weber
Unit Structure :3.1.1 i) A brief life sketch of Max Weber
3.1.2 ii) Max Webers writings & contribution to the field of state &
Administration.
3.1.3 iii) Theory of Bureaucracy
3.1.4 iv) Model of Bureaucracy
3.1.5 v) Principles of Bureaucracy
3.1.6 vi) Appraisal & Criticism
3.1.7 vii) Conclusion / Let us sum up
3.1.8 viii) Glossary
3.1.9 Suggested Readings
3.1.10 Question Pattern
3.1 : Theory of Bureaucray : Max Weber (1864-1920)

3.0 OBJECTIVES
Public Administration has become an important branch of the
modern Government. It is regarded as heart of modern civilisation,
also as backbone of states machinery. Max Weber, a German
Socilologist, in his analysis of Bureaucracy, had made Bureaucracy
most important part of the study of Western Political Science.
In this unit, an attempt is made to describe the importance of
Bureaucracy, a hierarchy of technical experts in Administration.
Max Weber closely studied the inseperable relationship between Society & State. He understood the inevitability of Bureaucracy in
modern society in modern state. He wrote on theory of
Bureaucracy. Power, Authority & legitimacy. Weber also founded
the modern sociological study of Bureaucracy. Weber suggested
models of Bureaucracy & fundamental priniciples of Bureaucracy.

3.1.1. INTRODUCTION
Many social and political scientists have explained the concept of
Bureaucracy. Max Webers idea of state was that a state is a
compulsory association which successfully claims a monopoly of
legitimate use of force within a given territory. State alone
possesses power, authority & legitimacy. Weber concluded that it is
the legitimate authority of state to exercise power over its people.

24
Administration / Bureaucracy exercises its authority i.e. power of
command. Max Webers idea of Bureaucracy is based upon his
notion of rational legal authority. Bureaucracy, therefore, should
have certain definite organisational structures, principles &
characteristics.
In this unit, Max Webers ideas on Bureaucracy are discussed.
3.1.2 Life sketch of Max Weber
Max Weber was a German lawyer; a politician, a historian, political
Economist & Sociologist. He worked as professor of Economics.
His most famous work relates to economic sociology, political
sociology & the sociology of religion. Weber presented sociology as
a science of human action Weber completed his doctoral
dissertation on A Contribution to the History of Medieval Business
organisation. Weber wrote a number of papers on law, focussing
the attention on social, political & economic factors, prevalent at the
time. Weber insisted on analytical & systematic research work. He
was progressive & practical. His writings reflect social conditions of
Germany of his times. He worked at different places & gathered a
variety of experience, which widened his vision. He died at the early
age of fifty six, perhaps on threshold of the golden phase of his
career. His name is more widely known after his death.
3.1.3 Max Webers
Bureaucracy

Writings & contribution to the field of

Webers most famous work is his essays on, economic Sociology,

a book, sociology of Religion, The proletariat Ethic & the spirit of
Capitalism. Most of his writings were translated, into english &
were published later on.
Being a sociologist, Weber understood, the importance of society. A
state has a different role to play because state has power, authority
& legitimacy. It has coercive power. Why do people obey? What
constitutes the legitimacy of Power? Power turns into authority
when it gains legitimacy. On the basis of these realistic
assumptions, Max Weber wrote on Bureaucracy. He made a
systematic study of Bureaucracy & its Characteristics. To him,
Bureaucracy is an administrative body of appointed officials. Weber
categorised Bureaucracy into - 1) Patrimonial Bureaucracy which is
found in traditional & Charismatic type of authorities & legal rational
Bureaucracy which is founded only in legal type of authority.
Weber claimed that Bureaucracy is a power elite, & owes it on its
three assets; - expertise, information & access to secrets. This
power of Bureaucracy makes all dependent on Bureaucracy.
Without Bureaucracy, there would be chaos. Bureaucracy has
certainly, precision & predictability. Weber insists on Bureaucracy
as a technical instrument of Administration. Bureaucracy is not only

25
technical instrument but is also social force, having effect on the
values of society at large.
Max Weber was the first administrative thinker to study
interrelationship between state & Society. As a scholar of Law, he
understood the significance of power, authority & legitimacy. Having
understood the importance of Bureaucracy, as viewed by Weber, it
is necessary to understand his Theory of Bureaucracy.

3. 4 WEBERS THEORY OF BUREAUCRACY

Max Weber viewed Bureaucracy from its structural characteristic.
Such a structure, such an organisation has an authority, which is
exercised by Bureaucracts. The Bureaucracts exercise their
authority only because they hold public office. They excercise
authority with well defined rules & regulations. Thus Bureaucracy is
essentially an organisation, with definite rules, regulations, powers
& functions. Weber developed his theory of Bureaucracy on its
structural basis.
Webers Bureaucracy is based upon legal-rational authority. The
following are the basic features of his theory of Bureaucracy.
i) Bureaucratic organisation is based upon a well-defined hierarchy.
Hierarchy, based on authority, has downward trends.
Authority flows from upward to downward.
An organisation based upon hierarchy of authority.
ii) Bureaucratic organisation is divided between vertical & horizontal
lines for division of work & functional specialisation. Every
employee in the organisation has a well defined power & authority,
based upon employees specialisation & expertise.
Authority Head of the orgainisation

Division of work, functional specialisation.

iii) This Bureaucratic organisation functions within a framework of

fixed rules? regulations. An employee, i.e. a Bureaucrat, has to
function within this framework of rules & regulations.
iv) Such a Bureaucratic organisation specifies the duties &
responibilities of Bureaucrats. Authority implies responsibility.

26
v) Every Bureaucratic organisation functions with a specific
procedure, laid down by the organisation. This procedure is laid
down for performing their functions.
vi) The Bureaucrats. should be properly & scientifically selected.
This enables efficiency of Bureaucracy. The Bureaucrats should be
given periodic promotion on the basis of their technical
competence.
vii) An employee in the organisation, obeys the authority. The rules,
regulations are practiced & obeyed by Bureaucrats. The procedure
of work is followed by employees.
viii) One of the unique features, suggested by Weber, is the
impersonal approach of an employee, in the organisation. The
interrelationship amongst the emplayees should be based upon
impersonal approach. Every employee should function with
impersonal approach, while performing duties.

3. 5 WEBERIAN MODEL OF BUREAUCRACY

Max Weber insisted on Bureaucracy with Authority. Max Weber
classified Authority into three types as the following.
1) Legal Authority : A Legal authority in an organisation is found,
where organisation functions with rules, which are followed
judiciously, by every employee. Such rules have validity which is
limited to the organisation. The authority of superior is defined & it
is obeyed by the subordinates.
2) Traditional Authority. Such a traditional authority is derived from
the past. A person may not have legal or formal authority, but he /
she becomes master, by virtue of inherited status. The people obey
& accept such an authority. Most of the long established customs &
traditions lead to the emergence of such authority.
3. Charismatic Authority :
A person exercises power, due to extraordinary qualities, Charisma,
heroism, magnetism, over a large section of people & people
accept such a superiority.
Based upon the analysis of the types of Authority, Max Weber,
classifies his Bureaucratic model, based upon Legal Rational Authority. Such an authority is obeyed by the people.
Weberian Model of Bureaucracy :
The legal rational model of Bureaucracy is essentially a
governmental Bureaucracy, which has following characteristics :
i) The Bureaucracy functions continuously. It is permanent.

27
ii) The Bureaucracy functions in accordance with definite rules &
procedures. The power & authority is well defined, to ensure
impersonal approach. The Authority brings corresponding
resposibility. The authority cannot be beyond the official work of the
organisation.
iii) Bureaucracy functions through proper division of work, authority
flowing from top to down.
iv) A Bureaucrat should not misuse authority. Official business &
private affairs should not be intermixed.
v) A Bureaucrat is responsible, accountable for the use of authority.
vi) A Bureaucrat cannot be appropriated by the incumbents as
private property which can be sold or inherited.
Max Weber also described some of the qualities, necessary for a
Bureaucrat. In his model of Bureaucracy, Weber underlines the
following Characteristics of a Bureaucrat.
i) A Bureaucrat is appointed in an official position on the basis of
contract. A Bureaucrat is not committed to a person but to the work.
ii) A Bureaucrat exercises authority with impersonal approach. A
Bureaucrat should be legal & faithful in the performance of duties.
iii) A Bureaucrat should have technical expertise & competence.
iv) A Bureaucrat should be paid adequate salary, other benefits &
opportunities of promotion.
Thus legal-rational model Bureaucracy of Weber, has the following
elements :
i) impersonal order
ii) Rules & regulations
iii) Competence & expertise
iv) hierarchy
v) written rules & regulations.
vi) monocratic nature.
The main emphasis of weber was on careful selection of technically
qualified people.

3. 6 PRINCIPLES OF BUREAUCRACY
The following becomes the important attributes / principles of
Bureaucratic organisation.

28
i) A permanent, rule bound conduct of official business.
ii) Technical competence of Bureaucrats.
iii) The organisation should be based upon hierarchy.
iv) The rules regulating the conduct of business should be technical
and based on norms.
v) Complete seperation of office property & personal property.
vi) Complete absence of misuse of power & authority. Complete
absence of appropriation of official position by the incumbent.
vii) formal & informal communication within the office.
viii) Bureaucracy is inevitable in modern state. Its legal authority
can be exercised in a variety of ways.
To conclude, Weber insisted a Bureaucracy from a purely technical
point of view. The legal rational authority is exercised over human
beings. Bureaucracy is stable, efficient & superior to all kinds of
administrative tasks.

3. 7. APPRAISAL & CRITICISM ON WEBERS VIEW

ON BUREAUCRACY
Appraisal :
Max weber was the first administrative thinker to have given
considerable thought on Bureaucracy. Weber essentially believed
in inevitability of Bureaucracy in a modern state. Weber threw light
not on ideal Bureaucracy but highlighted on, ideal type of
Bureaucracy. An efficient Bureaucracy is a precondition of
economic development.
Max Weber knew that state alone possesses power, authority &
legitimacy. To him, Bureaucracy has power & authority.
Bureaucrats are power elites. It consists of superiors, technical
experts having knowledge & experience.
Max Weber viewed Bureaucracy from organisational point of view.
However he also described the qualities necessary for
Bureaucracts. His advocacy for, impersonal approach has
relevance even today. In a corporate world of today, webers ideas
are still considered valid.
Criticium
Though noteworthy, Webers idea of Bureaucracy has been
criticised on certiain grounds. The first point of criticium is that
Weber laid too much importance on Bureaucracy. In fact, Weber
himself had not given a proper definition of Bureaucracy. It was,
later on, regarded as a part of social science.
Weber gave more importance to organistional aspect of
Bureaucracy. He did not consider the political social contexts, in
which Bureaucracy operates. Bureaucracy cannot function

29
independently without having consideration for social & political
forces.
Weber associated power, authority & legitimacy with state /
Bureaucracy. However, in a Democratic state, Bureaucracy comes
under the direct control of Executive. Weber underestimated the
role of legislatures, elected representatives, in exercising control
over Bureaucracy.
In the era of privatisation, Liberalisation & globalisation, Govt.
Bureaucracy, as advocated by weber, has less significance, rather
than the times, when weber wrote on Bureaucracy.

3. 8. LET US SUM UP
The name of Max Weber, as a German sociologist, is remembered
for his noteworth. contribution on
a) power, Authority legitimacy b) types of authority c) organisational
view point of Bureaucracy d) legal rational authority e) impersonal
approach of Bureaucracts. No writings on Bureaucracy could be
completed without a reference of weberian views on Bureaucracy.
While summing up, keep the following points in mind
i) Max Weber understood the power, authority & legitimacy of
state.
ii)

He classified authority in three types.

iii) Max Weber viewed Bureaucracy as power elite.

iv) He described Legal rational authority & had subscribed a model
of legal rational authority.
v)

His Theory of Bureaucracy is based upon the structure /

organisation.

vi) Hierarchy, Rules, appointed officers, technical knowledge of

officials, specialisation, Generalists & Specialists & impersonal
approach of Bureaucracts, are some of the basic principles of
his Theory of Bureaucracy.
vii) Max Weber has also discussed some of the qualities essential
for Bureaucrats. He made a clear cut distinction between
officials working in their official capacity & officials in their
private affairs. The Bureaucrats should perform defined duties
& should not misuse power.

30

3.9 GLUSSARY
3.10 SUGGESTED READINGS
1) S. R. Maheshawari; Administrative Thinkers; MacMillan India Ltd,
New Delhi, 1998.
3. www.google.com
4. www.wikipaedia

3.11. QUESTIONS
1) Describe Max Webers Theory of Bureaucracy.
2) How has weber classified authority?
3) Discuss the principles of Bureaucratic organisation, laid down
by weber.
4) Explain Max Webers views on power, Authority & legitimacy.
5) What are the features of Weberian model of Bureaucracy?

Module 2
Unit 4

4
WORKING OF BUREAUCRACY
4.2 : Decision Making - Herbert Simon
In this Unit, the following areas will be studied 4.2.1. A brief life sketch of Herbert Simon
4.2.2. Herbert Simons Writings & his contribtion in the areas of
Administrative Behaviour & Decision Making
4.2.3. Herbert Simon on Decision Making
4.2.4. Herbert Simon on Rationality in Decision Making
4.2.5. Herbert Simon on Administrative Behaviour
4.2.6. Appraisal & Criticism
4.2.7. Conclusion / Let us Sum up
4.2.8. Glossary
4.2.9. Suggested Readings
4.2.10. Question pattern.

4.2.0 OBJECTIVES
As Public Administration has gained importance in the modern
times, so has been the case of behaviour of administrators. Main
contribution of Herbert Simon is that his views over administrative
behaviour has gained worldwide recognition. His contribution is
noteworthy in developing rationalistic theory of decision making. He
focussed on the decision making capacity in Administration by
pointing out three steps in decision making process. Simon insisted
upon rationality in the decision making process. Herbert Simon
was awarded the Nobel Prize for Economics in 1978.
Max Weber & Herbert Simon had valuable contribution in the field
of Administration / Bureaucracy. Max Weber had described the
anatomy of organisation & Herbert Simon had described its
physiology.

4.2.1 : INTRODUCTION
Herbert Simon was an American, a Noble prize winner, who had
contributed to the decision making theory. His writings on - the
decision making process & rationality in the decision making - are
still considered as the pillars for private & public Administration.
Herbert Simons writings are mainly concerned with private
organisations rather than public / Government sectors.

32
Besides his contribution to decision making, Simon knew the wide
use of computers, helpful to the head / executive, in modern times.
Today, use of computers largely help the private as well as public
sectors. In this chapter, an attempt is made to understand Simons
views on decision making theory.
4.2.1 A Brief Life sketch of Herbert Simon
Herbert Simon was born in 1916, in USA. He became an eminent
American political & social Scientist. He did his Ph. D. in political
science. He started his career in municipal government & then
worked in various companies & organisations as an academician &
as a consultant.
Simon was very much influenced by Follets ideas on group
dynamics in orgainsation, the human relations approach performed
by Elton Mayo & others & by Barnard.
Though Simon was awarded Nobel Prize in Economics, he was not
an economist. His work is mainly drawn from Administrative
Behaviour, the study of decision making, bounded rationality &
organisation as a human enterprise seeking internal & external
equilibrium.
4.2.3 Herbert Simons writings & his contribution in the areas of
administrative behaviour & Decision Making.
Simon wrote a number of books, few are :
Administrative behaviour (1945), Public Administration (1950)
Models of Man (1957), organisations (1958) Human Problem Solving (1472), Models of Thought (2 volumes-1979 & 1989),
Models of Bounded Rationlity (2 volumes - 1982) Reason in Human
Affairs (1991)
Simon equates administration with decision making. He insisted
upon how decisions are made, & how they be made more rationally
& effectively. He suggested valid principles of Administration & now
- how to apply these. He suggested empirical approach to the study
of science of Administration. He proposed a new concept of
Administration, based on theories & methodology.
Simons decision making theory is the core of administrative action.
His rationalistic Theory of Administration includes the concept of
bounded rationality. His book Administrative Behaviour gained
not only worldwide recognition, but it was also translated into twelve
languages. In 1988, he again revised this book.
4.2.3. Herbert Simon on Dicision Making.
Herbert Simons most valued contribution to administrative thought
is his focus on decision making. He proposed a new concept of

33
administration which is based upon purely factual statements in
Administrative science. That is why he calls traditional concept of
Administration as proverbs & myths. His concept of decision
making becomes the core of administrative action.
Decision making is synonymous with management. He calls
decision making as the heart of the organisation. Decision making
is the Vocabulary of administrative theory which should be derived
from logic & psychology of human choice.
According to Simon, an organisation is a structure created for
decision making. Decisions are made at all the levels of
organisation. Every decision may affect less or more members
within the organisation. Each decision, is based upon number of
premises. The task of deciding pervades the entire administrative
organisation, quite as much as does the task of doing - indeed, it is
integrally tied up with the latter.
Three stages in the decision making process :
Simon divides the decision making process into three phases i) The first phase, he calls, intelligence activity. The head of the
organisation tries to understand organisational environment in
which decisions have to be taken. Intelligence activity is finding
occasions to take decisions.
ii) The second phase, he calls, is design activity. A head of the
organisation tries to identify all possible options before making a
final decision. This involves time & energy of the head to think over
the best possible alternative.
iii) The third phase, he calls, is choice activity. Fianlly a head
chooses one of the selected options, which becomes adecision.
Though these three stages are described by Simon, he says that
these phases may appear to be simple & one precedes the other, in
practice, the sequence is more complex, than what it appears to be.
These three phases are wheels within wheels. These three phases
are closely related to the problem solving - what is the problem,
what are the atternatives & which alternative is the best?
Decision making is thus, a choice between alternative plans of
action & choice in turn, involves facts & values. To him, every
decision consists of a logical combination of fact & value
propositions. A fact is a statement of reality indicating the existing
deed or action. Whereas a value is an expression of preference. He
insists upon making analysis of ethical & factual statements that
remain present in a decision. Every decision, thus is a mixture of
fact & value.

34
On the basis of this premises, Simon views organisation as a
hierarchy of decisions - a complex network of decision processes.
Every decision involves the selection of a goal & a behaviour
relevant to it, till the final aim is reached. Thus decision making
involves close interrelationship between facts & values.
In order to achieve a balance between facts & values, Simon
proposes that every decision has to have rationality. Every decision
must be rational
4.2.4 Rationality in Decision Making
Simon spoke on the dynamics of decision on a different plane - the
plane of rationality. He emphasises upon being rational in decision
making. Rationality is defined in terms of appropriateness for the
accomplishment of specific goals. He focussed on the rational part
of decision. Every decision is a combination of reason (rationality) &
emotion. Simon gives importance to reason rather than emotion. A
head faces number of constraints while making decision. It is
because, while taking a decision, a head has to think, of all possible
consequences, affecting political culture & values of society. He
explains rationality in terms of means - end construct. If appropriate
means are adopted to reach desired ends, the decision is rational.
In brief, rationality is making an administrative man.
Simon is aware that, reaching rationality itself is a difficult process,
due to number of factors involved in it. So he has suggested
different types of rationality. A Decision may be
a) Objectively rational, where preference is given to values.
b) Subjectively rational, where decision maximises attainment
relative to knowledge of the subject.
c) Consciously rational where adjustment between means & end
is made.
d) deliberately rational where adjustment is deliberately made.
e) Organisationally rational where it reaches organisational goals.
f) Personally rational, where decision reaches individual goals.
Simon never agreed to the concept of total rationalty. It is because
no individual behaviour can be totally rational or totally irrational.
Simon therefore, described human behaviour in an organisation as,
intendedly rational Complete or total rationality is not possible
because of a) incomplete knowledge of the problem, alternatives &
consequences. Simon called it as bounded rationality
b) individuals cannot be completely standardised, having, as they
do, multiple, even unranked, preferences.
So Simon calls rationality in terms of satisfying which involves the
choice of course of action which is satisfactory or at least good
enough.

35
Simon was also aware about the limitations of the concept of
rationality. The following features stand in the way of rational
decision making i) Multiplicity of problems, goals & policy commitments.
ii) inadequate information about the variety of acceptable goals.
iii) the personal limitation of a decision maker, in capacity,
commitment & goals.
iv) Structural difficulties within organisation.
4.2.5 : Herbert Simon on Administrative Behaviour :
While dilating on the process of decision - making, Simon rejected
rational, economic man & replaced him by a more realistic,
administrative man. He proposed an idea of administrative man.
The behaviour of the administrative man, in the organisation, is
conditioned by organisational culture. The administrator, is
conditioned by organisational culture. The administrator has to
comply with establised rules & regulations & follow prescribed
course of action. Such a man is called organisational man Herbert
Simons administrative man tries to rationalise man.
The behaviour of organisational man is subject to two types of
influences - internal & external. Internal influence involves attitudes,
habits & temperaments, which leads him to reach the desired
decisions. Internal factors also include loyalty, concern with
efficiency & training. External factors involve authority, advisory &
informational services.
Programmed & non-programmed activities in an organisation
Simon is fascinated by the advent of electronic computers. He
makes a distinction between programmed & non-programmed
decisions. The electronic computer is making available to mankind
new decision - making techniques which bring changes in white
collar, executive & professional work making them as monotonous
as those, the introduction of machinery has brought to manual jobs.
Simon feels that the computer has the potential of revolutionising
organisational decision making. According to him repetitive &
routine type of decisions can be programmed to the computers.
Operations research, system analysis, quantitative data processing
etc. can be given to the computers.
The non-programmed decisions help the higher level authorities to
devote their time for taking more efficient decisions, innovative
ability, acquiring higher skills. The use of computers may increase
rationality. In fact, Simon believes in the unlimited confidence in
computer & management information systems. Computers
command revolutionary capacity in the process of gathering &
organising information public administration enables, to cope with
the ever- increasing complexity of public policies & programmes.

36
Simon thus suggests maximum use of computers for rational
decisions.
Principles of Administration
Logically, Simon cites some of the administrative principles :
a) administrative efficiency is increased by a specialisation of the
task among the group.
b) administrative efficiency is increased by arranging the members
of the group in a determinate hierarchy, of authority c)
administrative efficiency is increased by limiting the span of control
at any point in the hierarchy to a small number.
d) Administrative efficiency is increased by grouping the workers,
for purposes of control, according to (a) purpose (b) process (c)
clientel (d) place.
4.2.6 : Appraisal & Criticism
Appraisal :
Simon focusses attention on the dynamics of decision-making
processes & its role in organisations. His study provides a deep
insight into administrative behaviour & the interaction between
decision making processes & administrative behaviour found in
organisation. He Viewed organisational decisions, into three
phases. Rationality in decision making is a combination of facts &
value is a unique contribution of Simon. His administrative man &
administrative behaviour focus upon administrative system.
Criticium :
Simons idea of decision making mainly concerns with business
administration rather than public administration. His decision
making theory is also criticised on the ground that though decision
making process is an important variable in the organisation, it is not
the only factor. Decision making process involves many other
factors, especially emotional, which Simon ignores. Simons
decision making theory is too general.
Simon is also Criticised on his idea of administrative man and
administrative behaviour. These dimesions differ from person to
person & situation to situation. From this viewpoint, Administration
cannot totally be regarded as value free science. Similarly,
administrative systems do not bring similar role & similar
consequences.
Rationality in decision making is also subject to criticism.
Rationality, to Simon, meant a decision of Status quo, it is not
dynamic

37
4.2.7 Conclusion / Let us Sum up
Inspite of all the points of criticism, against simons decision making
theory, one understands the importance of decision making, in
every walk of life. Simons idea of rationality in decision making
shows his deep insight of establishing close relationship between
facts & values. His is a major contribution in the evolution of
administrative theory. His administrative man & organisational
behaviour, has more concern are tested. No administrative thinker
on Public Administration has written so widely on decision making
as by Herbert Simon.
While Summing up, keep the following points in mind 1) Herbert
Simon was a great administrative thinker & a Nobel prize winner.
He wrote extensively on Public Administration, Administrative
theory & decision making processes.
ii) He suggested valid principles of organisation & focussed his
attention on decision making.
iii) He brought empirical approach to the science of Administration.
He combined facts & values in his theory of Administration.
iv) Simon calls decision making as the heart of an organisation. In
fact an organisation is hierarchically structured to take decisions.
Every decision, more or less, affects everybody in the organisation.
v) Simon divides decision making activity into three phases - a)
Decision making is an intelligent activity, the decisions have to be
taken in anticipation, which is an intellectual exercise. b) decision
making is a design activity, in which, a head has to visualise all the
possible options/alternatives, before reaching a final decision.
c) decision making is a choice activity, where a final decision is
made.
vi) These three may appear to be simple, they are not very simple,
but are complex, closely related to problem solving - what are the
problems, what are the alternatives & which alternative is best?
vii) Simon also discusses rationality in decision making, which
involves facts & values.
viii) Simon defines rationality, appropriateness for the
accomplishment of specific goals of organisation. A head has to
take into consideration all the possible consequences before taking
any decision
ix) Simon is also aware that even reaching rationality is a difficult
process. He gives different types of rationality. He also knew the
limitations of rationality.

38
x) on the basis of rationality, Simon reaches to his idea of an
administrative man & administrative behaviour. The internal &
external factors determine the behaviour of administrative man.
xi) Simon was very much influenced by the use of computers for
administrative work. He distinguished between programmed & non
programmed activities & found that computers can bring
revolutionary changes in the working of organisations. A head can
relieve himself / herself from the monotonous & mechanical work by
relying on computers.
xii) Simon also described some fundamental principles of
organisation.
4.2.8 Glossary
4.2.9 Suggested Readings
(same - take it at the end)
4.2.10 Question Pattern
1) Describe the contribution made by Herbert Simon in the field of
organisation.
2) Explain the importance of decision making, as viewed by
Simon.
3) Describe the three stages of decision making processes,
suggested by Simon.
4) What is programmed & non-programmed activity in an
organisation? How can computers be helpful to the
administrative task?
5) Explain Simons concept of rationality in decision - making?
What are its types? What are its limitations?
6) Explain Simons idea of administrative man? What are the
factors that, affect the behaviour of an administrative man?
Herbert Simon

Module 2

Unit 5

5
WORKING OF BUREAUCRACY
5.5.3 : The Human side of the Enterprise : McGregor Douglas
Mcgregor (1906-1964)
In this unit, the following points of Mcgregors views, are discussed.
5.3.0 Objective
5.3.1 Introduction
5.3.2 A brief life sketch of Mcgregor
5.3.3 X Theory
5.3.4 Y Theory
5.3.5 Relevance of Y Theory
5.3.6 Appraisal & Criticism
5.3.7 Conclusion / Let us sum up
5.3.8 Glossary
5.3.9 Suggested Readings
5.3.10 Question Pattern

5.3.0 : OBJECTIVES
Douglas Mcgregors contribution has been in the field of art &
science of management. Mcgregor emerged as a management
Psychiatrist during the behaviouralist movement of post war era.
Mcgregor attacked on the unrealistic & limiting assumptions of
traditional theories of management, having concern for human
nature & human behaviour. Control over human behaviour in
organisations leads to resistance, restriction of output & indifference
in the accomplishment, of organisational objectives. Mcgregor
divided his views into - a) X Theory & b) Y Theory. The traditional
assumptions, he regarded, fall under X theory. He suggested Y
theory which is based upon integration & Self control, by the
employees in an organisation, to accomplish organisational goals.
Mcgregor hoped that his Y theory as a new & superior ethic - is a
set of moral values that ought to replace the values managers
usually accept.

5.3.1 : INTRODUCTION
In the field of study of Management, name of Mcgregor, is highly
recognised. He was a Psychiatrist, who studied human Psychology
& group sociology. Being a Management researcher, his main
research was to make empirical science of Management. He

40
wanted to guide manager as a professional manager. Mcgregor
had a great concern for employees also.
Mcgregor had developed X Theory, as a traditional view of
management, Mcgregor did not support X theory. Hence he
developed Y theory, which would suit the contemporary industrial
society. In his Y theory, Mcgregor had suggested positive
approach to be adopted by managers as well as employees.
In this chapter, an attempt is made, to understand Mcgregors X
theory; Y theory & the relevance of Y theory in todays world.

5.3.2 A BRIEF LIFE SKETCH OF MCGRAGOR

Mcgragor was born in U.S.A. He earned his B.E. in Mechanical
from Rangaon Institution of Technology. He completed his M.A. &
Ph.D. in Psychology from Harvard university in 1933 & 1935
respectivecy. He worked as a Management Professor at MIT, Sloan
School of Management. He was president of Antiouch college, from
1948 to 1954. He also taught at Indian Institude of Management, at
Calcutta.
Mcgragor wrote two classics - 1) The Human side of the Exterprise
& 2) The professional Manager. He also wrote numerous articles on
professional managerial skills. His, The Professional Manager,
focuses on linking the human side of the enterprise with appropriate
managerial intervention & understanding.

5.3.3 : MCGREGORS X THEORY

The most creative & lasting contribution of Mcgragor has been on
management, developement of managerial talent & managerial
teamwork in an organisation. His basic question of enquiry was,
whether managers are made or are born? Based upon his
hypothesis that every managerial act rests upon theory, Mcgregor
argues that management is an art, it cannot be a science because it
serves a different purpose. However, management can utilise
scientific knowledge in the achievement of practical objectives of
the organisation, was his belief.
As an organisational Psyctiatrist, Mcgragor understood that the
managements hold on controlling its human resource, determine
the whole character of the enterprise. He also argued that the most
important problems of management lie outside the realm of
improving the selection of managers with technical potential. The
top executive, with higher potential & capacity cannot attain
organisational objectives because of lack of utilisation of
employees talent. Mcgragor rejected the misconception that human
behaviour in an organisation needs to be controlled. A top

41
executive should not expect to achieve desired goals through
inappropriate managerial action. So, he very aptly advances a
hypothesis that all control is selective adaption. His deep
observation led him to conclude that control in human affairs can be
viewed as an integration of human behaviour either through
coercive compulsion or through motivational self control. He
developed these two assumptions & scientifically tested their
validity to propound his theories of managerial control, popularly
known as X theory & Y theory. His X theory is a traditional view
of direction & control. In his book The Human side of the
Enterprise, published in 1960, he has examined theories on
behaviour of individuals at work.
The X Theory :- The average human being has an inherent disliker of work & will
avoid it, if he can.
- Because of their dislike for work, most people must be
controlled & threatened before they will work hard enough.
- The average human prefers to be directed, dislikes
responsibility, is unambiguous & desires security above
everthing.
- These assmptions lie behind most organisational principles
today & give rise both to tough management with punishment &
tight controls & soft management, which aims at harmony at
work.
- Both these are wrong because man needs more than financial
rewards at work, he also needs some deeper higher order
motivation - the opportunity to fulfill himself.
- Theory X managers do not give their staff this opportunity so
that the employees behave in the expected fashion.
The X theory of Mcgragor resembles carrot stick theory. This can
be one type of managerial strategy. This theory does not describe
human nature. It considers humans as fearful, a disliker to work &
an insecure beast. These assumptions limit managerial strategies.
New managerial strategies, new organisational goals, new pattern
of leadership etc. do not fall under this X theory. He came to a
conclusion that as long as the assumptions of theory X continue to
influence managerial strategy, we will fail to discover, let alone,
utilise the potentialities of the average human being.

5.3.4 : MCGRAGORS Y THEORY

Mcgragor was largely influenced by Maslows theory of hierarchy of
human needs. Mcgragor viewed human needs with emotional
commitment. Mcgragors Y theory suggests alternate assumptions
for the integration of the individual & organisational goals. He
wanted selective adoption in managerial strategy. Mcgragor
arranged a new set of assumptions which will invite morals &

42
motivation. The following assumptions are embodied in the Y
Theory :
-

The expenditure of physical & mental effort in work is as natural

as play & rest.
Control & punishment are not the only ways to make people
work. Man will direct himself if he is committed to the aims of the
organisation.
If a job is satisfying, then the result will be commitment to the
organisation.
The average man learns, under proper conditions, not only to
accept but to seek responsibility.
Imagination, creativity, ingenuity can be used to solve work
problems by a large number of employees.
Under the conditions of modern industrial life, the intellectual
potentials of the average man are only partially used & utilised.

Mcgragors Y theory attacks on the X theory that employees are

lazy, indifferent & are disliker of accepting responsibility. They are
uncooperative. Mcgragor argued that it is not the fault of human
nature but of managers strategy of control. If there is an integration
in the behaviour of employees, the organisational goals could be
achieved.
How the integrity amongst the employees can be achieved? The
employees should have self control. Integration & self control can
be possible if the individual needs & organisational needs are
properly recognised. Mcgragors theory aims to encourage & create
motivation amongst employees. This is a way to innovation.
Mcgragor had a deep knowledge of individual Psychology & group
sociology, which he wanted to offer to modern management. So he
wanted to establish a high co-relation between the acceptance of
responsibility & commitment to the objectives of the organisation.
The motivational performance of employees through self control &
integrative behaviour can bring better results. The employees
should be given greater opportunities to play an active part in
decisions affecting their careers.
The Scanlon plan :
Based upon the Y Theory, Mcgragor, further collaborated with
Fredrick Hesiaur, who was carrying research on union Management
Cooperation, popularly, known as Scanlon plan. The Scanlon plan
is consistent with Y theory of Mcgragor. The Scanlon plan is based
upon two central features - 1) lost reduction sharing 2) effective
participation.

43
A Diagram of X Theory & Y Theory
Theory X
Management
Theory X : authortarian
repressive style, Tight
control, limited & depressed culture

staff
Theory Y

staff

Theory
Y
liberating
&
developmental,
control,
achievement
&
control,
achievement
&
continuous
improvement,
achieved
by
ebabling, empowering & giving
responsibility.

Management
The Scanlon plan proposes that, used wisely & with understanding
participation is a natural commitment of management by integration
& self control.

5.3.5 : THE RELEVANCE OF Y THEORY.

The Human side of the Enterprise of Mcgregor aims to educate
future manager, professional manager. He wanted to bridge the
organisational goals with the aims, values & methodology of
behavioural science. To him, management styles & strategies
should be evolved & continuously adjusted in the light of the
empirical reality, consistent with the findings of behavioural
knowledge. This makes his theory relevant with practice. He also

44
had an assumption that managment science has transnational
influence.
One important relevance of Y Theory of Mcgregor, to modern
industry is related to the Line & Staff Agencies in the organisation.
Modern industries are mostly operated by skilled staff. Their
knowledge & experience influence decision making process in the
organisation. The Line employee increasingly depend upon
specialised staff. However, the Y theory of Mcgregor, can
coordinate Line - staff relationship. The conflict between Line & staff
bring lowered commitment to organisational objectives. The Y
theory establishes improved human resources, either for resolving
conflicts or taking best decisions. Magregor had also written on
leadership qualities of a manager. He had placed an idea of
integration within the conceptual mould of transnational concept of
power & influence.
Discussing and resolving the conflicts within the organisation,
Mcgregor suggests three strategies to be adopted a) divide & rule
b) suppression of differences & c) working through of differences.
The first two are based upon X theory, whereas the third one is
based upon Y theory.

5.3.6 : APPRAISAL & CRITICISM

Appraisal : The professional & human side of Mcgregor reveals a
very colourful person of wide vision & scientific temper. His Model
of a manager was apt for industry, governments & nations. His
books are guidelines to a future manager, to understand human
nature & proper utilisation of human resources.
From his Human side to the professional side, the writings of
Mcgregor shows a systematic evolution of his ideas. This has
helped a lot to industrial society of U.S.A. As a scholar of
behavioural managment, his writings have helped the managers to
sharpen their potentials to readjust their strategies of management
for tomorrow.
The X Theory & Y theory represent the behovioral patterns of the
employees. Mcgregor had his deep observation of human nature &
human behaviour. He wanted to relate theory to practice. Mcgregor
wrote on both - a) the employees as well as - b) the managers. A
Y theory manager can communicate openly with subordinates, can
minimise the differences between superior & subordinates, can
create a comfortable enviorment in which the subordinates can
develop & can use their abilities. Mcgregor suggests Managers to
be more positive to their employees, to trust the employees & to
make proper utilisation of human resource for development.
Criticism - However, Mcgregor is largely criticised by his critics. The
main criticism is that, his theories are fine but are difficult to bring

45
into practice. Expecially his Y theory seems to be difficult to bring
into practice.
Mcgregor tried to answer this question by claiming that each person
must find his own answer. A manager has to think about the deal
with himself, his role, his style, his own power & the issue & control
over others.
Mcgregor is also criticised on the ground that neither his X theory
nor Y theory represent human behaviour or human relationship.
These theories are tools by which managerial skills can be studied
& analysed. The current research in management has gone beyond
Y theory to Z theory.
Today, any theory is seldom used explicitly. The managers & the
employees somewhere fall in between these two poles of X theory
& Y theory.
However, Mcgregors X & Y theories are still important theories in
the field of management & motivation. His X theory & Y theory
still remain a guiding principle of positive approaches to the
management, to the development of organisation & to bring
improvement in organisational culture.

5.3.7 : CONCLUSIONS / LET US SUM UP :

1) Mcgregor was an American thinker. He was a management
Psychiatrist, who complected M.A. & Ph.D. in Psychology. He
worked as a professor in USA.
2) Mcgregor wrote two classics, The Human side of the
Enterprise & the Professional Manager. Besides, he wrote
numerous articles.
3) Mcgregor wanted to make a research whether Management
can be regarded as science besides being an art. He
developed X Theory & Y theory.
4) His X theory represents traditional approach of management,
which believes that average human being dislikes work,
responsibility. Hence employee need to be directed &
controlled by the managers.
5) The X managers do not give their staff opportunity to develop.
This X theory resembles carrot stick theory.
6) Mcgregors Y theory is contradictory, is reformative & is more
scientific & empirical. While proposing Y theory, Mcgregor was
influenced by Maslow.
7) According to Y Theory, emplyees like to work. Punishment &
control are not tools to make the employees work. If the job is
satisfying, the employees are committed to achieve
organisational objectives. In proper conditions, employees
shoulder responsibility, develop creativity. Mcgregor names this
as innovation.

46
8) In his Y theory, Mcgregor suggests integrity & self control to
be brought into the organisation. This is equally applicable to
the managers as well as employees.
9) Mcgregor wanted to apply individual Psychology & group
sociology to his study of Management.
10) Mcgregor makes his Manager understand human side as well
as professional side of managerial skills;
11) Mcgregor collaborated his Y theory with Scanlon Plan of
Fredrick Lesiaur.
12) The Y theory of Mcgregor has apt relevance in todays world
of management. His Y theory bridges Line & staff relationship.
It might bring improved Line-staff collaboration.
13) Mcgregor suggests his professional manager, leadership
qualities & transnational concept of power & influence.
14) In spite of criticism, Mcgregor will be remembered for his
profound knowledge of human nature, human hehaviour &
positive approach in management.

5.3.8 : GLOSSARY
5.3.9 : SUGGESTED READINGS
1) S. R. Maheshwari : Administrative Thinkers; MacMilan India
Ltd, New Delhi, 1998.
2) D. Ravindra Prasad; V. S. Prasad; P. Satyanarayana (Ed);
Administrative Thinkers; sterling Publishers Pvt. Ltd., New
Delhi, 1989.

5.3.10 QUESTION PATTERN

1)
2)
3)
4)
5)
6)
7)
8)

Critically discuss Mcgregors X Theory.

Critically explain the Y Theory of Mcgregor.
What are the features of X Theory ?
Discuss the charactersitics of Y Theory.
In what way, Mcgregors Y theory has a relevance today?
Explain the concept Scanlon Plan.
What is carrot stick theory?
Explain Y Theory of Mcgregor in collaboruting Line & staff
relationship.

Module III
Unit 6

6
PUBLIC ADMINISTRATION IN THE AGE
OF GLOBALIZATION AND
LIBERALIZATION
(New Public Management, Good Governance)
Unit Structure
6.0
Objectives
6.1
Globalization
6.1.1 Check your progress
6.2
Liberalization
6.2.1 Check your progress
6.3
Public Administration since World War II
6.3.1 Check your progress
6.4
New Public Management
6.4.1 Features of New Public Management
6.4.2 Evaluation of New Public Management
6.4.3 Check your progress
6.5
Good Governance
6.5.1 Features of Good Governance
6.5.2 Evaluation of Good Governance
6.5.3 Check your progress
6.6
Let's sum up
6.7
Suggested Reading
6.8
Question pattern

6.0 OBJECTIVES
Public Administration as a subject of inquiry as well as practice
cannot remain isolated from the developments in the real world. As
throughout the last century the political, economical, and social
changes were engulfing the human life all over the world, these
changes also influenced the public administration. Decade of
eighties brought fundamental change in the orientation of public
administration in the western world. These changes are owing to
the wave of globalization. In this unit we are broadly entrusted with
the task of understanding the impact of the globalization and
liberalization on the public administration. Narrowly we will fulfill
following objectives.
To understand the meaning and dynamics of globalization and
liberalization.

48
To understand the concept of New Public Management
To understand the concept of Good Governance.

6.1 GLOBALIZATION
Historically human societies across the globe are connected with
each other in pursuit of trade, education, art, literature, religion etc.
However the pace of their interaction has dramatically increased in
the last century owing to the advancement in the technologies like
aeomantics and communication. Time and space dimensions have
shrunk like never before and the world became more
interdependent than ever.
Very recent changes in the eighties of the twentieth century are
unprecedenting owing to the complexity and speed which
characterize them. Along with the improvement in the means of
transportations like airplanes, ocean going vessels, development in
Information technology, computers, satellite phones have
established close links among the societies all over the world.
Multinational corporations manufacture products in many countries
and sell to consumers around the world. Money, technology and
raw materials move more swiftly across national borders. Along
with products and finances, ideas and cultures circulate more
freely. As a result, laws, economies, and social movements are
forming at the international level. These changes with their
economical, ideological, political, cultural dimensions are called as
globalization.
Globalization means
Integrating and connecting cultures and communities in new
space-time combinations, and making the world in reality and in
experience more interconnected
Hall
Globalization is the integration of markets, finance and
technologies in a way that is shrinking the world from a size
medium to a size small and enabling each of us to reach around the
world farther, faster and cheaper than ever before. Like all previous
international systems, it is directly or indirectly shaping the domestic
politics, economic polities and foreign relations of virtually every
country.
Friedman
6.1.1 Check your progress
1. Globalization implies compression of time and space in terms of
communication, information, trade, culture. True/False
2. Globalization is uni-dimensional i.e. only economical True/False

49

6.2 LIBERALIZATION
Although such interconnectedness in the present century is
unprecedented, it is not historically delinked from the past.
Economically, politically and culturally it can be explained as the
expansion of western liberalism with all its facets to the rest of the
world. The economic theory relates globalization to the model of a
free world market without restrictions of competition and mobility, a
global mass culture and a world-encompassing information society.
This approach shows that the neo-liberal market of domestic
economics has simply been shifted to the world market level. Neoliberal market is particularly followed and pushed by western
capitalist states. Thus the globalization becomes synonymous to
the western-capitalism as against socialist policies which were
followed by many Third World countries after their independence
from the clutches of colonialism.
Liberalization refers to a relaxation of government restrictions,
usually in areas of social or economic policy. Economic
liberalization is often associated with privatization. Some time it is
referred to as deregulation. It is also linked with democratization.
In order to understand the impact of globalization and liberalization
on the public administration in general and in the form of New
Public Management and Good governance in particular we will now
focus on certain key issues which brought transformation in the
theory and practice of public administration in the post World War II
era.
6.2.1 Check your progress
Liberalization refers to (Select odd man out)
1 Market regulation
2 Privatization
3 Deregulation
4 Democratization

6.3 PUBLIC ADMINISTRATION SINCE WORLD WAR II

Since World War II the development was considered a state
activity. Due to this the role and function of government had
witnessed an unprecedented increase in both developed and
developing countries. The reverse trend is observed after 1980s in
the developed world. The globalization of neo liberal economic
formula as a model of development drive the economies towards a
market-driven, private sector led 'development' which emphasized
on the rolling back of the state. This shrinking of state affected the
size and spending of the public sector. The New Right of Britain
and America and the 'structural adjustment' policy of the World
Bank directed the process of economical integration of world

50
economy which sparked the wave of economic reforms that swept
through the public sector after 1990s.
In the present situation the role of the state vis-a-vis the market is
changed. Government and thus State now a days have lost a
position of sovereignty which it enjoyed earlier. Increase in global
interdependence in terms of international economic and financial
relationships, and international institutional collaboration affected
the capabilities of the governments to decide exclusively on the
national affairs. National economic resources and political decisions
have got global overtones. At the same time new issues of
governance
erupted
with
unprecedented
intensity,
like
environmental management, ethnic minorities, tribal development,
child labour, gender equality, social equality, human rights which
increased the pressures over the present day governments.
"Thus the contradictory forces of globalization and liberalization on
the one hand and the search of communitarian, egalitarian, ecofriendly, humanistic civilization on the other have thrown up
challenging agenda items before public management today."
6.3.1 Check your progress
1 Since World War II functions of governments have been
increased. True/False
2 Neo liberal economic theory advocate (select odd man out)
a. Free market
b. Development of private sector
c. Shrinking of state d. State control of market

6.4 NEW PUBLIC MANAGEMENT

New Public Management is the development of the eighties in last
century. It primarily emerged as a critic of traditional approach of
Public Administration which was 'Weberian' 'Bureaucratic'. The
guiding philosophy of traditional approach is the management of
public interest and the separation of politics from administration.
Some of the important principles of the traditional model of
administration are:
Institutional structure of work
Rule orientation
Impersonality
Neutrality
Anonymity
Specialization
hierarchy of offices
centralization of command structure
Public/private distinction.

51
The critics of this approach point out that:
Its organizational design led to rigid hierarchical centralized
structures dysfunctional to organizational goals.
Public agencies became machine-like, rigid and impersonal.
Effective management of the public sector and efficient
production of organizational targets could not be correlated with
the so-called universal principals of traditional public
administration.
In real life the bureaucratic mode of organization was not
necessarily the most national, efficient or effective model of
organizational design.
Thus the major concepts of traditional public administration are now
challenged on the fronts of efficiency, effectiveness, accountability,
transparency and responsiveness. The modern age with the rapid
change in technology and societal demands ask for different
paradigm of administration. At this juncture an idea of deploying
private sector managerial tactics for the public service gained
ground in the 1980s. Citizens are now increasingly viewed as
consumers of public goods. Many of the flexible organizational
designs and practices pioneered by the corporate sector and
business administration are found introduced in the public
agencies. Both sectors are now viewed as complementary to each
other rather than separate and antagonistic. This new paradigm of
public sector management is called as New Public Management
with efficiency, economy and effectiveness as its watch words. New
Public Management is theoretically rooted in Public Choice Theory
and Neo -Taylorism
Public Choice Theory
Principal exponents of Public Choice Theory are Buchanan and
Tullock, Vincent Ostrom, Niskanen.
Underlying assumptions of PCT are
1. Individuals act rationally with adequate information and ordered
preference.
2. Individuals are utility maximizers.
Neo-Taylorism
It believes that major reasons for the dysfunctionality of the public
sector are the high cost of subsidizing the public services and lack
of accountability of individual administrators.
Public organizations are geared to routine and maintenance
administration rather than adapt to the dynamics of rapid social
change.
6.4.1 Features of New Public Management:
Some of the salient features of New Public Management are as
follows:

52

Public agencies should employ the private sector techniques to

provide quality services to citizens with managerial autonomy to
the public management.
Emphasis should be on performance evaluation indicators to
measure actual achievements and the quality of services.
Central departments should be relieved from the operational
activities which should be shifted to the field agencies.
In order to make use of more expertise and employee creativity
working conditions must be made flexible and contractual
appointments must be promoted.
Public agencies should publicize their results and performance
on regular basis.
Steps should be taken to create conducive environment for
more effective and productive managerial leadership. To
achieve this, hierarchical structure of organization should be
abandoned. Recruitment and training of personnel should be
based on merit and performance. Attractive salary structures
and diverse roles should be offered to maintain the moral of the
managerial force.
Personal accountability and responsibility should be ensured by
linking up rewards like pay structures with fulfillment of
performance targets.
Managerial decisions should reflect cost consciousness.

EXPERIENCE OF NPM
UK
The concept of citizen charter has been introduced to ensure
greater citizens satisfaction.
New Zealand
Public sector corporations are sold to private sector.
Contracts have been entered between the Chief Executives of the
Corporations and Ministries to specify the input and output.
Autonomy has been granted to public sector organizations.
Canada
Public Service has been more open and visible.
The link between people and interest group on one hand and
government on the other hand is strengthened.
Powers are delegated to the public organizations and they have
been made accountable for results.
India
Opened up new areas for private sector development, dismantling
price controls, deregulation and privatization of loss making public
sector enterprises.
6.4.2 Evaluation of NPM
In brief NPM advocate the progressive back tracking of government
from the micro issues especially removal of political interference in

53
the administration at the execution of the policies. Economic
rationality and performance are the keywords of NPM. NPM
attempts to refashion the bureaucracy as a dynamic, resultoriented, efficient, responsive and responsible public servant who is
sensitive and aware of public needs, wishes and preferences. In
order to achieve its objectives NPM attempts to downsize
governments and tries to replace the philosophy of public interest
with that of the market which is criticized by scholars of public
administration. Its central concern about optimization of scarce
public resources and development of new ways of public/private
cooperation receive positive response but its emphasis on the
relaxation to the market forces is targeted by many especially in the
Third World.
5.4.3 Check your progress
1 Following are the watch words of the New Public management:
A...........
B...........
C...........
2 New Public Management is theoretically rooted in Public Choice
Theory and Neo -Taylorism
True/False
3 Assumptions of Public Choice Theory are:
A............................................................................................
B............................................................................................

6.5 GOOD GOVERNANCE

Recently the term good governance is being increasingly used in
development literature. Bad governance is being increasingly
regarded as one of the root cause of all evil within our societies.
Like New Public Management the concept of Good Governance is
also the product of the 1980s which emerged out of the synthesis of
development administration and the neo liberal restructuring of
government. The concept is elusive and value laden. Thus proved
to be difficult to define accurately.
Two documents attempted to sketch the outline of the concept.
Firstly, the World Banks 1989 document on Sub-Saharan Africa,
and secondly World Banks 1992 document.
In its document of 1989 World Bank cleared the concept of
Governance with three parameters;
1. Public Sector Management and Accountability
2. Legal framework for development
3. Information and transparency

54
In the document of 1992 entitled Governance and Development
the World Bank stated three applications of the concept of
governance;
1. In the form of political regime
2. The process by which governmental power is exercised in the
management of a countrys economic and social resources
3. The capacity of governments to design, formulate and
implement policies
It is imperative to understand that present need to reconceptualize
the governance is felt out of the compulsion of regulating
developmental assistance given by the international financial
institutions like World Bank to the Third World countries. The World
Bank after its establishment in 1944 in the Bretton Woods
Conference, is committed to provide developmental assistance to
the underdeveloped and developing countries for the purpose of
poverty reduction, education, health, empowerment of weaker
sections, environmental sustainability etc. Around 1980s the World
Bank from its lending experience in many developing countries
observed that despite of sound policy design, programmes and
projects have failed due to institutional failures in those countries.
World Bank experts identified some of the problems as;
1. Governments in these countries are not determined enough to
implement the policies.
2. There is an absence of proper accounting or budgetary system
3. Widespread corruption is prevailing in these countries.
4. General lack of popular participation due to public apathy and
misinformation among the people.
In order to overcome these difficulties lending agencies like the
World Bank insists on structural adjustment programmes for the
recipient countries which emphasize on downsizing the
bureaucracy, opening up new sectors to the private sector for
development and redefining the state role as an enabler rather
than a provider. The development aid was linked up with
promotion of open, market friendly competitive economical
readjustment of the national economies, support for
democratization and improvement of human rights records and
insistence on the new package called good governance.
OECD further clarified the expectations of lending countries vis-avis recipient countries under the following heads;
Participatory Development
Human Rights
Democratization
Legitimacy of Government
Respect of human rights

55
Rule of law
5.5.1 Features of Good Governance
From the above discussion we can spell out some important
features of Good Governance. Good Governance insist on removal
of corruption, voices for the minorities, participation of most
vulnerable in decision-making and responsive to the present and
future needs of society.

DIAGRAM: Features of Good Governance

Participation
Inequalities and discriminations of various kinds like gender, race,
caste, creed, place of birth etc are addressed in the good
governance by participation of various stakeholders in governance
either through direct or through legitimate intermediate institutions
or representatives. Informed and organized participation is
emphasized. It means freedom of association and expression for all
to raise their concerns.
Rule of law
Good governance requires fair legal frameworks that are enforced
impartially. It entails protection of human rights, particularly those of
minorities; impartial enforcement of laws which requires an
independent judiciary and an impartial and incorruptible police
force.
Transparency
Transparency suggest three things; firstly, decisions must be taken
and enforced in proper legal manner, secondly, the information

56
must be freely available and directly accessible to the affected, and
thirdly, complete information in easily understandable forms and
media.
Responsiveness
It suggests that governance must be responsive to the concerns of
all stakeholders within a reasonable timeframe.
Consensus oriented
Good governance requires mediation of the different interests in
society to reach a broad consensus in society on what is in the best
interest of the whole community and how this can be achieved. It
also requires a broad and long-term perspective on what is needed
for sustainable human development and how to achieve the goals
of such development. This needs sensitivity of the administration to
the historical, cultural and social contexts of a given society or
community. In political term it is called as political pluralism.
Equity and inclusiveness
Good governance must address the issues concerning justice and
equity. None in the society should feel side lined or exploited in the
process of development. Growth should be inclusive and equitable.
Mostly the vulnerable and marginalized must share the fruits of the
development and must have opportunities to improve and maintain
their well being.
Effectiveness and efficiency
It means that developmental needs of the society must be achieved
by the optimum utilization of the resources at their disposal. It
further suggests sustainable use of natural resources and the
protection of the environment.
Accountability
Accountability is a key of good governance. Both public and private
institutions along with civil society organizations must be
accountable to the public and to their institutional stakeholders.
Transparency and Rule of Law are prerequisites of accountability.
6.5.2 Evaluation of Good Governance
Good governance is thus a vague normative formulation which is
very difficult to practice in its original form. The criticisms of the
good governance can be summed up in the following points:
It draws very ideal picture of harmonious functioning of various
stakeholders like State, Private Sector and civil society
organizations like NGOs. In reality their relationship is complicated
and guided by their struggle for supremacy in their respective
spheres which hampers the process of governance and divert the
resources in wrong directions.

57
Good governance advocates increasing participation of private
bodies in the issues of governance. However practice shows that
accountability for an activity which has been contracted out, and
maintenance of ethical standards in private sector is problematic to
maintain.
It seems that the concept tried to re invent the old politics
administration dichotomy of the Wilsonian age which is nothing but
a neo-liberal agenda to legitimize the profit making agenda of
capitalist economies from the first world.
Good governance attempt to impose western notion of democracy
and governance over the Third World. It neglects indigenous
strudures of governance alternative paradigms of developments.
To belittle the importance of public agencies in the Third World
may prove disastrous due to the social and political issues (like
communalism, casteism, racism, ethnic clashes) involved in the
community life of the people from these countries.
6.5.3 Check your progress
Fill in the Blanks
Features of Good Governance are :
A Participation
B..........................
C Transparency
D..........................
E Consensus oriented
F..........................
G Effectiveness and Efficiency H..........................

6.6 LETS SUM UP

To sum up the entire discussion on the public administration in the
age of globalization and liberalization we are in the position to say
that failures of traditional welfare oriented approach to the
governance to solve the major problems of the citizens lead to the
rethinking of the role of public administration. In those
circumstances Neo liberal theorist found a justification for the free
market policy of liberalism. This results in discarding traditional
Weberian bureaucratic model of administration and emergence of
New Public Administration and Good Governance.
New Public Administration is the synthesis of public ethics and
private competence. With the watch words of efficiency, economy
and effectiveness NPM becomes synonymous with the Neo Liberal
Agenda of development induced growth.
Good Governance altered the administrative fabric of the third world
countries with its eight principles to be accountable for the
assistance received from the international donor agencies for the
developmental purposes.

58
New Public Administration and Good Governance along with its
manifold problems of implementation have now become key words
in the vocabulary of public administration after 1980s.

6.7 SUGGESTED READING

Avasthi, Maheshwari; 2004; Public Administration; Lakshmi Narain
Agarwal; Agra
Basu Rumki; 2005; Public Administration Concepts and Theories;
Sterling; New Delhi

6.8 QUESTION PATTERN

1. Describe the shift in the theory and practice of public
administration from traditional Weberian model to neo liberal
market based model in 1970s.
2. Explain the concept of New Public Management with its key
features.
3. Explain the concept of Good Governance along with its main
characteristics.

Module IV
Unit 7

7
ETHICS AND ACCOUNTABILITY
IN GOVERNMENT
7.0: Objective is to study
7.1 Introduction
7.2 Ethics and accountability in Public Administration
7.3 Legislative control over public administration
7.4 Check your progress

7.1 INTRODUCTION
Public administration as an activity which encompasses each and
every aspect of human life. The explosion and spread of
information and communication technology, the wide acceptance of
democratic form of government and changing social norms enable
the people to demand higher standards of ethics, transparency and
accountability in the public sector. Ethical public service is
considered as a prerequisite of well functioning democracy. Ethical,
transparent and accountable public sector is also a precondition of
good governance that ensures sustainable development and
responsive public policy. It also helps to improve the performance
of public sector by preventing systemic corruption.
The effectiveness of public administration depends on the
understanding and cooperation between the citizens and public
servants. The primary concern of the citizens in a good civil society
is that their government must be fair and good. For a Government
to be good it is essential that their systems and sub-systems of
Governance are efficient, economical, ethical and equitable. In
addition the governing process must also be just, reasonable, fair
and citizen friendly. For these and other qualities and good
governance, the administrative system must also be accountable
and responsive, besides promoting transparency and people's
participation.
There is a great deal of alienation between the people and the
public service which undermines the legitimacy, effectiveness and
credibility of public administration. To bridge this gap it is necessary
to create confidence in the minds of the people towards the
competence, fairness, honesty, impartiality and sincerity of the
public services.
The manipulation and lack of ethics in administration not only
reduces the effectiveness but also has several negative effects for

60
the society as a whole. It leads to poor administration and
mismanagement of human and material resources. Several rules,
regulations and laws exist to ensure impartiality, honesty and
devotion among the public servants. But still there remain a vast
area of administrative activity which cannot be controlled by formal
laws, procedures and methods. 'In such cases administrators are
accountable only to their own conscience, their own sense of duty
towards the social welfare. Along with that there is also a need to
have an "ethics infrastructure" that not only provides guidance for
good conduct but also administratively and legally punishes
misconduct. The "ethics infrastructure" includes measures to
enhance and preserve organizational integrity, access to
information that promotes transparency and accountability and
prevents misuse of power by public personnel. Decision-making by
administrators must be based on fairness, transparency and
accountability and a sense of the public interest, as well as the
careful exercise of the legal authorities delegated by Parliament.

7.2: ETHICS IN PUBLIC ADMINISTRATION:

The American Society of Public Administration (ASPA) has laid
down the code of Ethics for Public Administrators.
1. The public servants should put the public interest above the self
interest and subordinate institutional loyalties to the public good.
They are committed to exercise discretionary authority to promote
the public interest. Accordingly they should oppose all forms of
discrimination and harassment, and promote affirmative action.
They should recognize and support the public's right to know the
public's business and involve citizens in policy decision-making.
The public servants should encourage the people to participate
actively in the affairs of the government.
2. It is the duty of the public servants to respect the Constitution
and the Law that define responsibilities of public agencies,
employees, and all citizens and promote constitutional principles of
equality, fairness, representativeness, responsiveness and due
process in protecting citizens' rights. They should understand and
apply legislation and regulations relevant to their professional role
and eliminate unlawful discrimination. It is also expected that they
should work to improve and change laws and policies that are
counterproductive or obsolete. It is their responsibility to prevent all
forms of mismanagement of public funds by establishing and
maintaining strong fiscal and management controls, and by
supporting audits and investigative activities.
3. The public servants are committed to perform their duties
honestly and should not compromise them for advancement, honor,
or personal gain. They should conduct official acts without

61
favoritism and ensure that others receive credit for their work and
contributions.
4.
The public officials should make every effort to strengthen
organizational capabilities to apply ethics, efficiency and
effectiveness in serving the public. For the purpose the
organizations should adopt distribute, and periodically review a
code of ethics as a living document. They should work to enhance
organizational capacity for open communication, creativity, and
dedication. The organization should establish procedures that
promote ethical behavior and hold individuals and organizations
accountable for their conduct. The organizational accountability can
be ensured through appropriate controls and procedures. The
organization also should promote merit principles that protect
against arbitrary and capricious actions.
5. The public officials should strive for Professional Excellence.
They should work hard to strengthen individual capabilities
and
encourage the professional development of others to
upgrade competence.
They should accept the responsibility to
keep up to date on emerging issues and potential problems.
Accountability of Public Administration;
Transparency and accountability are often talked about in the
context of administration in general and civil services reforms in
particular. Accountability of public administration implies that for
every action and inaction in government and its consequences
there is a civil servant responsible and accountable to the
government, the society and the people. Political accountability
implies an established legal framework based on the rule of law and
independence of judiciary to protect human rights, secure social
justice and guard against exploitation and abuse of power. On the
other hand Bureaucratic accountability ensures a system to monitor
and control the performance of government offices and officials in
relation to quality of service, inefficiency and abuse of discretionary
powers. The phenomenal increase in the functions of the
government leads to the expansion in the powers and functions of
public administration. Power in a democratic society needs to be
controlled and greater the power, the greater is the need for the
control as the grant of power carries with it the possibility of misuse
of power. The major dilemma before the governments of the day is
to vest the sufficient power to serve the purpose in the view, but at
the same time to maintain adequate control. The need for effective
control of administration thus is obvious.
Check your Progress:
Explain the code of Ethics for public administrators.
What is meant by accountability of public administration?

62

7.3 THE LEGISLATIVE CONTROL OVER

ADMINISTRATION
In India the legislature, the representative body of the people
exercises control over the administration. The administration cannot
act contrary to the guidelines laid down by the legislature. It lays
down the broader policy of administration. The legislature not only
defines the functions of the government but also provides the
finance for its various programmes. The control over financial
matters is exercised through the various committees established by
the legislature. The administration cannot spend a single rupee
without the sanction of legislature. The administration is expected to
keep the accurate account of all financial transactions and submit
the reports of such transactions to the legislature.
The legislature also deals with the matter related with public
personnel. The manner of recruitment of the public personnel, their
number, their duties and powers, their service conditions, rules of
procedure, code of conduct etc. are determined by the legislature.
The failure to adhere to those rules accounts for the disciplinary
action against the administration. Further the public personnel are
held responsible for their official acts. They are supposed to keep
the proper records of their official acts and submit the reports to the
legislature at least once a year, when called upon by the legislature
giving a full account of their acts. The legislature may also conduct
the special investigation or inquiry of the manner in which
administrative affairs have been conducted. The legislature has the
general power of direction, supervision and control over
administration.
7.3.2: The means of legislative control :
The opportunity to exercise control over the administration assumes
several forms such as questions, resolutions, Zero-Hour
Discussions, Adjournment Motions, Vote of Censure, Budget and
the Parliamentary Committees. These various means are discussed
below.
The Presidents Speech : Every new session of the parliament
opens up with the speech of the President. The President in his
speech spells out the broader policies and activities of executives in
the foreseeing future. The first four days of every session are set
aside for the general discussion on the speech. The members of
the parliament hold discussions on the Presidential speech which
give them the opportunity to criticize the executive action.
Discussion on Budget: The parliament every year sanctions the
funds for the expenditure of the executive. After the budget is
presented by the Finance Minister in the Parliament the general
discussion on the budget takes place. In the process of enactment

63
of the budget every department puts forth the demands for grants
and for the approval of the Parliament. At this stage the members of
Parliament get the opportunity to discuss and evaluate the affairs of
the administration of various departments. The members of the
opposition can also move cut motions to express their displeasure
with the working of the administration at this stage. Thus the
discussion on the finance bill provides the members of Parliament
an opportunity to discuss the entire administration.
Question Hour :
It is a very powerful technique of legislative control over
administration. During the session of the Parliament, every
parliamentary day starts with the question hour. The first hour of the
day is reserved for questions. The purpose of the question hour is
to elicit information or clarification on the matters pertaining to
public interest. The members of the Parliament address written
questions to the government. On an average thirty questions are
asked. If the members of parliament are not satisfied with the
answers they can ask supplementary questions. In practice the
actual purpose of the question hour is to draw public attention to the
failure and abuse of authority by the government or to address the
public grievances.
Adjournment Motions :
To draw the attention of the government to the questions of urgent
nature and of public importance such as flood, earthquake etc. The
device of adjournment motion is used. If the moving of adjournment
motion is permitted by the presiding officer then the normal
business of the House is suspended for the day and the immediate
debate takes place. During the debate and the discussion on the
adjournment motion the members of parliament get an opportunity
to criticize the administration. Adjournment Motion is the tool of dayto-day control.
Censure Motion:
This means the Vote of No-Confidence. The members of the
Parliament have the right to move the Vote of No-confidence in
order to express the total disapproval of the policy of the
government or the part of it. In case of an adverse vote the
government has to resign.
Debates on the legislation:
The bill of law passes through various stages before the enactment.
The various readings of the Bill provide an opportunity to the
members of Parliament to criticize the entire policy underlying the
bill.
Parliamentary committees:
The Parliamentary committees act as a tool of effective control over
the administration. The financial committees of the Parliament such

64
as Public Accounts Committee, Estimates Committee and the
Committee on Public Undertakings exercise detail and substantial
control over the financial matters. The Committee on Assurances
reports on as to what extent the assurances given by the ministers
on the floor of the House are implemented in a specified time limit
required for the purpose. Such enquiry makes ministers more
responsible and careful and administration to take quick action on
the given promises.
Audit :
The office of Comptroller and Auditor General audits all the
government accounts to ensure that the money granted by the
Parliament have been used for the stated purpose and the amount
has not exceeded without sanction of the supplementary grant by
the parliament and the expenditure confirms to the rules. The
reports regarding the same are submitted by the CAG to the
Parliament.
7.3.3 Limitations of Legislative Control :
Though the legislature lays down the general policy of the
government by enactment, amendment of laws, it has been
observed that in practice this responsibility is shifted to the
executive branch. The executives generally take initiative in Policy
Making in which civil servants play a decisive role. In majority of the
cases even the bills of legislation originate from the executive
branch and the bureaucracy.
The work of the administrative branch has increased in volume
and complexity. The members of the parliament who meet only
during the session do not have the necessary time and expertise to
control the expanding administrative work.
Members of the Parliament often do not possess the required
technical knowledge of the various departments and therefore
cannot effectively criticize the working of the department and their
demands for grants.
In the parliamentary form of government the administrative
officials are not directly responsible to the legislature. They cannot
be called before the House to give explanation of their official acts.
Though they can be called by the Committees of Parliament they
are not obliged to answer personal criticism. It is the Minister who
shoulders the responsibility for the administrative acts of his
department. Administrators thus are only indirectly responsible to
the legislature.
7.3.4 Check your Progress:
What is meant by legislative control over public administration?
What are the means of legislative control?
What are the limitations of legislative control?

Module IV
Unit 8

8
CONTROL OVER PUBLIC
ADMINISTRATION
Unit Structure
8.0 Objective
8.1 Executive control over the Administration
8.2 Judicial control over the Administration
8.3 Suggested Reading
8.4 Unit end questions

8.0 OBJECTIVE
to study about Executive and Judicial control over administration.

8.1 EXECUTIVE CONTROL OVER THE

ADMINISTRATION:
Introduction :
In a responsible form of government executives control over
administration is one of utmost importance. Generally the public
policies originate from the Chief Executive and they are
implemented by the Civil Servants. The Civil Servants unlike the
Chief Executive enjoy the permanent tenure and are not affected by
ups and downs in the political fortune. Therefore there is the need
for the control of the Civil servants by the Chief Executive to ensure
that their work confirms to the executive expectations. This is a very
difficult task. There are various methods of Executive control over
administration. They are explained below.

The overall responsibility of policy-making lies with the Chief

Executive which is performed with the help of cabinet ministers
in the parliamentary system of government. By formulating the
policy the executive gives direction to the administrative action.
The ministers of the various departments are also responsible
for the direction, supervision and guiding of the departmental
administration and its functioning. Overall coordination and
control of the various branches of administration is the
responsibility of the Chief Executive.

Executive also has control over the financial matters pertaining

to administration. The Executive prepares the budget of the
department, determines the sources of income and sanctions
the amount of expenditure that the department can incur. The

66
amount sanctioned cannot be exceeded by the administration.
Thus the executive can exercise continuous control over the
administration through financial regulation.

The personnel requirements of the department are determined

by the Executive. Executive lays down the general principles for
recruitment of the civil service. The recruitment to the higher
posts in a department is the Executive prerogative. The
ministers select their own Secretaries and Deputy Secretaries.
The Chief Executive has the overall power to appoint and
remove the public servants till they remain in power during the
pleasure of the President.

Delegated legislation is another form of Executive control over

public officials. The Parliament generally passes the law in the
skeleton form and details are filled up by the executive
departments. Further the Chief Executive has the power to issue
ordinances when the parliament is not in session and they are
as authoritative and powerful as an act passed by the
legislature. This executive power can be effectively used to lay
down the rules and regulations of the administrative action.

Check your Progress:

How does executive exercises control over administration?

8.2: JUDICIAL CONTROL OVER ADMINISTRATION:

8.2.1 Introduction :
Public administration exercises a large volume of power to meet the
citizens need in modern democratic welfare state. Today
administration is not concerned with only pure administrative
function but also involved with a large number of quasi-legislative
and quasi-judicial functions. In this respect they have a number of
chances to become arbitrary or master of the citizens. So it is very
necessary to control them. By judicial control is meant the power of
the courts to examine the Legality of the officials act and thereby to
safeguard the fundamental and other essential rights of the citizens.
The underlying object of judicial review is to ensure that the
authority does not abuse its power and the individual receives just
and fair treatment and not to ensure that the authority reaches a
conclusion, which is correct in the eye of law. It comprises the
power of a court to hold unconstitutional and unenforceable any law
or order based upon such law or any other action by a public
authority which is inconsistent or in conflict with the basic law of the
land The role of judiciary in protecting the citizens against the
excesses of officials has become all the more important with the
increase in the powers and discretion of the public officials in the
modern welfare states. But the courts cannot interfere in the
administrative activities of their own accord. They can intervene
only when they are invited to do so by any person who feels that his

67
rights have been abrogated or are likely to be abrogated as a result
of some action of the public official. Secondly, the courts cannot
interfere in each and every administrative act, as too much of
Judicial action may make the official too much conscious and very
little of it may make them negligent of the rights of citizens.
8.2.2 Generally judicial intervention in administrative activities is
confined to the following cases:
a) Lack of Jurisdiction:
If any public official or administrative agency acts without or beyond
his or her authority or jurisdiction the courts can declare such acts
as ultra-virus. For instance, according to administrative rules and
procedures, in all organizations, the competent authority is
identified for taking decisions and actions. If any authority or person
other than the competent authority takes action, the courts
intervention can be sought under the provisions of lack of
jurisdiction.
b) Error of Law:
This category of cases arises when the official misconstrues the law
and imposes upon the citizen obligations, which are absent in law.
This is called misfeasance in legal terminology. The courts are
empowered to set right such cases.
c) Error of Fact:
This category of cases is a result of error in discovering cases and
actions taken on basis of wrong assumptions. Any citizen adversely
affected by error of judgment of public official can approach courts
for redressal.
d) Error of Procedure:
Due procedure is the basis of governmental action in a
democracy. Responsible government means a government by
procedure. Procedure in administration ensures accountability,
openness and justice. Public officials must act in accordance with
the procedure laid down by law in the performance of the
administrative activities. If the prescribed procedure is not followed
the intervention of the courts can be sought and legality of
administrative actions can be questioned.
e) Abuse of authority:
If a public official exercises his or her authority vindictively to harm
a person or use authority for personal gain, courts intervention can
be sought. In legal terms, it is called malfeasance. The courts can
intervene to correct the malfeasance of administrative acts.

68
8.2.3: Forms of Judicial control over Administration;
Judicial Review
The judicial review implies the power of the courts to examine the
legality and constitutionality of administrative acts of officials and
also the executive orders and the legislative enactments. This is
very important method of judicial control The statutes made by
Parliament and State Assemblies itself provide that in a particular
type of administrative action, the aggrieved party will have a right of
appeal to the courts or to a higher administrative tribunal.
Sometimes, legislative enactment itself may provide for judicial
intervention in certain matters.
Statutory Appeals
The statutes made by Parliament and State Assemblies itself
provide that in a particular type of administrative action the
aggrieved party will have a right of appeal to the courts or to a
higher administrative tribunal. Sometimes, legislative enactment
itself may provide for judicial intervention in certain matters. The
State is liable for the tortuous acts of its officials in respect of the
non-sovereign functions only.
Criminal and Civil Suits against Public Officials
In India civil proceedings can be instituted against a public official
for anything done in his official capacity after giving two months
notice. When criminal proceedings are to be instituted against an
official for the acts done in his official capacity, previous sanctions
of the Head of the State i.e., the President or the Governor is
required. Some functionaries like the President and the Governor
are immune from legal proceedings even in respect of their
personal acts. Ministers, however, do not enjoy such immunity.
Extraordinary Remedies
Apart from the methods of judicial control already discussed, there
are the extraordinary remedies in the nature of writs of Habeas
Corpus, Mandamus, Prohibition, Certiorari and Quo Waranto.
These are called extraordinary remedies because the courts grant
these writs except the writ of Habeas Corpus, in their discretion and
as a matter of right and that too when no other adequate remedy is
available. A writ is an order of the court enforcing compliance on
the part of those against whom the writ is issued. In India these
writs are available under the provisions of the Constitution. While
the Supreme Court is empowered to issue these writs or orders or
directives only for the enforcement of
Fundamental Rights, the High Courts are empowered to issue
these writs not only for the enforcement of Fundamental Rights but
also for other rights. We will discuss these writs now.
Habeas Corpus:

69
Habeas Corpus literally means to have the body of. This writ is an
order issued by the court against a person who has detained
another to produce the latter before the court and submit to its
orders. If it is found that the person in unlawfully or illegally
detained, he will be set free.
Mandamus:
Mandamus literally means command. If a public official fails to
perform an act which is a part of his public duty and thereby
violates the right of an individual, he /she will be commanded to
perform the act through this writ.
Prohibition:
It is a judicial writ issued by a superior court to an inferior court,
preventing it from usurping jurisdiction, which is not vested with it.
While Mandamus commands activity, Prohibition commands
inactivity. This writ can be issued only against judicial or quasijudicial authorities to prevent exercise of excess of jurisdiction by a
subordinate court. As such, its significance as a method of judicial
control over administration is limited.
Certiorari:
While Prohibition is preventive; Certiorari is both preventive and
curative. It is a writ issued by a superior court for transferring the
records of proceedings of a case from an inferior court or quasijudicial authority to the superior court for determining the legality of
the proceedings.
Quo Waranto: Literally, Quo Waranto means on what authority.
When any person acts in a public office in which he/she is not
entitled to act, the court by the issue of this writ, will enquire into the
legality of the claim of the person to that office. If the said claim is
not well founded, he or she will be ousted from that office. It is,
thus, a powerful instrument against the usurpation ofpublic offices.
8.2.4 : Limitations of judicial control over administration
The effectiveness of judicial control over administration is limited by
many factors. Some of these limitations are:
1. Unmanageable volume of work:
the judiciary is not able to cope up with the volume of work. In a
year the courts are able to deal with only a fraction of cases brought
before it. Thousands of cases have been pending in Supreme
Court, High Courts and Lower Courts for years together for want of
time. There is an increase in the cases of litigation without a
commensurate expansion of judicial mechanism. This excessive
delay in the delivery of justice discourages many to approach the
court. The feeling of helplessness results in denial of justice to
many.

70
2. Post-mortem nature of judicial control:
In most of the cases the judicial intervention comes only after
enough damage is done by the administrative actions. Even if the
courts set right the wrong done, there is no mechanism to redress
the trouble the citizen has undergone in the process.
3. Prohibitive Costs:
The judicial process is costly and only rich can afford it. There is
some truth in the criticism of pro-rich bias of judicial system in India.
As a result, only rich are able to seek the protection of courts from
the administrative abuses. The poor are, in most cases, the
helpless victims of the administrative arbitrariness and judicial
inaction.
4. Cumbersome procedure:
Many legal procedures are beyond the comprehension of common
man. The procedural tyranny frightens many from approaching the
courts. Even though the procedures have a positive dimension of
ensuring fair play, too much of it negates the whole process.
5. Statutory limitations; the courts may be statutorily prevented
from exercising jurisdiction in certain spheres. There are several
administrative acts, which cannot be reviewed by courts.
6. Specialized nature of administrative actions: The highly
technical nature of some administrative actions act as a further
limitation on judicial control. The judges, who are only legal experts,
may not be able to sufficiently appreciate the technical implications
of administrative actions. As a result, their judgments may not be
authentic.
7. Lack of awareness: In developing societies, most of the people
who are poor and illiterate are not aware of judicial remedies and
the role of the courts. As a result they may not even approach the
court to redress their grievances. The courts which can intervene
only when it is sought may be helpless in this situation. The general
deprivation of people also results in deprivation of justice to them.
8. Erosion of autonomy of judiciary; There is executive
interference in the working of judiciary. The quality of judiciary
mostly depends on the quality of the judges. The Law Commission
made many recommendations to ensure the judicial standards of
the bench. The suggestion to create Judicial Commission with
responsibility for judicial appointments deserves serious
consideration. In recent years, there are many allegations of
corruption against judges. This undermines the prestige and the
effectiveness of the judiciary.
8.2.5 Check your Progress:
What is meant by Judicial control over administration?

71
What are the forms of Judicial control over administration?
What are the limitations of judicial control?

8.2.6 : LET US SUM UP

The test of good governance lies in the goals and objectives of the
government, in its policies and programmes, in the manner of their
execution, in the result achieved and above all in the general
perception of the people about quality of functioning of various
agencies, their attitude and behaviour towards the people, their
sincerity, honesty and their commitment towards the public duties.
Good governance implies accountability to the citizens of a
democratic polity and their involvement in decision making,
implementation and evaluation of projects, programmes and public
policies. In this perspective, transparency and accountability
become invaluable components of good governance as well as of
good administration.

8.3 SUGGESTED READING :

Public administration in theory and practice - M.P. Sharma and

B.L Sadan
Public administration - Mohit Bhattacharya
Modern public administration - Nigro and Nigro
Administrative Behaviors: Managing organizational behavior Paul Hersey & Kenneth Blanchard
Personal Administration - Public personal administration - O.
Glennstal
Control over administration : Public administration - Avasthi &
Maheswari
Central administration in India: Central administration - A.
Avasthi
Civil Services in India : Indian administration - S.R. Maheswari,
State. IGNOU Study Materials
IJPA articles on relevant topics
Current News Papers

8.4 QUESTION PATTERN:

1. Write a note on ethics and accountability in Public
Administration.
2. Examine the importance of Legislative control over Public
Administration.
3. How effective is the legislative control over administration?
4. What are the means of executive control over administration?
5. What are the forms of judicial control over administration?
6. Explain the limitations of judicial control over administration.

SECTION II
Module V
Unit 9

9
THE INDIAN ADMINISTRATIVE SYSTEM BASIC FEATURES
Unit Structure
9.0 Objectives
9.1 Introduction
9.2 Historical Overview of Indian Administrative System
9.2.1
Indian Administration Under British Rule
9.2;1 .1 Administration under East India Company
9.2.1 .2 Administration under direct authority of British Crown
9.2.1 .3 Check your progress
9.2.2 Post Independent Indian Administration
9.2.2.1 Challenges on the eve of Independence
9.2.2.2 Check your progress
9.3 Constitutional and Legal Framework
9.3.1 Constitutional Provisions for Civil Services in India
9.3.2 Check your progress
9.4 Salient Features
9.5 Let us sum up
9.6 Glossary
9.7 Suggested Reading
9.8 Question Pattern

9.0 OBJECTIVES
Dear students till now we studied various theoretical issues
concerning academic field of Public Administration. We are now
familiar with number of concepts and ideas which in last more than
hundred years enriched the understanding of the theory and
practice of public administration.
From this module onwards, we are entrusted with the task of
applying our understanding of the above mentioned issues to the
Administrative System in India. Thus in this module we are
expected to get basic understanding of the Bureaucratic framework
of the Indian Administration.
We will attempt to achieve following objectives in this unit.
To understand historical linkages of Indian Bureaucracy
To understand the constitutional and legal framework in which
Indian Administrative System operates.

73

To get acquainted with

Administrative System.

the

salient

features

of

Indian

9.1 INTRODUCTION
Although systemic enquiry in to the field of public administration
began in last half of 19th century in U.S., as a practice it was a
matter of great interest in ancient civilizations like India, & China.
Administrative system of any given country is always contextual to
the socio-political milieu surrounding it. Indian administration too is
not an exception to it. From ancient times to present it adapted itself
to the changing circumstances in which it operated. Present
administrative system in India is a remarkable example of continuity
and change. Pre British Administration in India was considerably
preoccupied with concerns of revenue generation, internal law and
order, and maintaining strong bonds with religious and cultural
currents in the contemporary society. Administration in those times
was guided by religious and monarchical dictates.
British, first under East India Company and then under the British
Parliament brought the rule of alienated legal structure with
plantation of British system primarily with a motive of control and
exploitation to enrich their mother country. Post British
Administration in India is more complex
which was entrusted with the task of nation building, development,
and establishment of egalitarian society. In this trajectory of
development the Public Administration acquired various unique
characteristics. Understanding of these features is essential to
understand the complex machinery of Indian Administrative
System.

9.2 HISTORICAL OVERVIEW OF INDIAN

ADMINISTRATIVE SYSTEM
The administration in India maintained its link with the past in
number of ways. Its present structure in many ways is continuation
of British colonial practices and institutions.
9.2.1 Indian Administration under British Rule
9.2.1.1 Administration under East India Company
Indian Administration during British rule was entrusted to match the
expectations of the colonial masters i.e. British. British were mainly
interested in maintaining control over the country. In the initial
period under East India Company they had limited objective to look
after trade, establish contacts with Indian rulers for getting
concessions, and to maintain security of their trading places and
residential settlements. After Victory over Nawab of Bengal in
Plassy it embarks on political conquest of the Indian subcontinent.

74
In its last phase it attempted certain social legislation to ban certain
religious, cultural practices but by and large it was focused on the
business activities, exploitation of Indian market and natural
resources in India, destruction of indigenous trade activities. To
carry on these duties East India Company had its military personnel
as well civil officials to perform civil duties including judicial
functions. East India Company coined the term Civil Service to
distinguish officials performing civil duties from Military/armed
services.
9.2.1.2 Administration under direct authority of British Crown
It is after the first war of Independence in 1857 that the Crown
started direct rule in India. Since then it evolved a systemic
construction of Steel Framework of Indian Bureaucracy under
colonial control. Development of Railways, Post and Telegraph,
Revenue system, educational system were especially designed to
serve the colonial purpose. The government was interested in the
collection of taxes, maintenance of peace and law and order. In the
words of Prof. Fadia role of bureaucracy was mainly negative, i.e.,
it performed regulatory functions and made all efforts to crush
people/s movement for independence. Following are the some of
the landmark developments of this period in the course of evolution
of Civil Service in India.

Macaulay Committee Report (1854) provided the philosophical

foundation for the Indian Civil Service. The Aitchison Report
(1887) was instrumental to develop the basic structure of Civil
Service in India. Till 1892 Civil Service in India was called
Indian Covenanted Civil Service. The Report renamed it as
Indian Civil Service and also created provincial civil service and
Subordinated Services.

All India services constitute highest echelons of bureaucracy in

British India. Officers belonging to these services were directly
under the Secretary of State of India and His Council. His
services were entirely protected by the Secretary of State of
India. Even his salary, pension, etc. were not subjected to the
vote of any Indian legislature.

With increasing responsibilities and growing pressure of

governance some new services were created. In the year 1892,
the Indian Service of Engineers and the Indian Veterinary
service were created. In 1897, the Indian Military Service; in
1905 Imperial Police; in 1906 the Indian Education Service and;
in 1907 Indian Agricultural Service was established. According
to the Lee Commission in 1924 there were eight all-India
services at that time with total staff of 4,278 personnel.

By the end of the first quarter of twentieth century amidst the

development of Indian freedom movement Indianization of the

75
higher civil services gained momentum. Under the Government
of India Act of 1919 responsible government was introduced in
India. It worked as catalyst to bring changes in the political
milieu of the country. Thus growing criticism of individual
members of the Services by questions in the Provincial and the
Central Legislatures, the ignominy of working under Indian
Ministers in the provinces, the Non-cooperation Movement of
1920-1922 putting the officers and their families in personal
discomfort, the insufficiency of salaries due to the high level of
prices prevailing in the wake of the First World War resulted in
the early retirement of many British officers from the Services.
Lee commission in its report recommended abolition of certain
All-India services, particularly those dealing with departments
that had been transferred to Indian hands. These departments
were Indian Educational Service, Indian Agricultural Service,
Indian Veterinary Service, and the Roads and Building Branch
of the Indian Service of Engineers. It further recommended
retention of Indian Civil Service, Indian Police Service, Indian
Forest Service, Indian Medical Service and the Irrigation Branch
of the Indian Service of Engineers.
The Government of India Act of 1935 further brought important
reforms in the nature of the higher civil services. The Act
strengthened the federal machinery. Though Indian public opinion
was in favour of dismantling all the All India Services, but the act
retained two services i.e. I.C.S. and I.P.S and thus maintained the
steel frame as it is.
In order to maintain firm grip over Indians, British Government
offered all kinds of favours, privileges and concessions to the public
services in India, especially All India Services. Same protection was
continued to these services in the provisions of the 1919 Act, 1935
Act. Their interests were guarded by the Governor General of India.
As a matter of fact, the introduction of limited responsible
government in 1920 and its extension in 1937 had been marked by
frequent clashes between the Indian ministers and the British
officers. Protective measures for the services were continued in the
Indian Independence Act of July 1947. Thus despite the protest by
some members in the Constituent Assembly, the government of
independent India provided in the Constitution of India the
protection of the rights of the.existing officers of the Indian Civil
Services.
9.2.1.3 Check your progress
1 Motive of the East Indian Company Administration in India was
...................................................................................................
2 British Administration in colonial India was welfare oriented. True/
False
3 All India Services under British Crown were (Mark the right
option)

76
a. Happy with Indian ministers
b. Received high privileges and protection
c. Indian freedom struggle had good rapport with civil services
9.2.2 Post Independent Indian Administration
Although the independence of India unlike American or Russian
revolution was a matter of transfer of power from British Parliament
to the Indian Government, the event was not as comfortable as was
desired during the long drawn freedom struggle. There were
enormous challenges before this newly born republic.
9.2.1 Challenges on the eve of independence:
Defending external boundaries:
Soon after the independence both the newly independent nations
were engaged in a full scale war over the issue of Jammu and
Kashmir. The war led to financial and diplomatic burden over the
Government of India which results in the diversification of attention
to the boundary problems. Similarly boundary disputes with China
remained unresolved which led to the war in 1962 with that nation
too. Consequent to these the administration of independent India
had to engage enormous resources for the external security.
Combating communalism:
Partition of the country on the communal line led to the problems of
very serious nature. Subsequent communal riots result into the loss
of thousand of lives, loss of property and further growth of ill
feelings among Hindus and Muslims. Further, exodus of millions of
refugees from across the border forced the administration to
prepare for their resettlement and rehabilitation. Although Indian
administration finished the unprecedented task with remarkable
speed and success it caused enormous strain on the financial and
other resources.
Unification of the country :
The Act of Independence allowed the Princely States, which were
earlier not the part of direct rule of British India to retain the power
to decide on integration to the Indian Union or remain sovereign.
There were more than six hundred such princely states whose
sovereignty implied constant threat to the security of independent
India. Indian administration under the able leadership of the then
Home Minister of India, Shri. Vallabhbhai Patel successfully
managed the integration of these princely states in the Union of
India.
Nation Building:
Large territory and diversity of region, language, culture, history,
religion, caste, class etc. provided fertile land for the secessionist
forces in India. The responsibility of the administration was to deal
with the separatist forces within the country without developing ill

77
feeling among the masses. This was delicate balance which was
needed in the process of nation building in the country.
Advent of Welfare State:
The constitution of India promises the citizen of India guarantee of
freedom, equality and social justice. These promises meant for the
beginning of welfare government had considerably increased its
functions. Bureaucracy had to shed of its administration in the
India. So the new colonial attitude of arrogance and apathy towards
the masses. They had to emerge as catalyst for modernization and
development of the newly independent nation.
A welfare state is a government that provides for the welfare, or the
well-being, of its citizens completely. Such a government is
involved in citizens lives at every level. lt provides for physical,
material, and social needs rather than the people providing for their
own. The purpose of the welfare state is to create economic
equality or to assure equitable standards of living for all.
Above mentioned challenges were just few to be highlighted from
the list of many more to expect from the nation which was newly
freed after more than one and half century long colonial rule.
Severity of the problems was increased with the personnel crisis
which country faced at the beginning. With the increase of the
functions of government the country was in need of trained
personnel to shoulder the responsibilities. But on the eve of
independence most of the British officers sought premature
retirement from the service, and due to the partition the majority of
the Muslim offices went to the Pakistan. Thus, nearly 600 members
of the Indian Civil Services left India, leaving only 600 officers in the
Service. Same shortage was faced by Indian Police Service and
External Affairs Ministry too. To deal with the crisis caused by the
gaps in the services, the government initiated emergency process
for the recruitment to the Services. A Special Recruitment Board
was set up in 1948 to fill the newly created posts in I.A.S. and I.P.S.
Its task was to survey the available administrative manpower in the
country both inside and outside the ranks of the permanent
services, and to select men of the requisite standards in order to
make good and fill up deficiency in services. The Special
Recruitment Board came to an end with the inauguration of the new
Constitution on January 26, 1950.
Now after the brief survey of the historical circumstances
surrounding evolution of the public Administration in India we will
turn to understand the foundation of the Bureaucracy in India as a
torchbearers for the development and modernization which is laid
down in the legal framework of the Constitution of India.
9.2.2.2 Check your progress
1 Greatest challenge before the Indian Administration after
Independence was (Select odd man out)

78

a. Unity and integration of the nation

b. Development of the country
c. To make India superpower
d. Deliver constitutional promises
2. Immediately after independence Indian Administration felt
shortage of officials due to.......................................................

9.3

CONSTITUTIONAL AND LEGAL FRAMEWORK

Unlike the Constitutions of other democratic nations in the world the

provisions related to the civil services are given constitutional basis
in our country. Its role and functions are very carefully located in the
Parliamentary System of Government.
In our Political System:

Administrative officials form the permanent executives as

distinguished from the Ministers who constitute the political
executives.
While the policies of the administration are laid down by the
ministers, the implementation of the same rest with the
administrative officials of apolitical nature.
The administration expected to be politically neutral which is
appointed by definite procedure in an order to maintain the
continuity of the administration.
The civil servants are supposed to be experts in the detailed
working of the government.

9.3.1 Constitutional Provisions for Civil Services in India

Part of XIV and XIV A of the Indian Constitution titles as Services
under the Union and the States contained provisions for the civil
services. The part include Article 308 to Article 323 A. Some of the
important provisions are as follows.

Article 309 provide for the recruitment and conditions of service

of persons serving the Union or a State administration. It
empowers the Union Parliament for the Services for the Union
and State legislatures; for the Services for the States, by
appropriate legislation, to regulate the recruitment, and
conditions of service of persons appointed for their respective
affairs.

Article 310 (1) provides the security of tenure of office of

persons serving the Union or a State. It laid down that a person
serving the Union or an All-India service holds office during the
pleasure of the President of India. Similarly, a person serving
the State civil service holds office during the pleasure of the
Governor of that State.

79

Article 311 (1) states that member of civil services, All India,
Central and State should not be dismissed or removed by an
authority subordinate to that by which he was appointed.
Article 311 (2) protect the civil servants from arbitrary dismissal,
removal or demotion in rank without informing the charges
against him and denial of opportunity to defend himself.

Article 312 (1) empowers the Parliament of India to create one

or more All -India services if the Council of State declared by
resolution and supported by not less than two-thirds of the
members present and voting that it is necessary and expedient
in the national interest to do so.
Article 312 (2) further provides the constitutional basis for the
Indian Administrative Service and the Indian Police Service
which were existing at the commencement of the Constitution.

Article 315 to Article 323 made provisions for the Public Service
Commissions for the Union and for the States pertaining to their
establishment, appointment and terms of office, their removal
and suspension and other related provisions such as functions,
powers, expenses and reports etc.

9.3.2 Check your progress

1 In India role and functions of civil services are compatible to the
Presidential System of Government True / False
2 Administration in India is expected to be politically committed.
True / False
3 Ministers who are political executives in India are expert in their
respective field.
True / false
10 Salient Features
Present Indian Administrative System carries the legacy of the
British colonial rule. The Constitution of India contains the basic
principles regarding the public services and the public service
commission. Some significant features of the Indian Administrative
System are as follows.
Shift from Colonial Policy
After the independence of the country efforts are made to redesign
the structure of the Indian Administration to suit the needs of the
new nation. Planning is adopted and Planning Commission is
designed to undertake the administrative policy making. It resulted
in tremendous expansion in the administrative activities of rural
development administration and public enterprises. The advent of
the Community Development Programme, National Extension
Services and the establishment of the Panchayati Raj institution
has created a new network of administrative machinery in the
country side. Consequently the district administration has
undergone radical changes.

80
Administrative Dualism:
Owing to the quasi federal nature of Indian political system the
executive and administrative powers of the Union and States are
co-extensive with their legislative powers. Central Services
administer 97 subjects which are constitutionally allocated to Union
and State Services administer 66 subjects reserved for States. For
the subjects in the Concurrent List, the Union formulates policies
and enacts legislations and the responsibility of administration is
entrusted to the State Services. Both the Services and State
Services are classified into four categories, Viz. Class-I. Class-II,
Class-Ill and Class-IV, depending on the responsibility, the nature
of work and required qualifications. Class I and II for the Union and
States, are recruited respectively through Union Public Service
Commission and State Public Service Commissions. Class-Ill
consists of clerical staff and Class-IV service constitutes all menial
staff which are recruited by the Subordinate Staff Selection Board
for Central and Regional Staff Selection Boards for the States.
All India Services
All India Services are the successors of Indian Civil Service known
as steel-framework of the British Raj. Personnel of All India
Services are inter-changeable between the Central and State
governments. They occupy strategic positions in the Central as well
as State administration. According to Dr. Ambedkar, they are
strategic posts from the point of view of maintaining the standards
of administration of the country. Article 312 of the Constitution of
India empowers the Council of States, in the wider national interest,
to recommend to the Union Parliament, creation of All-India
services. At present there are two All India Services, viz. Indian
Administrative Service (IAS) and Indian Police Service (IPS). The
recruitment for All India Services is done by the Union Public
Service Commission. (UPSC)
Recruitment to Public Services:
Since 1856 recruitment to the Indian administrative system has
been made through open competitive examination with an objective
to secure for the Indian Civil Service young men who had received
the best, the most liberal and the most finished education. The
Constitution of India has provided for the Union, State and Joint
State Public Service Commissions and has entrusted them the task
of ascertaining the merit of the candidates by conducting
competitive examinations and making recommendations to the
Union and state Governments in the matter of recruitment to public
services. Adequate provisions to ensure their independence and
thereby fair recruitment are made in the Constitution of India.
Differential Recruitment Policy
While recruiting the staff for Civil Services preferential treatment is
given to certain sections on the basis of social backwardness in the
form of relaxation of eligibility conditions and reservation in the

81
public employment. According to Art. 16(4) of the Indian
Constitution, Centre as well as State governments are required to
make provision for the reservation in appointments or posts in
favour of any backward class of citizen which in the opinion of the
State is not adequately represented in services under the state.
Domicile Requirements in State Services
Despite of constitutional obligation to not to discriminate persons on
their place of birth many States in India follow the policy of
recruiting
only the domicile citizen of those States. They justify such policies
on the grounds such as moral duty of a State to provide
employment to its Sons of Soil, possibility of encroachment of
public employment by the persons from other states, non familiarity
of the outsiders with the social cultural environment of those
states, and possible emotional non involvement or attachment to
the people of the region.
Training:
After the independence the method of institutionalized training for
Civil Services is adopted in order to impart the specialized
education to the new entrants for the efficient conduct of their
duties. Revenue and development administration remained the
central concern of these orientations. Common institutional training,
known as foundation training, is provided to recruits to the All-India
and Central Services Class-I, at Lal Bahadur Shastri National
Academy of Administration, Mussourie. Professional training to the
new recruits is provided at various Central Training Institutions.
Other training programmes like executive Development
Programme, Advanced Management Development Programme
etc., are conducted in the National Academy of Administration for
the central and All India services.
Dominance of Generalists:
The Indian Administrative Service is known as generalists who
occupy superior positions at policy formulation and
considerations levels in the Central and State secretariats. Apart
from this, these cadres are appointed to the specialized executive
agencies like Director of Education or Agriculture or Public Health.
Despite of fifty percent of the Class-I officers belong to the technical
services they are generally excluded from these key positions.
A Large Public Sector:
The public sector in India covers a vast and varied range of
activities as compared to the Private sector. The industrial and
commercial undertakings in the public sector in India are classified
into three groups:

82
- Undertakings run directly by the departments of executive
agencies of the Government like railways, posts and telegraphs
etc.
- Undertakings run by statutory corporations like L.I.C., Indian
Airlines, and O.N.G.C. etc.
The public sector:
sometimes referred to as the state sector is a part of the state that
deals with either the production, delivery and allocation of goods
and services by and for the government or its citizens, whether
national, regional or local/municipal.
Undertakings run by Government Companies registered in
accordance with the provisions of the Indian Companies Act, 1956.
Planning Commission :
Planning Commission was set up, by a Cabinet Resolution, on 15th
March, 1950 with an objective to secure rapid advance along
democratic and equalitarian lines. As an expert advisory body to
the Cabinet it works in close cooperation with the Union and State
Government. It takes initiative in suggesting new policies and
programmes and also to co-ordinate policies and programmes of
the other agencies of the government. Central and State
governments bear the responsibility for decisions and
implementing. However, in practice, the planning commission has
reduced the importance of the Ministries, the States, and even of
the Union Cabinet. It has affected the balance of power and the
federal structure by affecting the autonomy of the States and
reducing them to the status of doles receiving corporation.

9.5 LET US SUM UP

Thus the administration in India is not bon just out of nothing. In
theory and practice it is a continuation of the past, especially
colonial past. This continuation was owing to the necessity of the
time of independence as well as due to the nature at the
independence which was more in the form of transfer rather
revolution.
Colonial administration was working in the framework of police state
performing limited functions of revenue, defence and, law and
order. Design of higher civil services especially Indian Civil Service
was made suitable to this colonial objective. Growing pressure from
Indian movement for independence gradually brought attitudinal
and structural changes like Indianization, pro people, and federal
orientation. Although bureaucracy maintained its privileged position
even after independence it now become responsive to the need of
the developing nation.

83
In the process it retained some of the old features like continuation
of dominance of generalists All India Services, administrative
dualism has acquired some new characteristics like,
institutionalized recruitment and training to Public Services in both
central and state level, differential recruitment Policy, domicile
requirements in State Services, a large Public Sector and
emergence of Planning Commission.

9.7 SUGGESTED READING

1 Ramchandran, Padma; 1995; Public Administration in India;
National Book Trust; New Delhi.
2 Arora, Ramesh; 2006; Public Administration in India: Continuity
and Change; Rajat; New Delhi.

9.8 QUESTIONS
1.

Examine the elements of continuity and change in the Public

Administration in India.
2. Describe various constitutional provisions for the Public
Administration in India
3. What are the salient features of the public administration in
India?
4. Write short notes on:
a. Nature of public administration in India during colonial rule,
b. Challenges before the administration after independence.
c. Changing nature of public administration in India.

Module V
Unit 10

10
THE INDIAN ADMINISTRATIVE SYSTEM
Changing Nature-with reference to Liberalisation and
Privatisation Public-Private Partnership
Unit Structure
10.0
Objectives
10.1
Introduction
10.2
Changing Nature-With Reference To Liberalisation and
Privatisation
10.2.1 Shift in Economic Policy in Indian Economy after 1991
10.2.2 Check your progress
10.2.3 Behaviour and attitudinal influence of GLP on the
Administration
10.2.4 Check your progress
10.2.5 Globalization, liberalization, Privatization and the Public
Sector in India:
10.2.6 Check your progress
10.2.7 Globalization Liberalization and Planning In India:
10.2.8 Check your progress
10.3
10.3.1
10.3.2
10.3.3
10.3.4
10.3.5
10.3.6
10.3.7

Public Private Partnerships

Meaning
Limitations
Scope of PPPs
Check your progress
Public Private Partnerships in India
Experience of PPPs in India
Check your progress

10.4
10.5
10.6
10.7

Let us sum up
Glossary
Suggested Reading
Question Pattern

10.0 OBJECTIVES
This unit is the continuation of the last one. From the last unit we
are familiar with the Public Administration in India and its various
features under the Nehruvian model of planned, welfare economy.
Thus, now we can start addressing the issues concerning Indian
Administration in the Globalized world. This unit from Module V is
designed to fulfill following objectives:

85
1.
2.
3.
4.

To understand the changing context of public administration in

India in terms of economy, polity at national and international
level.
To understand the nature of these changes caused by
Globalization, Liberalisation and Privatization of Indian
economy.
To assess the impact of GLP on the Pubic Administration in
particular.
To acquire the understanding of the PPP model for the
development of essential public infrastructure with special
reference to India.

10.1 INTRODUCTION:
After 40 years of long engagement with the welfare state model, in
1991 India joined the bandwagon of globalization and integrated its
market with the global market. Gigantic transformation of every
sector of the Indian society was unavoidable with this change in the
economic policy of the government. The polity before 1991 was
characterized by the socialist approach towards the governance
and administration was based on Weberian model of bureaucracy.
Both of them were fused in order to tackle the challenges of nation
building, development, social justice and international peace.
Assessment of forty years of practice of Indian bureaucracy
revealed success stories on some fronts while failure on some
other. Fiscal crisis of 1990s led the Indian government to initiate
neo-liberal economic reforms. Various changes followed these
reforms. Along with unresolved issues of social justice, poverty,
border conflicts with neighbouring countries the New Economic
Order under the Brettonwoods Institutions (International Monetary
Fund, World Bank) and World Trade Organization posed new kinds
of challejiges which include global competition, environmental
concerns etc. The public administration in India has undergone
drastic changes from its traditional portrayal of rigid, leviathanian,
welfare image to the flexible, decentralized and catalyst under the
changing nature of the political economy after 1991.

10.2 CHANGING NATURE-WITH REFERENCE

LIBERALISATION AND PRIVATISATION

TO

Meaning:
Globalization entails progressive integration of Indian economy in
the world economy. It implies opening up the Indian Economy to
foreign direct investment, removal of constraints to the entry of Multi
National Companies in India.
Liberalization means free-market economy. It marks a change from
a restrictionist regime to a free regime. It implies reducing, relaxing
and dismantling of governments controls and regulation in

86
economic activities. These measures include delicensing of a good
number of industries, raising of licensing limits, relaxations under
the MRTP Act, broad banding, relaxation under the FEMA
regulations, legalization of additional capacities, relaxations in
export-import policy and so forth. Thus, the private sector is
permitted to function freely in respect of investment, production and
products.
Privatization suggests changing the ownership of pubic enterprises
fully or partially to the private parties, allowing the entry of private
sector into areas hitherto exclusively reserved for the public sector
and operating contract that is, entrusting the management and
control of public enterprises to the private parties on agreed
remuneration.
10.2.1 Shift in Economic Policy in Indian Economy after 1991
Indian economy before new economic policy of 1991 was
characterized as mixed economy which was heavily inclined
towards centralization. Due to socialist orientation of the
government more emphasis was on the public sector. Development
was guided and planned by the ideal of Welfare State. Industrial
policy was protectionist towards indigenous businesses and
agriculture with stringent regulation of import and export
transactions.
The New Economic Policy announced as New Industrial Policy in
1991 was the beginning of the era of liberalization which eventually
led to privatization and globalization. The policy was the radical
departure from the Nehruvian Economic Philosophy contained in
the 1956 policy designed to improve the overall performance of the
Indian Economy. With this change the approach of the governance
towards the public sector has changed dramatically. Various
reasons are cited by the government to justify this changing focus
towards public sector. Some of which are the poor financial
performance of the public sector; low returns against heavy
investments in public enterprises; inability of government to provide
budgetary support to sick enterprises; growing necessity to develop
competitive culture for the public enterprises to earn profits through
improved efficiency; the global trend towards liberalization,
privatization, and globalization, initiative from private sector to
invest in public infrastructure; growing influence of external factors
like advanced countries, MNCs, World Bank, IMF and so on.
10.2.2 Check your progress
1 Globalization is the integration of internal economy with
international market.
True / False
2 State any four reasons that compelled Indian Government to
open the economy in 1991.
a. ...........................

87
b. ...........................
c. ...........................
d. ...........................
10.2.3 Behaviour and attitudinal influence of GLP on the
Administration
Thus with the adoption of New Economical Policy, competitiveness
became the watchword of the new era administration. The old rulebound, rigid, conservative, cautious, slow and unresponsive
bureaucratic systems are increasingly being viewed as archaic. The
winds of change started affecting the structure, orientation and
behaviour patterns of the administrative system. Inefficiency and
high costs involved in the maintaining of the huge bureaucracy was
sought to be reduced by reducing the employees strength and
promoting professionalism and increasing speed of modernization.
Following changes are now seen crucial to prepare the
administration for the global competition.
Modernization and Technological preparedness:
The administration needs modernizing technology and development
of necessary infrastructure to play pivotal role in transforming
economic scenario.
Attitudinal changes in the Bureaucracy:
The attitude of administration towards public needs drastic change
in the wake of growing demands of citizens rights and privileges.
The emergent administrative system ought to be client-oriented or
people oriented with its major focus on empowering the people.
More particularly, administration at the cutting-edge level should
develop a positive, empathetic and helpful attitude towards the
common man.
Entry for Specialists:
Indian bureaucracy in the past was dominated by generalists. In the
present situation bureaucrats are expected to act as an
entrepreneur who is result-oriented and, therefore, is willing and
eager to cut red-tape. In the policy-making the role of specialist has
increased. They are needed to occupy top policy positions. In order
to facilitate greater role of professionals and technocrats in the
policy system, they are offered lateral entry into the civil service.
Decentralization:
The culture of decentralization and delegation should pervade the
whole administrative system and the field functionary should feel
that he is an integral part of the governance system. The top heavy
secretariat in the Central and state governments should be pruned
adequately with a view to broad-basing the policy process and
providing a greater role and scope to the middle level of
administration in the policy system.

88
Flexibility in control:
The governmental rules and procedures including audit need
revision in order to be more commercial and flexible. It is more
desirable to change mind set of bureaucrats. Accountability should
stem from a sense of moral responsibility and social obligation.
Personnel Administration:
Personnel administration requires rigorous mechanism of
manpower planning. Recruitment process needs to streamline to
form the basis of proven and potential merit. Training for improving
professional competence, reorienting attitudes and influencing
value-patterns will have to be a continual process. The salaries and
perks in government organizations need to be more attractive. To
compete corporate in order to attract bright talent in the services
and retain them in it, it would be desirable to create for them a set
of non-economic incentives. There is visible need to promote work
ethics in the Indian administrative system including, national pride,
organizational loyalty, professional commitment, dignity, prestige
and social recognition.
10.2.4 Check your progress
1 Which of the following is the watchword of the public
administration under the liberalization?
a. Competition
b. Red-tapism
c. Conservatism
d. Cautious
2. Following changes are expected in the administration in order to
prepare for the global competition.
a. .......................................... b................................................
c. .......................................... d................................................
e. .......................................... f................................................
10.2.5 Globalization, liberalization, Privatization and the Public
Sector in India:
Thus owing to the reasons above the New Industrial Policy of 1991
contained following provision; with regard to the public sector.
1.

Reduction of the role of the public sector to few strategic, hitech and essential infrastructure areas.
2. Entry to private sector in some of the areas earlier reserved for
the public sector. Expansion of the public sector to the areas
not reserved for it.
3. Chronically sick public enterprises will be referred to the Board
of Industrial and Financial Reconstruction (BIFR) for
formulation of revival and rehabilitation schemes.

89
4.
5.
6.
7.
8.

A social security mechanism to protect the interests of workers

who will be affected by the rehabilitation of sick public
enterprises.
A part of the governments share-holding in the public sector
offered to mutual funds, financial institutions, general public and
workers.
Boards of public sector companies to be made more
professional and autonomous.
Introduction of system of Memorandum of Understanding to
grant autonomy and subsequent accountability to the
management of public sector enterprise for the results.
Progressive reduction of the budgetary support to public
enterprises.

As a result of these macroeconomic policy reforms the government

has taken various measures to reform the public enterprises. These
are as follows;
1. Since 1991 the government dereserved various industries which
were earlier monopoly of public sector. Today only three areas
stand reserved viz., atomic energy, minerals specified in the
schedule to the atomic energy (control of production and use)
order, 1953 and rail transport. Some dereserved areas are opened
to domestic as well as foreign private enterprises.
2. In 1991, the Sick Industrial Companies Act (SICA, 1985) was
amended to enable the sick public enterprises to be referred to the
Board of Industrial and Financial Reconstruction (BIFR, 1987) for
revival or closure.
3. In 1988, government initiated the Voluntary Retirement Scheme
(VRS) to help the public enterprise to shed excess manpower.
4. In 1991 -92, the disinvestment programme was started with the
main objective of raising non-inflationary kind of finance for the
government budget. The government established a full-fledged
department of Disinvestment in 1999.
Disinvestment is a process whereby the government withdraws a
portion or the total of its equity in a public enterprise.
5. The government identified nine leading, well-performing and
high profit-making public enterprises as the Navratnas which were
granted autonomy and operational freedom in fields like financial,
commercial, managerial, and organizational to improve their global
performance. Their Boards have also been professionalized by
bringing in non-official part-time professional Directors.
List of Navratnas
1. Steel Authority of India Ltd.
2. Bharat Heavy Electricals Ltd.

90
3. Oil and Natural Gas Commission.
4. Indian Oil Corporation Ltd.
5. Hindustan Petroleum Corporation Ltd.
6. Bharat Petroleum Corporation Ltd.
7. Gas Authority of India Ltd.
8. National Thermal Power Corporation Ltd.
9. Mahanagar Telephone Nigam Ltd.
The Navratnas have freedom to: incur capital expenditure without
any monetary ceiling; enter into technology joint ventures or
strategic alliances to obtain technology; to effect organizational
restructuring including establishment of profit centers, opening of
offices in India and abroad; decide on the posts below the Board
level; raise capital from
the domestic and international markets; establish financial joint
ventures and wholly subsidiaries in India and abroad; and to deal
with manpower management.
6. The government further identified some profit making public
enterprises as Miniratnas and granted them financial, managerial,
and operational autonomy. These were divided into two categories
depending upon their recent performance, Miniratnas I and
Miniratnas II. Both these categories are those which have positive
net worth, have not defaulted in the repayment of loans/interest to
the Government and have not sought budgetary support from the
Government.
The Miniratnas have freedom to: incur capital expenditure without
government approval upto Rs. 300 crores or equal to their net worth
whichever is lower (for Miniratnas-I) and upto Rs. 150 crores or
upto 50% of their net worth whichever is lower (Miniratnas-II), enter
into financial joint venture, establish subsidiary companies and
overseas offices, enter into technology joint ventures, and work out
their own manpower policies.
7. The system of memorandum of understanding (MOU) was
introduced in 1987-1988 after the recommendation by the Arjun
Sengupta Committee (the committee to Review the Policy for the
Public Enterprises) Report of 1986.
MOU is an agreement between the Government and the public
enterprises management to grant autonomy to latter, that is, to
reduce day-to-day interference of the ministry in the management
of public enterprises. It defines obligations of both the parties for
improving performance of public enterprises. It makes public
enterprise management responsible for results.

91
10.2.6 Check your progress
1 Write any five provisions of New Economical Policy of 1991
pertaining to Public Sector.
...........................................................................................................
...........................................................................................................
2 What is disinvestment?
...........................................................................................................
...........................................................................................................
10.2.7 Globalization Liberalization and Planning In India:
The greatest influence of economic reforms found on the socioeconomic planning. In its annual report of 1992-93 the Planning
Commission of the Government of India hinted at the application of
indicative planning which stress more on persuasion than on
regulation and control of the private sector. The governments role
in seriously tackling the problems of rural and urban poverty,
unemployment, inequalities and regional imbalances would
continue to be significant in the foreseeable future. But side by side
with the expanding role of the private sector in economic
development, indicative planning is likely to be reinforced in certain
segments of the economy.
With the 73rd and 74th constitutional amendments in 1993 the
Indian bureaucracy is now entrusted with new obligation to make
district planning and metropolitan planning effective. It is an
important challenge to Indian administrators to implement
successfully the system of multilevel planning (centre-state-districtblock-village).This requires strategic as well as attitudinal change to
shed centralizing tendencies in governance and devise new
approaches to resources allocation which would respect
responsibility and functional autonomy at all territorial and functional
levels.
10.2.8 Check your progress
1 Indicative planning indicates...
a. more stress on persuasion than on regulation and control of the
private sector
b. total control of private sector
c. uncontrolled freedom to the private sector
d. absence of planning for public sector
2 Multi level planning necessitate functional autonomy at all
territorial and functional levels. True / False

10.3 PUBLIC PRIVATE PARTENERSHIPS

Increasing pace of industrialization, urbanization and population
growth placed enormous burden over the governments all over the
world. Enlightened public opinion and civil society have

92
compounded the pressure on the existing infrastructure, and
increased the demand- supply gap in most of the developing world.
While the infrastructure gap is rising, government budgetary
resources are increasingly constrained in financing this deficit. Thus
governments and policymakers felt need to explore new ways of
financing and managing these services.
Governments have been pushed to explore new and innovative
financing methods in which private sector investment can be
attracted through a mutually beneficial arrangement. Since neither
the public sector nor the private sector can meet the financial
requirements for infrastructure in isolation, the Public Private
Partnership (PPP) model has come to represent a logical, viable,
and necessary option for them to work together. PPPs enable
private investment flows, deliver efficiency gains and enhanced
impact of the investments. The efficient use of resources,
availability of modern technology, better project design and
implementation, and improved operations combine to deliver
efficiency and effectiveness. PPP projects also lead to faster
implementation, reduced lifecycle costs, and optimal risk allocation.
Private management also increases accountability and incentivizes
performance and maintenance of required service standards.
Finally, PPPs result in improved delivery of public services and
promote public sector reforms.
The idea of PPP originated during the debt crisis of 1970s and
1980s. Governments especially in European countries encourage
private investment in public infrastructure. In 1992 the Conservative
government in United Kingdom introduced the private finance
initiative, the first systematic programme aimed at encouraging
public-private partnerships. Subsequently governments in Australia
adopted systematic programmes based on the PFI like
Partnerships Victoria.
10.3.1 Meaning:
Public-Private partnership is the joint venture of Government and
Private business operated through their mutual partnership. It
involves a contract between public sector authority and a private
party, in which the private party provides a public service or project
and shoulders a substantial financial, technical and operational risk
in the project.
Depending on the type of responsibility shared between both
governmental side and private side we can categorize the types of
PPPs.
1. In some type of PPP, the cost of using the service is borne
exclusively by the users of the
service and not by the taxpayer.

93
2. In other types capital investment is made by the private sector on
the strength of a contract with government to provide agreed
services and the cost of providing the service is borne wholly or in
part by the government. Government may also contribute in kind.
3. In projects that are aimed at creating public goods like in the
infrastructure sector, the government may provide a capital subsidy
in the form of a one-time grant, so as to make it more attractive to
the private investors.
4. In some cases the government may support the project by
providing revenue subsidies, including tax breaks or by providing
guaranteed annual revenues for a fixed period.
5. Typically, a private sector consortium forms a special company
called a special purpose vehicle (SPY) to develop, build, maintain
and operate the asset for the contracted period. In cases where the
government has invested in the project, it is typically (but not
always) allotted an equity share in the SPY. The consortium is
usually made up of a building contractor, a maintenance company
and bank lender(s). It is the SPY that signs the contract with the
government and with subcontractors to build the facility and then
maintain it.
10.3.3 Scope of PPPs:
Since the 1990s, there has been a rapid rise of PPPs across the
world. Governments in developing as well as developed countries
are using PPP arrangements for improved delivery of infrastructure
services. Governments are building transport (roads, railways, toll
bridges, airports, tunnel, and flyovers), education (schools and
universities), healthcare (Cancer and other diseases research
centres, hospitals and clinics), waste management (collection,
waste-to-energy plants, sewage and drainage), energy (hydro
electric projects) disaster management and water (collection,
treatment, and distribution) infrastructure through PPP. Some
Public-Private Partnerships are in the realm of specific public health
goods. Product development partnerships (PDPs) are a class of
public-private partnerships that focus on pharmaceutical product
development for diseases in the developing world. These include
preventive medicines such as vaccines and microbicides, as well as
treatments for otherwise neglected diseases.
10.3.2 Limitations:
Although invented to transform public infrastructure with the help of
private enterprises, PPP is not immune from limitations. They have
been facing criticism from civil society organizations, public interest
groups, media, and other stakeholders. Some of the problematic
PPPs have raised concerns about the role of the private sector in
public services. Lack of trust in the private sector, tariff increases,

94
layoffs, and poor stakeholder management has contributed to these
concerns. Certain objections against the PPPs are as follows:
1. High procurement costs of PPPs deter small companies and
curtail competition
2. Due to faulty, rushed, noncompetitive, and nontransparent
application of the PPP principles some projects failed to deliver
expected results.
3. Private investors obtained a rate of return that was higher than
the governments bond rate, even though most or all of the income
risk associated with the project was borne by the public sector.
4. In many cases it is found that the schemes being proposed were
inferior to the standard model of public procurement based on
competitively tendered construction of publicly owned assets.
10.3.4 Check your progress
1 Define Public Private Partnership...........................................
.................................................................................................
.......................................................................................................
2 PPP projects may include: (Select odd man out)
a. Hospital
b. Border Security c. Railway
d. water supply
3. PPPs are flawless.
True / False
10.3.5 Public Private Partnerships in India
Despite becoming the fast growing economy of the world, India
continues to face large gaps in the demand and supply of essential
social and economic infrastructure and services. Rapidly growing
economy, increased industrial activity, burgeoning population
pressure, and all-round economic and social development have led
to greater demand for better quality and coverage of water and
sanitation services, sewerage and drainage systems, solid-waste
management, roads and seaports, and power supply. Increased
demand has put the existing infrastructure under tremendous
pressure and far outstripped its supply. The infrastructure shortages
are proving to be the leading binding constraint in sustaining,
deepening, and expanding Indias economic growth and
competitiveness.
Indias
global
competitiveness
remains
constrained and is adversely affected by lack of infrastructure,
which is critical for improved productivity across all sectors of the
economy. Poor infrastructure is a major barrier to foreign direct
investment (FDI). Lack of infrastructure is preventing the sectoral,
regional, and socioeconomic broadening of the economy and its
benefits, and is affecting inclusive growth in India. Further the large
sections of the population which are labour dependent, low skilled,
rural based, and working in agriculture and manufacturing sectors
have not received the benefits of accelerated growth of the
country.. Infrastructure shortages have slowed the growth of

95
manufacturing industries and agriculture, which are the labour absorbing markets for the low skilled. Poverty levels remain
significant, with about one-fourth of the population live in poverty.
Growing recognition of the prevailing infrastructure deficit in the
country and its impending impact on sustaining economic growth as
well as poverty reduction has made development of social and
economic infrastructure among the highest priorities of the
Government of India (GOI). However, estimated investment
requirements far exceed government resources. The expectations
can not be met from governments budgetary resources. The scope
for making improvements is limited by the state of public finances.
Given the large resource requirements and the budgetary and
borrowing constraints, GOI has been encouraging private sector
investment and participation in all sectors of infrastructure. It has
recognized that while public investment in infrastructure would
continue to increase, private participation needs to expand
significantly to address the existing deficit in infrastructure services.
To resolve the issues arisen out of these situations the Government
of India and of the States have adopted PPP model to sustain the
developmental needs of the country.
10.3.6 Experience of PPPs in India:
Institutional Efforts:
The GOI constituted, on August 31, 2004, the Committee on
Infrastructure (Col), chaired by the Prime Minister. The Col is
tasked with steering initiating policies that would ensure time-bound
creation of world-class infrastructure, delivering services matching
international standards; developing structures that maximize the
role of PPPs; and monitoring progress of key infrastructure projects
to ensure that established targets are realized. The CoI is
supported by the Empowered Subcommittee, which formulates,
reviews, and approves policy papers and proposals for submission
to Col, and monitors and follows up on implementation of the
decisions of Col. The Col has also formed a Committee of
Secretaries to prepare and implement an Action Plan for providing
adequate road and rail connectivity for Indias major ports.
The GOI started Viability Gap Funding (VGF) scheme which is a
special facility to support PPP projects especially in the initial years
to establish the commercial viability to overcome problems of long
gestation periods and economic externalities. The scheme provides
20% funding of the project cost for state or central PPP projects
implemented by the private sector developer on a BOT basis
(selected through a process of competitive bidding). If required, an
additional 20% can be made available by the sponsoring Ministry/
agency or it can come from the state government or any sponsoring
statutory agency like local bodies. Sectors eligible for VGF are
Transportation (roads, railways, seaport, airport); Power/Energy;
Urban Infrastructure (water supply, sewerage, solid-waste

96
disposal); Tourism (international convention centers); and special
economic zones.
A study conducted by the World Bank of 13 states in 2005 found 85
PPP projects awarded by states and select central agencies (not
including power and telecom). Their total project cost was Rs 339.5
billion. The largest number of PPP projects is in the roads and
bridges sector, followed by ports, particularly greenfield ports.
According to a Morgan Stanley report, more than Rs 1000 billion
worth of PPP projects are under development in India. State
governments have identified a whole range of sectors for PPP,
including roads/highways, ports (air, sea, and container),
telecommunication, water supply, waste management, tourism,
power, industrial infrastructure, township development, leisure, and
health.
Experiences of PPPs in States in India
Experiences of PPPs in India varies from State to State. Largescale private financing in water supply has so far been limited to a
few cities like Visakhapatnam and Tirupur. Most PPPs in water
supply projects have been through municipal bonds in cities such
as Ahmedabad, Ludhiana, and Nagpur. West Bengal has recorded
significant success in housing and health sectors which delivered
quality housing and quality living conditions to the lower middle
class and the middle class. Gujarat and Maharashtra achieved
success in ports, roads, and urban infrastructure. Karnataka also
has done well in the airport, power, and road sector. Punjab has
had PPPs in the road sector.
Varied institutional framework.
State/UT governments have indicated marked differences in the
process of PPP development, including variations in existence of
infrastructure legislation and policies, institutional arrangements for
identifying and approving PPPs, project development funds and
companies, financial structuring, procurement procedures, etc.
States like Andhra Pradesh, Gujarat, and Punjab have legislation to
define the infrastructure and outline of its execution by the private
sector. Some other states have administrative frameworks in place
for decision-making. Madhya Pradesh and Maharashtra are
focused on a single sector (roads) by building up capacities in line
departments but due to absence of platforms to transfer acquired
skills to other departments other departments are lagging behind.
Gujarat, Andhra Pradesh, and Punjab have developed crosssectoral enabling legislation and dedicated agencies but have not
had a very successful track record in taking PPPs to the market.
Some other states, such as Tamil Nadu, have developed a few
PPPs across a wide range of sectors, without explicit cross-sectoral
PPP units or legislation. Rajasthan has a cross-sector

97
policy/regulatory framework and a project development company
but has concluded only one tourism project and a few road projects.
One lesson to be learnt from the implementation of PPPs in India is
significant capacity development is required to make available
sufficient skilled staff in the Centre as well as States.
10.3.7 Check your progress
1 Committee on Infrastructure is chaired by...
a. Prime Minister
b. President
c. Finance Minister d. Home
Minister
2. VGF scheme is introduced to support PPP projects especially in
the initial years to establish the commercial viability to overcome
problems of long gestation periods and economical externalities.
True / False
3. Non availability of sufficient skilled staff is the important problem
of PPPs in India.
True / False

10.4

LET US SUM UP

Dear students we finished the basic understanding of the changing

economical conditions in India which have enormous influence on
the Administrative System. In the last decade of 20th century India
felt need of transformation of its economic policy. It results in the
New Economic Policy of 1991. Subsequent flow of Globalization,
Liberalization, and Privatization forced the administration to adapt
to the new competitive environment with new skills and attitudes.
Government of India brought fundamental change in the style of
administration from welfare to the neo-liberal. Consequently public
sector transformed into entrepreneurial enterprise.
Public Private Partnership is a recent model to provide the services
to the population. It entails cooperation between Government and
Private sector to achieve the efficiency in the service delivery
system in India. Government looking to it as a viable alternative for
the leviathanian government.

10.5 SUGGESTED READING

1
2
3

Arora R.K., Goyal Rajni; 2009; Public Administration:

Institutions and Issues; Wishwa Prakashan
Bhattacharya Mohit; 1997; Restructuring Public Administration;
Jawahar Publications; New Delhi
Hota P.C.; Administrative Reforms in the Era of Liberalization
and Globalisation: Need for Change of Mindset of Civil
Servants; Indian Journal of Public administration VOL. LIII, No.
3, July-September 2007; p. 356-360.

98

10.6
1
2
3
4
5

QUESTION PATTERN

Elaborate the impact of Liberalisation and Privatization on the

Administrative System in India.
Discuss the changes brought by the Government of India in
policy towards Public Sector.
Define Public Private Partnership. Describe its scope and
limitations.
Examine the working of Public Private Partnership model in
India
Write short notes.
a. Impact of Liberalization and Privatization on Planning in
India,
b. Behavioural influence of GLP over Indian Administration,
c. Indian efforts to implement PPP in India

Module VI
Unit 11

11
PERSONNEL ADMINISTRATION
RECRUITMENT
UNIT STRUCTURE
11.1 Introduction
11.2 The Process of Recruitment
12.3 Union Public Service Commission
12.4 Questions

11.1: INTRODUCTION
The most striking feature of Indian Administration is the enormous
growth in the powers, functions and influence of the civil service in
the post independence period. The economic and social
compulsions of free India have led to the acceptance of the concept
of a welfare state and a socialist society to be achieved through a
planned process. Civil service is engaged in a large variety of
developmental activities. The growing importance of civil service
has led to a significant change in the approach to the civil service.
Owing to the tremendous increase in the number of personnel of
public services in the post-independence period, the issue of
recruitment has assumed great significance. Prior to 1979 a single
competitive examination used to be held. There were three
compulsory papers: Essay, General knowledge and General
English - each carrying 150 marks. But of a number of optional
papers three papers of 200 marks each, and two additional subjects
(for IAS and IPS only) out of another list of subjects each carrying
200 marks were to be offered. The candidates who qualified in the,
written examination were called for interview, which carried 300
marks.
The above system of recruitment in the All India Services was
criticized from a number of view points, and the UPSC decided to
review the system thoroughly. For this purpose a Committee on
Recruitment and Selection Methods under the Chairmanship of Prof
D.S: Kothari was appointed by the UPSC. Committee submitted its
report in 1976 and made the following recommendations 1) To hold a Preliminary examination to screen the candidates for
the Main examination;

100
2) To hold the Main examination to select candidates for entry to
the LBS National Academy for a foundation course of about nine
months;
3) To hold a post-training test of 400 marks to be conducted by the
UPSC on completion of the foundation course, the purpose being to
assess personal qualities and attributes relevant to the civil
Services
4) To assign candidates to a particular service on the basis of the
total marks obtained in the Main examination and the Post-Training
Text at LBS Academy, taking into account the candidates for the
Services
5) To allow the candidates to answer all papers, except the
language paper, in any language listed in the Eighth Schedule of
the Constitution, or in English.
The Kothari Committees recommendations regarding the
examination scheme (preliminary and main) were accepted by the
government, and it was implemented by the UPSC in 1979.
Accordingly the present system of recruitment was adopted.

11.2: THE PROCESS OF RECRUITMENT TO ALL

INDIA AND CENTRAL SERVICES:
All India Combined Competitive Examination for the Civil Services
conducted by the Union Public Service Commission (UPSC)
comprises of two successive stages:
Preliminary Examination: It is of objective type, which is a
qualifying examination.
Main Examination: It consists of written examination and interview.
1.2.1: Eligibility conditions:
Educational Qualifications:
Graduates in any discipline from a recognized university.
Candidates having professional and technical qualifications
recognized by the government are also eligible.
Those who have appeared in the final year but do not have the
result can also apply but they would have to produce proof of
passing the exam with their application for the Main Exam.
Nationality:
For the Indian Administrative Service and the Indian Police
Service, a candidate must be a citizen of India

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Age Limits:
Candidate must have attained the age of 21 years and must not
have attained the age of 30 years on 1st August of the year in
which examination is being held. The upper age limit may be
relaxed in respect of the SC/ST and other backward classes.
Reservation will be made for candidates belonging to Scheduled
Castes, Scheduled Tribes, Other Backward Classes and physically
disabled categories in respect of vacancies as may be fixed by the
Government
Number of Attempts
A maximum of 4 attempts is permitted to every candidate and 7 to
those belonging to Other Backward Classes. There is no restriction
on the number of attempts in the case of SC/ST candidates.
Check your Progress:
1. What are the eligibility conditions for the public service?
2. What were the suggestions of Kothari Committee?
1.2.2: Procedure of Civil Services Examinations
The notification of the examination is made in December. The
Examination consists of 2 subjects where the mode of testing is via
Objective type questions. One paper is compulsory (General
Studies) and the other optional (e.g. Economics, Physics, Medical
Science, Engineering etc.) This exam is held every year in June
and about 300,000 candidates take it.
The Preliminary Examination is followed by the Main Written
Examination and a personal Interview. The Main Examination is
held in November and December of the same year. Approximately
7000 candidates are called for this examination, chosen on the
basis of merit from the Preliminary (Qualifying) exam.
The marks obtained in the Main Examination (Written and
Interview) determine the final ranking. The candidates are then
allotted to various services on the basis of their ranks and the
preferences expressed by them.
Examination Papers:
Preliminary Examination - The preliminary examination consists
of two papers:
Paper I General Studies 150 marks
Paper II ~ An Optional subject 300 marks
Subjects for Paper II (one subject to be selected): Agriculture,
Animal Husbandry and Veterinary Science, Botany, Chemistry, Civil
Engineering, Commerce, Economics, Electrical Engineering,
Geography, Geology, Indian History, Law, Mathematics,
Mechanical Engineering, Medical Science, Philosophy, Physics,

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Political Science, Psychology, Public Administration, Sociology,
Statistics, Zoology.
Both the papers will be of objective type questions (multiple choice).
The question papers are set in Hindi as well as in English. The
course content for the optional subjects will be of the degree level.
Each paper is of two hours duration. Blind candidates are allowed
an extra time of 20 minutes for each paper.
Main Examination - It consists of the following papers:
1. Paper I - One Indian language (selected by the candidate) 300
marks
2. Paper II - English 300 marks
3. Paper III - Essay 200 marks
4. Paper IV&V - General Studies 300 marks each
5. Paper VI-IX - Any two subjects (optional papers to be selected by
the candidate) with two papers each 300 marks for each.
The Candidate has to select any two subjects but the following
combinations are not allowed
Political Science & International Relations and Public
Administration
Commerce and Management
Anthropology and Sociology
Maths and Statistics
Agriculture and Animal Husbandry and Veterinary Science
Management and Public Administration
Animal Husband & Veterinary Science and Medical Science
Any two branches of engineering.
Each paper is of 3 hours duration.
Interview:
The final stage of selection is the interview which is conducted in
April/May every year. It carries a weightage of 300 marks and is
conducted by boards comprising of retired and serving senior
administrators and academicians. The interview is only held at the
UPSC headquarters in New Delhi. About 1400 candidates from
those who took the Mains are called for
the interview on basis of merit. Candidate will be asked questions
on matters of general interest. The object is to assess the personal
suitability and judge the mental caliber of the candidate. The
candidate must exhibit an intelligent interest in events happening
around him so that he appears to be a complete personality. The
final result is announced in June of the year. Thus the entire
examination process from the Preliminaries to the Mains takes a
year.
Check your Progress:
6. What is the pattern of the preliminary examination?

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7. What is the pattern of the main examination?

11.3 UNION PUBLIC SERVICE COMMISSION

The first Public Service Commission was set up on October 1st,
1926. However, its limited advisory functions failed to satisfy the
peoples aspirations and the continued stress on this aspect by the
leaders of our freedom movement resulted in the setting up of the
Federal Public Service Commission under the Government of India
Act 1935. Under this Act, for the first time, provision was also made
for the formation of Public Service Commissions at the provincial
level.
The Constituent Assembly, after independence, saw the need for
giving a secure and autonomous status to Public Service
Commissions both at Federal and Provincial levels for ensuring
unbiased recruitment to Civil Services as also for protection of
service interests. With the promulgation of the new Constitution for
independent India on 26th January, 1950, the Federal Public
Service Commission was accorded a constitutional status as an
autonomous entity and given the title - Union Public Service
Commission
The Union Public Service Commission has been established under
Article 315 of the Constitution of India. The Commission consists of
a Chairman and ten Members. The terms and conditions of service
of Chairman and Members of the Commission are governed by the
Union
Public Service Commission (Members) Regulations, 1969. The
Commission is serviced by a Secretariat headed by a Secretary
with two Additional Secretaries, a number of Joint Secretaries,
Deputy Secretaries and other supporting staff.
The Union Public Service Commission has been entrusted with the
following duties and role under the Constitution:
1. Recruitment to services & posts under the Union through
conduct of competitive examinations;
2. Recruitment to services & posts under the Central Government
by Selection through Interviews;
3. Advising on the suitability of officers for appointment on
promotion as well as transfer-on-deputation;
4. Advising the Government on all matters relating to methods of
Recruitment to various services and posts;
5. Disciplinary cases relating to different civil services; and
6. Miscellaneous matters relating to grant of extraordinary
pensions, reimbursement of legal expenses etc.

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The major role played by the Commission is to select persons to
man the various Central Civil Services and Posts and the Services
common to the Union and States (viz. All-India Services).
Expenses of public service commissions
The expenses of the Union or a State Public Service Commission,
including any salaries, allowances and pensions payable to or in
respect of the members or staff of the Commission, shall be
charged on the consolidated Fund of India or, as the case may be,
the Consolidated Fund of the State.
Under Article 320 of the Constitution of India, the Commission are,
inter-alia, required to be consulted on all matters relating to
recruitment to civil services and posts.
Recruitment is made by one of the following three methods:
1. Direct Recruitment;
2. Promotion; and
3. Transfer
Direct recruitment is conducted broadly under the following two
methods:
1. Recruitment by competitive examination.
2. Recruitment by selection through interview.
Recruitment by competitive examination
Under the Constitution one of the functions of the Commission is to
conduct examinations for appointment to Civil Services/Posts of the
Union. In addition, competitive examinations are also held, by the
Commission under arrangements with the Ministry of Defence for
entry to certain Defence Services, through the National Defence
Academy, Indian Military Academy, Naval Academy, Air Force
Academy and the Officers Training Academy.
The Commission usually conducts over a dozen examinations
every year on an all India basis. These include Examinations for
recruitment to services/posts in various fields, such as Civil
Services, Engineering, Medical and Forest Service, etc. At present
the Union Public Service Commission conduct their examinations at
numerous venues spread over 42 regular centers throughout the
country.
Recruitment by selection
Recruitment by Selection is made by the following methods:
1. By Interview Only
2. By Recruitment Test Followed By Interview
By interview only
Where the number of applicants is very large, it is not practicable to
call for Interview all the applicants who fulfill the minimum eligibility
conditions prescribed. The Commission, therefore, shortlist the

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candidates to be called for the interview on the basis of certain predetermined criteria related to the job. A large number of recruitment
cases are handled by the Commission by the method (1) above.
By written test followed by interview
In this category, there are two types of procedure followed:
a. An objective-type written and/or practical test to test the skill of
the candidates followed by Interview, the final selection being
decided by Interview, aided by the performance of the candidates in
the written test and/or practical test.
b. An objective-type written and/or practical test to screen
candidates to be called for interview, the final selection being
decided by Interview only.
Appointment by Promotion and Transfer on
Deputation/Transfer
In accordance with the procedure decided by the Government, in
consultation with the Commission, Chairman or a Member of the
Commission presides over the Departmental Promotion Committee
Meetings to consider promotions from Group B to Group A and
from one grade to another within group A, where promotion is to be
made by Selection.
Extension of functions to local bodies etc
Article 321 also empowers the Parliament to extend the functions of
the Public Service Commission to any local authority or other body
corporate constituted by Law or by any public institutions.
The Commission have a duty, under Article 323 of the Constitution
to present annually to the President a Report as to the work done
by the Commission and on receipt of such report, the president
shall cause a copy there of together with the Memorandum
explaining, as respect the cases, if any, where the advice of the
Commission was not accepted, the reasons for such nonacceptance to be laid before each House of the Parliament.
Assessment of the working of UPSC
The UPSC was envisaged as an expert body and a non-partisan
organization which would be the major recruiting agency for public
personnel. However the role and functioning of UPSC has come
under the serious criticisms from time to time.
UPSC holds the responsibility of recruitment of the public
personnel. It is the recruiting agency of the All India Services and
the Central Civil Service, Class I and class II which
constitute only 2% of the central Government Employees. The
responsibility for staffing lower services and posts rests with the
department concerned. The Class III and Class IV employers
constitute about 98% of the total number of the Central Government
Employees. But UPSC is not consulted in their appointments.

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The UPSC is not consulted in regard to selection of appointments
of the
- Posts of higher diplomatic nature
- Membership or chairmanship of Tribunals or Commissions
- Posts in the Secretariat of the Lok Sabha and the Rajya Sabha.
- All technical and advisory posts in or under the Atomic Energy
Commission
- Judicial Commissioners and Additional Judicial Commissioners,
District Judges and Additional District Judges in Union Territories.
Further, UPSC is set aside by the government by resorting to
some devices such as making of ad-hoc appointments for a
temporary period, without consulting the Commission
The recommendations of UPSC are only advisory in nature. The
government is at liberty to accept or reject the advice given by the
UPSC which reduces its effectiveness.
The method of recruitment employed by the Commission also has
come under the criticism. The procedure of recruitment is quite
lengthy and the recruitment takes a long period of time. The
interview test has been criticized as being weighted in favor of the
Urban English medium school products and is discriminative
against candidates having rural background.

11.4 QUESTION
1. Explain the structure of UPSC
2. What are the function of UPSC
3. Write on recruitment

Module VI
Unit 12

12
PERSONNEL ADMINISTRATION
1. Training
2. Integrity in Administration
Unit Structure
12.1 The Training
12.2 Lal Bahadur Shastri National Academy
12.3 Corruption
12.4 Integrity
12.5 Central Vigilance Commission
12.6 Suggested Reading
12.7 Questions

12.1: THE TRAINING

To make public service competent and responsive to the
aspirations of the people, training is needed for the new entrants in
the service. The importance of the training for the public service
employees was recognized as early as in 1798 by Wellesley,
Governor General of India. He had established a training college at
Calcutta for the new recruits of the Company. After independence a
large number of training institutions have been set up for imparting
training to all classes of public employee right from the All India
Services to the village level worker the lowest public employee.
Prior to 1947, major part of the training consisted of on job training
under the supervision of a senior officer. The Government of India
established a Training School for IAS probationers at New Delhi in
March, 1947. In 1957, IAS Staff College was established at Simla to
conduct refresher courses for the IAS officers. On April 15, 1958the
decision was taken to set up a National Academy of Training. In
September 1959, the Govt. of India decided to merge the two
training institutions, the IAS Training School, Delhi and IAS staff
College, Simla and to set up National Academy of Administration at
Mussorie. The Academy is known as Lal Bahadur Shastri National
Academy of Administration since 1972.
12.1.2: TRAINING IN INDIA:
The basic objectives of the IAS Professional Course Phase I, as
suggested by the Syllabus Committee are
To Understand The Theoretical principles underlying the political process and
national goals through the study of prescribed subjects:

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Basic political Concepts
Constitution of India.
Basic Economic Principles and
General administrative Knowledge.
12.1.3 : Training programme:
The IAS probationers stay in Academy from July to December
for foundational and a brief spell of institutional training.
The probationers are sent to the state to which they are allotted
for practical training for a period of one year.
Second spell of institutional training lasts for six months that is
January to June in the subsequent year.
12.1.4 : Foundation training - objectives
To give the probationers a basic understanding of the
Constitutional, political, economic, legal and social framework
within which these officers have to work
To impart basic knowledge on the core subjects
To promote a common outlook, and common understanding
amongst members of various higher services
To help in building up right attitudes and values and the qualities
of leadership and org skills which make a civil servant proficient
in his duties.
At the end of the course exam is conducted and also a proficiency
test in Hindi is conducted + they are provided lessons in the
regional language of the state to which they are assigned. In
December initial advanced training is given a special emphasis is
placed on Law and Economics. And professional course exam is
conducted in the mid of December.
In the second spell of training the probationers go for practical on
Job training to the state to which they are allotted. This training is
intended for understanding the field situation and application of
knowledge and skills acquired in phase I. The training consists of
the following.

A short period in the state-secretariat;

Work in collectors office;
Work in treasury;
Acquaintance with settlement and land records;
Work in district office and inspection of police station;
Work in development departments such as agriculture,
cooperation, irrigation;
Work in sub-divisional office;

Magisterial and other judicial duties.

After completing the practical training at the state, the IAS
probationers are brought back to the academy for the Second spell
of training for 3 months duration. At this stage the probationers are

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not in a frame of mind to receive further theoretical training and
usually evince great keenness in seeking answers to the problems
faced by them in the course of the practical experience gained in
the districts. The emphasis is therefore on the discussion of
administrative problems. Thus the training is problem oriented.
At the end of this training the probationers appear at final
examination conducted by UPSC. On the successful completion of
the training he is given charge of a sub division. In order to widen
his experience, the probationer is transferred from district to district.
After 6 to 7 years of service he is assigned independent charge of a
district.

12.2 : LAL BAHADUR SHASTRI NATIONAL ACADEMY

OF ADMINISTRATION:
12.2.1 : ORGANISATION:
The responsibility of administration of the Academy is entrusted to
the Director of the rank of a Secretary/Additional Secretary to the
Government of India. He is assisted by a Joint Director, of the rank
of a Joint Secretary to the Government of India and three Senior
and three Junior Deputy Directors, of the rank of Deputy Secretary
to the Government of India.
These senior officials are posted to the Academy usually for a
period of 3 years. The Directing Staff is responsible for

The management of Academy

Running of courses
Maintenance of discipline and other problems related with day to
day working of the Academy.

The Faculty consists of the professors of Economics, PA, Political

Theory, Constitutional Law, Social Administration and Indian
History and Culture. The teaching work is shared by the directing
staff and the academic staff. Practicing Administrators are also
appointed as Supervisors of studies for teaching purposes. Guest
lecturers are also invited from time to time. Lectures are
supplemented by tutorials and group discussions.
12.2.2 : Role and Functions:

To provide post-entry foundational training to the recruits of the

All India and Central Class I services to enable them to benefit
by close contact with each other

To provide professional training to IAS probationers for one

year including the foundational training. The one year training is
in two phases of 9 months and 3 months duration + one years
practical training in the district of their states of allotment.

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To organize refresher courses for IAS officers of 6-10 years

seniority.

To conduct an Advanced Management Development Course

for officers of the All India and Central Services of 11-16 years
seniority.

To organize an intermediate course for the state civil service

officers officiating for at least 2 years on IAS cadre or
equivalent posts of the state. And also directly recruited IAS
officers of 6-10 years seniority to give them an All India
background and outlook

To conduct seminars and conferences of officers of senior level

of government and to create a forum for a change of
administrative ideas and experience.

To conduct field studies in PA and to publish teaching materials

for training officers in the disciplines, relevant for training in
public administration.

To publish articles, research papers, syndicate group reports,

book reviews, notes and comments on various aspects of PA
through the Academy Journal

12.2.3 : Check your Progress:

What are the objectives of training?
Explain the importance of foundation training
What is meant by on job training?

12.3 : CORRUPTION
Corruption is an abuse of public resources or position in public life
for private gain. The scope for corruption increases when control on
the public administrators is fragile and the division of power
between political, executive and bureaucracy is ambiguous.
Political corruption which is sometimes inseparable from
bureaucratic corruption tends to be
more widespread iri authoritarian regimes where the public opinion
and the Press are unable to denounce corruption. In India,
however, in spite of a vigilant press and public opinion, the level of
corruption is exceptionally high. The increase of opportunities in
State intervention in economic and social life has vastly increased
the opportunity for political and bureaucratic corruption, more
particularly since politics has also become professionalized.
12.3.1 : Forms of Corruption
The report of the Santhanam Committee identifies following forms
of corruption:

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Securing pecuniary benefits:
The Committee felt that the most common form of corruption was
securing some kind of pecuniary or other material advantages
directly or indirectly for oneself or family or relatives or friends by
misusing ones official position.
Another widespread form of corruption is speed money.:
With the complexity of the modern welfare state, a number of laws,
rules and regulations have come into force. For example, for getting
any services from the government or having any transactions which
the government requires the observance of government procedures
and formalities which take time; often the administrating officials
cause deliberate delay in completing this process or charge some
speed money for shortening it.
Another form of corruption is embodied in the liaison men who try to
cultivate close social relations with senior officers who are in a
position to influence the government policies in their favour.
Needless to say that tries to give a number of favours to win them
over. A number of other forms of corruption have been pointed out
in various reports of different committees and commissions which
examined the question of corruption from time to time. Some of
them are indicated below:
8. Donations by rich individuals and big companies to the political
parties are a very important and widespread form of corruption.
Since the major beneficiary is the ruling party, it influences the
administrators in passing on some undue benefits to the donors.
9. Sometimes the private companies offer jobs to retired officials.
This may lead to corruption in as much as an officer may bestow
undue favour to the company in the expectation of future
employment. To some extent a remedy has been provided for this
by prohibiting the government servants and their family members
from taking up private employment within two years of their
retirement.
10. In all contracts of construction, purchases, sales and other
regular business on behalf of the Government, there is a chance of
money being passed on to the Government officers for showing
some favours in relaxing the specifications, etc.
11. Sometimes the corruption operates at lower levels also when
money is demanded for helping a person in his service matters like
promotions, transfers etc.
12. At times, the performance evaluation of an honest officer is
distorted for not meeting the pecuniary demands of the superior
officers. The resulting damage to the moral of honest officers can
be well-imagined.

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13. Then there are some minor forms of corruption like availing of
the facilities of private guest houses, lavish expenditure during the
tours of Ministers and senior officers, etc. No list of mode of
corruption can ever be complete. The methods listed above give
only a small sample. A dishonest officer can discover methods of
corruption in almost any situation.
12.3.2 : Harmful effects of Corruption
Corruption in high places affects the very fabric of the social
system. It has many direct and indirect harmful effects. Some of the
important ones are described below:
i) Corruption in high places reduces the faith of the people in the
Government. The people expect high standards of morality from
their rulers. When these standards are not met, it may result in the
alienation of people from the Government.
ii) Corruption increases the effective cost of administration. The
people who are in any case paying to the Government for its
services in the form of taxes are unofficially required to pay more to
its officers.
iii) The widespread corruption in the bureaucracy causes cynicism
and social disunity. This may reduce the willingness of the people
to make sacrifices for the economic development of the society.
iv) Corruption comes in the way of making decision on merits.
When the decisions are made on the basis of pecuniary benefits to
be obtained from the transactions, the merit naturally gets the
second place. There is even a possibility of sacrificing the national
interest for the sake of these benefits. This may for example,
happen in case of purchase of sub-standard arms, which may not
be effective during a battle.
v) Corruption has a very adverse effect on the morale of the honest
officers. In fact, it militates against the very basis of the principles of
a pure bureaucracy. When the evaluation of work, placement and
promotion are dependent on consideration other than merit, the
whole system may be vulgarized and demoralized. Corruption has
often resulted in a tremendous waste of national resources. For
example, purchased goods not used for years result in the
depreciation of goods as well as increase in inventory cost.
12.3.3 : Check your Progress:
What are the different forms of corruption?
Explain the harmful effects of corruption.

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12.4 : CAUSES OF THE DECLINE OF INTEGRITY

Decline in integrity is a complex phenomenon, which naturally has
complex causes. A curious mixture of historical, social, political
and economic factors causes the phenomenon of corruption. We
describe below some of these causes:
Historical Causes
a) The colonial Government paid their own senior officers
handsomely. The local officers, working mainly at lower levels, were
paid very poor salaries. This definitely affected their integrity.
b) During World War II, there was scarcity of goods; even articles of
common consumption like food, clothing etc. were available on
ration cards. All these controls provided opportunities for corruption.
The climate for integrity which had been rendered unhealthy by war
time control and scarcity was further aggravated by the post-war
flush of money and inflation. The salaries of the employees did not
keep pace with inflation. The increasing economic activity with
excessive Government controls created the climate for corruption
on a large scale.
Post-independence Problems
The administrative machinery of the independent India was
considerably weakened by (a) war-time neglect; (b) sudden
departure of a large number of British and Muslim Officers. A large
number of promotions of people of unproved merit had to be done.
A large scale recruitment also brought down the quality of the staff
recruited. All this resulted in a great turmoil in the administrative
system. The stability and the continuance of traditions received a
jolt.
Environmental Causes
A very important cause of corruption is the vast urbanization and
industrialization. This created an environment in which material
possession and economic power determine the status and prestige
of a person in the society. Since the salaries of the Government
servants were not enough to afford this ostentatious living, this
created a lot of strain on the integrity of the administrative officers.
Economic causes
Inadequate compensation to the Government servants in the form
of low salaries and benefits is by far the most important cause of
corruption in the society. The increasing prices have brought down
the real income of the Government employees, especially those in
a higher position whose salaries have not at all been protected
against inflation. When the salaries are not enough to meet even
the basic needs of the employees, they naturally succumb to the
temptations of illegal money.

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Lack of Strong Public Opinion against Corruption
The officials, even when they are known to be corrupt are often not
looked down upon in the society. In fact, they are often more
respected than their honest counterparts because of their ability to
help and entertain their friends and relatives. Sometimes the
corrupt politicians are re-elected to high offices by the people even
when corruption charges against them are established by judicial
enquiry. Very often corruption is accepted by the people as a way
of life and they do not complain against it.
Corrupting influence of big industrial magnates
A number of big businessmen try to oblige the Government servant
in many ways to obtain some favours in future. They take it as an
investment for the future. This acts as a temptation to the
Government servants.
Complicated and Cumbersome Procedure
The procedure of the Government even in respect of simple things
like getting a ration card has unnecessarily been complicated. This
provides the Government employees an opportunity to extract
money from the clients. The situation probably can be remedied by
simplifying procedures and reducing the discretion of the lower
staff.
Existence of influence peddlers
The cumbersome procedures of the Government and all
pervasiveness of Government controls have created a tribe of
influence peddlers. These people maintain liaison in the
Government offices. They get the work of the clients done through
their contacts in the Government. They operate at all levels. In fact,
they are the middlemen of the corruption between the Government
employees and their clients
Inadequate Provisions and Enforcement of the Law
The Indian Penal Code and Prevention of Corruption Act do not
provide adequate framework for punishing the guilty officers.
Moreover, the administration of these laws leaves much to be
desired. Not many prosecutions are launched. Out of the
prosecutions launched not many are
pursued vigorously. The result is that a number of guilty persons do
not get punished.
This encourages the dishonest employees in continuing their
corrupt
practices. Undue Protection Given to the Govt.
Employees
The constitution of our country as well as the disciplinary
procedures etc., make it almost impossible to take action against
corrupt employees. Naturally, there is nothing to deter them from

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followingtheir corrupt practices with a vengeance if they are so
inclined.

12.5 : CENTRAL VIGILANCE COMMISSION

In the decade of 1960s the members of Parliament expressed the
serious concern on Growing menace of corruption in
administration. This led to the formation of a Committee on
Prevention of Corruption, popularly known as Santhanam
Committee, to review the problem and make suggestions. Among
other things, the Santhanam Committee noticed the conspicuous
absence of a dynamic integration between the vigilance units in
various Ministries and the Administrative Vigilance Division in the
Ministry of Home Affairs. The Committee also raised an important
issue that the Administration could not be a judge of its own
conduct. The Central Vigilance Commission was, therefore,
conceptualized as an apex body for exercising general
superintendence and control over vigilance matters in
administration under Government of India Resolution dated
11.02.1964. The establishment of the Commission was considered
essential for evolving and applying common standards in deciding
cases involving lack of probity and integrity in Administration. The
Central Vigilance Commission was given statutory status and
performs the functions assigned to it in terms of Government of
Indias Resolution dated 11.02.1964, which are as under:

To undertake an inquiry or cause an inquiry or investigation to

be made into any transaction in which a public servant working
in any organization, to which the executive control of the
Government of India extends, is suspected or alleged to have
acted for an improper purpose or in a corrupt manner; tender
independent and impartial advice to the disciplinary and other
authorities in disciplinary cases having vigilance angle at
different stages of investigation, inquiry, appeal, review, etc.;
Conduct oral inquiries through its officers [Commissioners for
Departmental Inquiries] in important disciplinary proceedings
against the said public servants; exercise a general check and
supervision over vigilance and anti-corruption work in Ministries
or Departments of the Government of India and other
organizations to which the executive control of the Union
extends;
Initiate at such intervals, as it considers suitable, review of
procedures and practices of administration insofar as they relate
to maintenance of integrity in administration; scrutinize and
approve proposals for appointment of Chief Vigilance Officers in
various organizations and assess their work;
Conduct, through its organization of Chief Technical Examiners,
independent technical examination mainly from vigilance angle,
of construction and other related works undertaken by various
Central Government organizations;

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Organize training courses for the Chief Vigilance Officers and

other vigilance functionaries in Central Government
organizations.
In addition to the above functions, the Central Vigilance
Commission was empowered, under the CVCs Ordinance to:Exercise superintendence over the functioning of the Delhi
Special Police Establishment (DSPE) insofar it relates to
investigation of offences alleged to have been committed under
the Prevention of Corruption Act, 1988;
Review the progress of investigations conducted by the DSPE
into offences alleged to have been committed under the PC Act;
Under the authority of Government of Indias Resolution dated
11.02.1964, the Commission was empowered to undertake an
inquiry into any transaction in which a public servant was
suspected or alleged to have acted for an improper purpose or
in a corrupt manner irrespective of his status. It was only
through subsequent administrative instructions that the
Commissions jurisdiction was restricted to certain categories of
employees for the purposes of its advice. Even in that situation,
the Commission could call for a report on any complaint of
corruption, misconduct, lack of integrity, misdemeanor, etc.
against any public servant irrespective of his status. While the
intention of the Supreme

12.5.2 Organization:
The Commission was accorded statutory status through an
Ordinance dated 25.08.1998, The Ordinance envisaged the
Commission to be a multi-member Commission, consisting of the
Central Vigilance Commissioner (Chairman) and not more than four
Vigilance Commissioners as its members. The appointments of the
CVC and the VCs were to be made by the President by warrant
under his hand and seal on the recommendations of a committee
consisting of (i) The Prime Minister, (ii) The Minister of Home Affairs
and (iii) Leader of the Opposition in the House of People.
The Central Vigilance Commission is assisted by a Secretary, who
is of the rank of Additional Secretary to the Government of India,
two Additional Secretaries, who are of the rank of Joint Secretary to
the Government of India, 10 Officers of the rank of Directors/Deputy
Secretaries, an Officer on Special Duty, four Under Secretaries and
other staff. In addition, there are fourteen officers, designated as
Commissioners for Departmental Inquiries (CDs), who are
nominated to conduct departmental inquiries relating to major
penalty proceedings on behalf of the disciplinary authorities in
serious and important disciplinary cases.
12.5.3 Check your Progress:
What are the forms of corruption?
What are the effects of corruption?
What are the causes of corruption?

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12.6 LETS US SUM UP:

Consequent to the expansion in the activities of the State, a
significant change has taken place in the approach to the civil
service. Traditionally the functions of the civil service were largely of
preventive nature. But in the modern times the main concern of the
State is to create a positive motivation among officials which would
enable them to give their best to the public service. The public
administration has to be action-minded and human relations
oriented. The public service must have a concern more for the
people than for the regulations and procedures. It must be dynamic
and public spirited and able to win public approval, consent and
cooperation.

12.6 : SUGGESTED READING:

Public administration in theory and practice - M.P. Sharma and

B.L Sadan
Public administration - Mohit Bhattacharya
Modern public administration - Nigro and Nigro
Personal Administration - Public personal administration - O.
Glennstal
Central administration in India: Central administration - A.
Avasthi
Civil Services in India : Indian administration - S.R. Maheswari,
State
IGNOU Study Materials
IJPA articles on relevant topics
Current News Papers

12.7 : QUESTION PATTERN

1.
2.
3.
4.
5.
6.
7.

Explain the procedure of recruitment to All India Services.

Explain the procedure of Civil Service Examination.
Discuss the objectives of training to All India Services with
reference to training programme.
Examine the structure and role of Lal Bahaddur Shastri
National Academy of Administration
Critically examine the role and functions of Union Public
Service Commission.
Account for the causes of decline of integrity in Public
Administration.
Write a note on Central Vigilance Commission.

Module 7
Unit 13

13
FINANCIAL ADMINSTRATION
BUDGETARY PROCESS
Unit Structure :- Budgetary Process
13.0 Introduction
13.1 What is Budget?
13.2 Importance of Budget.
13.3 Budgetary process
13.4 Preparation of the Budget in India.
13.5 Enactment of Budget in India.
13.6 Execution of Budget.
13.7 Performance of Budget.
13.8 Unit end Questions
Objective : To understand Budgetary process in India.

13.0 INTRODUCTION - BUDGETARY PROCESS

Financial administration is one of the most important aspects of
public Administration. Financial administration involving the
machinery and Method by which funds required for the public
services are raised, spent and accounted for, is at the very core of
modern government.
13.1 : What is Budget?
Indian constitution defines Budget as The annual statement
containing an estimate of all anticipated revenue and expenditure of
the government for the coming financial year.
In the hands of administration, the Budget is a record of the past
performance, a method of current control, and a projection of future
plans.
Budget is a financial document of the government as presented to
the Legislature and sanctioned by the Legislature.
According to Dimock - A Budget is a financial plan, summarising
the financial experience of the past, stating a current plan and
projecting it over a specified period of time in future.
Tayler says, Budget is a financial plan of government for a definite
period.

119

Origin of the term Budget has been derived from a french word
Bougette meaning a leather bag used for carrying official papers.
The Story goes that the term was used in its present sense for the
first time in 1733 in a satire Opening of the Budget directed
against Walpoles financial plan for that year. In England the
chancellor of the Exchequer used to carry to the House of
commons a leather bag containing papers, on financial plans. He
used to open his Budget i.e. the bag. Since then the term has been
used for a financial statement of annual income and expenditure of
the government.
In conclusion : The Budget is a statement of expected revenue
and proposed expenditure for a year. It sets forth the procedure and
manner in which the revenue is to be collected and the
administration of expenditure is to be carried out.

13.2 : IMPORTANCE OR PURPOSE OF BUDGET

1. It helps administrative mangement and co-ordination.
2. It is an instrument of social and economic policy.
3. Budgetary system is the most important technique of
parliamentary control over administration.
4. It ensures the financial and legel accountability of the executive
to the legislature.
If a government desires to achieve through its public administration
certain socio-econmic goals, it has to make arrangements for the
requisite finance. In the absense of proper financial resources, the
governmental programmes would become a mere paper execise.
When public money is sent for public purposes, the important task
before public administration is to have efficient management of
public money. Budgeting is one of the major processes by which
the use of public resources is planned and controlled.

13.3 : BUDGETARY PROCESS

The Budgetary process in a modern state consists of the following
stages :1. Preparation of the Budget.
2. Enactment of the Budget.
3. Execution of the Budget.
4. Legislative control of the Budget.

13.4 PREPARATION OF THE BUDGET IN INDIA

A) Which agency make the Budget?
The responsibility for framing the budget in India is entrusted to the
President of India. Under Article 112 of the Indian constitution, the
President shall cause to lay before both the Houses of parliament

120

every financial year a statement of the estimate receipts and

expenditure of the Government of India for the year.
In practice, the president instructs the council of Ministers to
undertake the job and the job is performed by the Ministry of
Finance.
13.3.2 : B) Stages : The Preparation of budget takes place in the
following stages :1. Preparation of the preliminary estimates by the Heads of
Departments.
2. The Scrutiny and Review by the controlling officers.
3. Scrutiny and review of the estimates by the Auditor-General.
4. Scrutiny and review of the revised estimates by the ministry of
Finance.
5. Estimating the Revenue.
6. The final consideration of the consolidated estimates by the
cabinet.
1) Preparation of the preliminary estimates by the Heads of
Department :- The Finance Ministry Supplies skeleton forms to the
administrative heads of departments of expenditure in the month of
July. The skeleton forms call for details regarding :
1. Actual for the previous year.
2. Sanctional estimates for the current year.
3. Revised estimates for the current year.
4. Budget estimates for the next year.
2) The scrutiny and Review by the controlling officers :-The
skeleton information is scrutinised, reviewed, finalized and
consolidated by the Heads of administrative departments Such
estimates are forwarded to finance Ministry in the month of
November.
3) Scrutiny and Review of the estimates by the Auditor General : One copy of the departments preliminary estimates is
forwarded to the Auditor General of India. The Auditor General
scrutinize the estimates from an accountants angle to ensure
compliance of technical requirements. The administrative heads of
the various departments keeps in view the comments of the
comptroller and Auditor General while preparing the revised
estimates of their departments.
4) Scrutiny and review of the Revised Estimates by the
Ministry of Finance : The revised estimates are thereafter verified
by the Finance Ministry.
5) Estimating the Revenue : The work of estimating the revenue is
the responsibility of the Finance Ministry. The Ministry compares
the figures of income and expenditure with previous years figures

121

and proposes changes in the existing rates if necessary. At this

stage the Budget Division in the Ministry of Finance prepares an
estimate projection of revenue and expenditure of the Government
of India for the ensuing year. On the basis of the estimated
expenditure and proposals regarding fresh taxes the Draft Budget
is prepared by the end of December.
6) The final consideration of the consolidated estimates by the
cabinet :The draft budget is examined by the Finance Minister in
January. He consults the Prime Minister and prepares his financial
policy.
At the end of February the budget is finalised by the Finance
Minister. The skeleton budget are submitted to the cabinet for its
consideration and are usually approved as it is by the cabinet.
After the budget is approved by the cabinet, it is presented to the
parliament usually on the last working day in the month of February
by the Finance Minister.
13.3.3 : Conclusion : Thus in the first stage of Budgetary process
i.e., preparation of the Budget includes six stages. These stages
consist of the formulation of estimates of revenue and expenditure
for the estimates of revenue and expendture for the ensuing
financial year.

13.5 : ENACTMENT OF THE BUDGET :

Enactment of the Budget is the second stage of Budgetary process.
It means approval of the Budget by the parliament and ratification
by the president.
Article 265 of the Indian constitution provides that No tax shall be
levied or collected except by authority of law.
Article 266 provides that, No moneys out of the consolidated Fund
of India shall be appropriated except in accordance with law and for
the purposes and in themanner as passed by the Legislature.
Consideration :
The Stages in the enactment of the budget are as follows : These
stages are five 1. Presenting the Budget.
2. General discussion.
3. Votingof Demands for Grants.
4. Consideration and passing of Appropriation Bill.
5. Consideration and passing of Finance Bill.
1. Presenting the Budget.
The President of India convenes the Budget session of the
parliament, usually in the month of February. The Budget session

122

commences with the Presidents address and followed by the

presentation of the Budget.
The Budget is presented in two parts. one is Railway Budget and
other is General Budget. The Railway Budget is presented in the
third week of February by the Union Railway Minister which
contains proposals of expenditure and revenue pertaining to the
Railway. The General Budget is presented on the last working day
of February by the Union Finance Minister.
The Budget speech of the Finance Minister gives information
relating to general economic conditions of the country. Financial
policy to be followed by the government, the explanation for the
difference between the budget estimates and the revised estimates
of the current year. It highlights the taxation proposals, new
schemes launched by the government.
The Finance Minister, along with the Budget submits a number of
documents to parliament. Finance Minister submits the Budget and
concludes his Budget speech. After that there is no discussion on
the Budget in the House. Budget is presented only in the LokSabha.
2. General discussion on Budget
The speaker of LokSabha fixes the date on which general
discussion on the Budget take place. Such discussion usually takes
place one week after the presentation of the Budget. Four days are
allotted for the general discussion on the Budget. Such general
discussion on the Budget takes place in both the Houses of
Parliament simultaneously. At the time of general discussion the
House shall be at liberty to discuss the Budget as a whole or any
question of principle involved therein. The Finance Minister gives
reply to the issues raised in the course of discussion.
In this stage Budget is not submitted to the vote of Parliment.
3. Voting of Demands for Grants.
The next stage in the enactment of the budget is voting of Demands
for grants. It means voting on the expenditure part of the budget.
These demands are presented ministrywise. The speaker in
consultation with the leaders of the Various political parties allots
time for discussion. The discussion on the voting of demands
continues for 26 days and within this period all the demands are
supposed to be discussed and passed, A demand duly voted
becomes a grant. It should be noted that the House can only
reduce a demand, but cannot increase it. The voting of demands is
the exclusive privilege of the Loksabha. Rajya Sabha has no role to
play except discussing the demands for grants.

123

This stage of enactment of budget gives the members of the

parliament an opportunity to criticise the working of the Ministry
whose demands are voted by the House. They can move cut
motions such as policy cut motion, economy cut motion and
concentrate discussion on specific issues. Such motions, when put
to vote, are usually defeated but such motions enable the
members of Parliment to expose the inefficiency, unstisfactory
working and other deficiencies.
4. Consideration and passing of Appropriation Bill.
After voting of demands is over, the budget enters into the stage of
enactment. i.e. the consideration and approval of the Appropriation
Bill. All the demands for grants voted by the Loksabha and the
expenditure charged on the consolidated fund of India are put
together and incorporated in the Annual Appropriation Bill.
The Appropriation Bill is introduced in the Loksabha. The Bill
follows the same procedure in the House as any other money bill.
After the Bill is passed in the House, it is certified by the speaker as
a money bill and it is sent to the Rajyasabha.
Rajyasabha is empowered to discuss the bill and make
recommendations within 14 days to the Loksabha. The latter may
or may not accept the recommendations. In case the Rajasabha
does not return the bill within the 14 days, the bill is deemed as
passed by that House.
After the Bill is passed by both Houses of parliament it is sent to the
President of India for his formal assent.
5. Consideration and passing of Finance Bill
Finance Bill means taxation proposals. It contains the proposals for
revenue for the ensuing financial year. It embodies the proposals
for imposing raising or renewal of taxes. The procedure for the
enactment of the financial Bill is the same as in passing of money
bill. When this bill is enacted by parliament and receives the formal
assent of the President, the government is authorised to collect
taxes as provided in the Finance Bill.
Conclusion :
Thus Enactment of the Budget consists of approval of the
parliament to the Finance and Appropriation Bills.

13.6 : EXECUTION OF THE BUDGET

It means the implementation of the Budget. After the enactment of
the Budget by the parliament, ministries and attached offices of the
Government are authorised to incur expenditure.

124

Control of the Finance Ministry :

Parliament sanctioned the grants as a whole and not to individual
ministers. The Finance Ministry exercised control on the spending
of Ministries. The control of Finance Ministry is continous. At the
time the money is actually spent, the Finance Ministry exercises
stringent control. It is based on the notion that the parliament
makes the grants to the Government as a whole and not to
individual Ministries. The Finance Ministry, as the agency managing
the finance, has to be convinced about the desirability and
prudence of the proposed expenditure before it lets the spending
Ministry involved to proceed with it. The concurrence of the Finance
Ministry is not required for the normal existing expenditure, but new
expenditure must have the prior approval of the Finance Ministry.
The Budget division of the Ministry of Finance applies broad checks
and determines gross amount for the various schemes.

13.7 : CREATION OF FINANCIAL BRANCH

Each administrative Ministry has a Financial Branch consisting of
the Financial adviser, Deputy Financial Adviser. This staff is solely
concerned with the financial and budgetary work and is associated
with the formulation of proposals to be included in the budget.
Accounting The secretary of Ministry is deemed as the chief accounting
authority. The secretary signs appropriation accounts and ensure
preparation of Financial accounts of his Ministry. Each Ministry, in
consultation with the Auditor - General determines the manner in
which its accounts are to be maintained and furnished to the
comptroller and Auditor - General. The Ministries also evolve
suitable procedures to facilitate the linking of accounts with
performance budgeting and performance appraisal. Finance
Ministry watches the progress of expenditure in the spending
departments through monthly expenditure statements, periodic
reports from them and cautioning them when necessary. Thus such
control is essential to maintain Financial accountability of the
government.

13.8 : QUESTIONS
1)
2)
3)
4)
5)

Explain the concept of Budget and state its importance.

State the stages in the preparation of the union Budget?
How is the Union Budget enacted by the Parliament?
Discuss the post - budgetary control of Finance Ministry.
What is performance Budget? Examine its nature in the India
context.

MODULE 7
Unit 14

14
FINANCIAL ACCOUNTABILITY
Unit Structure :
14.0 Introduction
14.1 Nature of Financial Accountability
14.2 Means of ensuring Financial Accountability
14.2.1 Estimate Committee
14.2.2 Public Accounts Committee
14.2.3 Committee on Public Undertakings
14.2.4 Evolution
14.2.5 Audit as a means of Financial Control
14.2.6 The Comptroller and Auditor General of India.
14.2.7 Unit End Questions

14.0 INTRODUCTION
Adminstration and finance are intimately related Every
administrative act involves expenditure of money. Hence foremost
attention shall be paid to the treasury. Sound fiscal Management is
essential for smooth working of the governments. As revenue is
derived from the citizens, it is morally binding upon the government
to spend money efficiently and economically. Hence Financial
control and financial accountability is necessary.
Unsound financial administration blasts the prospects of
democracy. The unprecedented increase in governmental
expenditure in modern times makes it absolutely necessary, that
sound principles, tools and techniques of financial administration
are evolved and employed by all governments. The American
people had raised the banner of revolt when the British parliament
imposed unjust taxes without consulting the representatives of the
native population by giving slogan. Notaxation without
representation,? Since that time the principle of accountability of
the government, to those from whom the taxes collected, has been
firmly established. This financial control is also described as
financial accountability of the government to the people and is
ensured through their elected representatives.

14.1 : NATURE OF FINANCIAL ACCOUNTABILITY

The executive branch formulates its work programme for the year in
the form of the budget and presents it to the legislature.The
legislature is the fund - raising and fund-granting authority.

126

In India, by provision of Article 112 of the constitution, the

President causes, to be laid before both the Houses of Parliament,
a statement of the estimated receipts and expenditures of the
Government of India for the financial year. It is called the Annual
Financial Statement. It indicates the sums to be charged on the
Consolidated Fund of India and the money required to meet other
expenditures. Thus, all proposals for grants and taxation emanate
from the executive and are sanctioned only by parliament. To
safeguard the rights and interests of the tax payer and to ensure
financial accentuation of the executive branch, three fundamental
institutional safeguards are provided Viz.
a) No tax can be levied or collected except by authority of law :
b) No expenditure can be incurred from public funds except in the
manner provided in the Constitution, and in accordance with
law, i.e., unless it has been Sanctioned by Parliament.
c)
The executive is bound to spend money in the manner as
sanctioned by Parliament. This control is exercised through the
Comptroller and Auditor-General.

14.2 MEANS OF ENSURING FINANCIAL

ACCOUNTABILITY
The principal means of ensuring financial accountability of the
government is the budgetary control. It is the basis of efficient fiscal
management.
Effective control of the Parliament over the governmental
expenditure requires that the Parliament should satisfy itself that
the appropriations have been utilised economically for the approved
purposes within the framework of the grants. It should undertake a
detailed examination of the annual budget etimates of the
government to suggest possible economies in the implementation
of the plans and programmes embodied therein. Both these
functions are importance in making the parliamentary control over
governmental expenditure complete. The Parliament does not have
time to exercise these functions, therefore, the Parliament
constitutes its committees and entrusts them these functions.
Parliamentary committees in India are the Estimates Committee,
the Public Accounts Committee
and Committee on Public
Undertakings.
A brief account of these committees is given below:
14.2.1 : Estimates Committee
The establishment of the Estimate Committee was urged in 1937.
The Estimates Committee was, however, created in April 1950. The
Estimates Committee is a standing committee of the Parliament
and is set up every year. Its functions, method of appointment and
other relevant provisions are laid down in the Rules 310 to 312 of

127

Procedure and conduct of Business in the Lok Sabha.

Composition :
The Estimates Committee consists of 30 members of the Lok
Sabha, who are selected by the method of proportional
representation by means of a single transferable vote. The political
parties secure representation
proportional to their numerical
strength in the Lok Sabha. The Chairman of the committee is
nominated by the Speaker. If the Deputy Speaker is member of the
Committee, he automatically becomes the chairman of the
Committee. No Minister can be appointed in this Committee.
Functions : The Estimates Committee has been entrusted with
the following functions :
a) To report, what economies, improvements in organisation,
efficiency and administrative reforms, consistent with the policy
underlying the estimates, may be affected.
b) To suggest alternative policies in order to bring about efficiency
and economy in administration.
c) To examine whether the money is well laid down within the
limits of the policy implied in the estimates ;
d) To suggest the form in which the estimates shall be presented
to Parliament.
In short it examine the estimates included in the budget and
suggest economies in public expenditure.
3. Procedure :
The tenure of members is one year but the continuity of the
Committee is constituted sometime in the month of June and it
starts working from July. It prepares its plan work for the year by
selecting such of the estimates as may seem fit to it. The office of
the Committee collects the relevant material. The papers are put
before the Committee for preliminary scrutiny and further
information, if needed, is collected. It may constitute sub
committees. The sub-committees issue questionnaires to the
ministries concerned for furnishing full and complete answers to the
points raised. These are examined by the Committee or its subcommittee. Thereafter, the examination of the departmental offices
takes place. The Committee has power to send for papers,
persons, and records whenever necessary. Study-groups are
appointed to undertake on the spot study of the projects under
examination. Having completed the examination of the witnesses
the Committee formulates its recommendations. Nothing finds place
in the report unless it has been discussed with the Minister
concerned. Further, a copy of the report is sent to the ministry in
advance for verification of facts contained therein. The report which
is in the form of recommendations, is then submitted to the Lok
Sabha. There is no regular debate on the report. The members,

128

however, may refer to the report during the discussion on the

budget and the demands for grants.
1. Significance :
Estimates Committee performs useful work. A majoity of the
recommendations of the Committee are accepted by the
Government. The ultimate success of Committee rests on the longterm thinking and planning. This, in turn, demands that the
Committee makes constructive and foresignted suggestions.
The responsibilities of Committee are increasing in view of a
continuous increase in Government activities.
The Estimates Committee performs an undoubtedly useful role in
the Indian administrative system. It keeps the machinery of public
administration under parliamentary serenity. By highlighting the
shortcomings and mistakes of public organisations, it acts as a
kind of standing committee on Administrative improvement. This
role is quite significant, for most of the recommendations made by it
are generally accepted by the Government. Secondly, the fear of
possible exposure by this Committees work is, no doubt, in the
nature of a post-mortem but in the process its arms do reach the
evil-doers and their names and deeds are publicised. This has a
deterrent effect. Thirdly, the Estimates Committee publishes its
reports, and the wide publicity given to its findings and
recommendations influences and shapes public opinion. A
democatic government is always responsive to adverse reaction of
the public opinion.
14.2.2 : Public Accounts Committee
Parliaments authority over voting money for specific purposes is
meaningless unless it has power to ascertain that the money voted
by Parliament is utilised by the executive for the purposes for which
it was voted. This is secured by subjecting the public accounts to
audit by an independent authority, the Comptroller and Auditor
General, and examination of his report by the Public Accounts
Committee.
Composition :
After the enactment of the Constitution in 1950 the Public Accounts
Committee consisted of fifteen members of the Lok Sabha. In 1953,
the number was increased to twenty two by giving representation to
the Rajya Sabha. The inclusion of the members of the Upper House
in the Committee marks a departure from the British practice,
wherein the Public Accounts Committee contains no member from
the House of Lords.
The Public Accounts Committee is annually elected by the
Parliament, by means of proprotional representation by single
transferable vote. The principal political parties are given

129

represention on the Committee in proportion to their strength in

Parliament. The Chairman of the Committee generally belongs to
the ruling party, although at times members from the opposition
parties in the Lok Sabha have also been elected to this office.
2. Functions :
The functions of the Public Accounts Committee are as follows :
a) The Committee is to satisfy that the money shown in the account
as having been disbursed were legally made available for and
applicable to the service or purposes to which they have been
applied or charged.
b) The Committee is to satisfy that the expenditure conforms to the
authority which governs it.
c) The Committee is to satisfy that every re-appropriation has been
made in accordance with the provision made in this behalf under
rules framed by competent authority.
d) It shall be the duty of the Public Accounts Committee to examine
in the light of the report of the Comptroller and Auditor General, the
statement of accounts showing the income and expenditure of
State corporations, trading and manufacturing schemes and profit
projects, together with the balance sheet and statements of profit
and loss accounts.
e) It shall be the duty of the Committee to examine the statement
of account showing the income and expenditure of autonomous
bodies, the audit of which may be conducted by the Comptroller
and Auditor General of India either under the direction of the
President or by a statute of the Parliament.
f) To consider the report of the Comptroller and Auditor General in
cases where the President may have required him to conduct an
audit of any receipt or to examine account of stores, land stocks.
The main function of the committee is to examine the annual report
of the controller and Auditor General of India.
3. Procedure : The Committee performs, these functions on the
basis of the Report of the Comptroller and Auditor General. Report
is taken up ministry-wise, and the secretaries are required to
appear as witness to explain the points raised pertaining to their
department by the audit. It has at its disposal the service of the
Comptroller and Auditor General who suggests the lines on which
the Committee should conduct the examination. He suggests the
question which need clarification from the official witnesses. The
relationship between the Comptroller and Auditor General and the
Committee is close and intimate. He is guide, philosopher and

130

friend of the committee.

The findings of the Committee are submitted to Parliament in the
form of a report. The Committee makes recommendations to the
Government in anticipation to the final report, which is placed
before the House, A convention has evolved that the
recommendations of the Committee are accepted by the
government. If, however, the Government feels that a particular
recommendation is not acceptable to it on certain grounds, it
requests a reconsideration of the recommendation.
Significance :
The significance attached to the working of the Committee varies
from critics to critics. They point out that the Public Accounts
Committee relates to transactions completed and to damage done.
It conducts a post mortem examination of the public accounts. The
Committees findings are nevertheless, of value as reguidance and
warning.
It would be appropriate to remember that the Public Accounts
Committee is not an executive body. It is not vested with any
executive power and its function is limited to serenity of the public
expenditure. It is to be hoped that the Committee will emerge as an
effective force in the control of public expenditure. But the value of
the Public Accounts Committees deliberations is: limited.
14.2.3 : Committee on Public Undertakings
The concept of accountability of public undertakings to government
leads to parliamentary control over their functioning. The
Committee on Public Undertaking was constituted on 1st May,
1964 by the Union Parliament entrusted with responsibility to
examine the working of public undertakings in our country.
Composition : The Parliament adopted a motion in 1963 to set up
Committee on Public Undertakings from 1st May, 1964 to examine
the financial and other aspects of working of the public enterprises.
The Committee consists of 15 members - 10 from Lok Sabha and 5
from the Rajya Sabha. The tenure of the members of the
Committee was five years and one-fifth of the members who have
the longest term in the Committee would retire every year.
Function :
The Parliamentary motion of 1963 had entrusted the Committee
following functions :
a) to
examine
the
reports and accounts of the Public
Undertakings;
b) to examine the reports, if any, of the Comptroller and Auditor
General on the Public Undertakings;

c)

131
to examine, in the context of the autonomy and efficiency of the
Public Undertakings, whether the affairs of these undertakings
are being managed in accordance with sound business
principles and prudent commercial practices;

d) Such other functions vested in the Public Accounts Committee

and the Estimates Committee in relatio to the public
undertakings as may be allotted to Committee by the Speaker
from time to time.
The limitations on the functions of the Committee were prescribed.
It is not competent to deal with the following matters.
a) Matters, of major government policy as distinct from business
or commercial functions of the government;
b) Matters of a day-to-day administration;
c) Matters, for the consideration of which machinery established
by any special statute under which particular public undertaking
is established.
d) The Committee cannot discuss the pricing policy of undertaking
or its labour-management relations.
Jurisdiction : The motion of 1962 provided that the following public
undertakings shall come under the jurisdiction of the committee :
1. Damodar Valley Corporation;
2. Industrial Finance Corporation;
3. Indian Airlines Corporation;
4. Air-India International;
5. Central Warehousing Corporation;
6. Life Insurance Corporation:
7. Oil and Natural Gas Commission
8. Hindustan Aeronautics Ltd.
9. Bharat Heavy Electricals Ltd.
10. Mazgaon Dock, Bombay;
11. Garden Research Workshop, Calcutta;
12. All government Companies.
All the new undertakings setup under Companys Act in future will
automatically come within the purview of this committee.
Functioning of the Committee :
The following important Conventions in the functioning of the Public
Accounts Committee have been developed in course of the
functioning of the committee for over three decades. Some of these
conventions are as under :
a) Irrespective of party affiliations of its members, the Committee
functions as a single team;
b) The reports of the Committee have been always

132

unanimous;
c) The reports of the Committee are not discussed in the House.
The departments concerned of the government are required to
intimate the Committee regarding the action taken on the
Committees recommendations;
d) Government department make available to the Committee all
the information and documents pertaining to the subject matter
under discussion and
e) For the cases requiring a detailed examination, the Committee
usually appoints a Sub-Cornmittee with specific terms of reference.
14.2.4 : Evaluation :
During 30 years since its inception, the Committee produced
a
very large number of reports
and recommendations and
justified its existence. In first two years, the period of the Third Lok
Sabha, the Committee submitted 40 reports. It submitted 70 reports
covering the period of the Fourth Lok Sabha. The Committee tries
to cover maximum number of undertakings in a record period of
time. Avasthi and Maheshvari have observed that The Committee
is doing a useful job and has forever put to rest the varied fears
expressed by the critics. It is a fact finding Committee, its function,
essentially, is to help Parliament to have a more effective annual
debate on the working of the Public Undertakings. The Committee
has great value in improving the performance and the profitability of
the public enterprises. S. P. Mathur has observed that In its tone,
temper and manner of working the Committee functions like the
Estimates and the Public Accounts Committee. The Reports of the
Committee cover almost every aspect of the working of
undertakings right from the history of the undertakings to their aims,
objects, administration of stock, lack of inventory control and many
other matters of general interest. Mathur has further observed that
the reports of the Committee have an educative value in as much
as these reports educate the public, and in particular, inform public
which takes an interest in the working of the government. The
reports also educate the members of the Parliament who do not
have first hand knowledge of how undertakings are run. The reports
of the Committee have improved the quality of debates in the
Parliament, and the main facts and problems of the enterprises are
presented before the public in a neat readable manner... party
political controversies are non - existent and the reports are
unanimous . However, it is unfortunate that in a number of cases,
the government does not attach any importance to recommendation
of the Committee and have not been accepted by the government,
and if accepted, have not been fully implemented.
14.2.5 : AUDIT AS A MEANS OF FINANCIAL CONTROL.
Audit is a recent development in the science of public

133

Administration. It is an indispensable part of the parliamentary

control over public finance. Audit is defined as an examination and
verification of the accounts after transactions are completed, in
order to discover and report to
the legislative body any
unauthorised, legal, or irregular expenditure, any financial practices
that are unsound, and to find out whether the administration
has faithfully discharged its responsibility. The audit is an aspect of
external control over administration and seeks to enforce the
accountability of administration. It is the provision of an
independent examination of all financial transactions. The
Comptroller General of the United States, has observed that One
of the important objectives of the audit... is to fix; the accountability
of the officers of the Government... for any illegal, improper, or
incorrect payments made resulting from any, inaccurate or
misleading certificate made by them as well as for any payment
prohibited by law which did not represent a legal obligations under
the appropriation of the fund involved.
Britain was the first country to evolve an audit of public accounts in
order to ascertain whether the behests of the Parliament were
complied with or not. The Auditor was dependent of the executive
and reported direct to the parliament. These provisions were
embodied in the Exchequer and Audit Department Act of 1866. The
powers of the Comptroller and Auditor General were considerably
widened by the Exchequer and Audit Act, 1921. In the United
States, independent audit emerged with the inauguration of the
Budget and Accounts Act of 1921. In India, with the
commencement of the Constitution in 1950, the office of the
Comptroller and Auditor General of India was provided in the
Constitution itself. The designation implies control over issues from
the public treasury, hitherto non-existent in the financial
administration of India. Financial administration, whether of the
States or of Union comes under the undivided authority of the
Comptroller and Auditor General of India.
Accounting and Auditing
In India the twin functions of maintenance of accounts and their
audit were combined in the same hands until 1976. The Comptroller
and Auditor-General was entrusted with both sets of functions.
In 1973, the Government of India decided to separate accounting
from the audit. In 1976, the Comptroller and Auditor-General of
India was relieved of the responsibility of compiling of accounts of
the Union Government and is only concerned with the audit of
accounts.
This separation of accounts from audit was completed in three
phases, effective from 1st April, 1976 (covering some Ministries
of the Central Government), 1st July, 1976 (covering nine more
Ministries) and 1st October,
1976 (covering the remaining

134

Ministries).
As
a
result,
there
is
now departmentalisation of accounts in the Central Government and the
administrative departments have assumed full responsibility for
making payments and their accounting. Certain public sector banks
have now been entrusted with the work of handling receipts and
payments for the different ministries and departments. This
work was being done, until 1976, through the Government
Treasuries. Under the new system, the payment functions have
been taken over by the Ministries themselves and are discharged
by their own Pay and Accounts Officers. Hitherto, only the Reserve
Bank of India and the Branches of the State Bank of India and its
subsidiaries were authorised to handle cash transactions of the
Government. Apart from putting a heavy burden on the Reserve
bank of India and the State Bank of India, the old system caused
great deal of inconvenience to all those who had transactions with
the Government.
Several advantages have been claimed for the scheme of
separating accounts from the audit. These are as follows :
a) The departmentalization of accounts will enable the Ministries
to watch the flow of expenditure regularly and take effective
corrective action wherever necessary.
b) It will facilitate the settlement of all claims directly by the
departments by issuing cheques to the parties concerned.
c)

The large variations from the budget allocation, which were

very common till 1976, will disappear under the new system of
separation.

d) It will also help in proper maintenance of Provident Fund

accounts
and prompt
settlement
of claims
of the
employees.
e) It will speed up the compilation of accounts of individual
departments, The
Accounts
of the
Ministries
and
departments are to be compiled, under the new system, within
25 days after the close of the month. Such an accounting
pattern is different from the system in vogue until 1976. Prior to
1976, the details of the expenditure incurred by various
departments were forwarded by the Treasuries to Accountant
General. These were consolidated by the
Accountant
General, Central Revenues. This used to result in delays in
the compilation of accounts.
Consequent upon the separation of accounts from the audit the
Comptroller General has been appointed in the Central
Government to be the technical authority heading the new
accounting set-up. He is in charge of the final compilation of
accounts.

135

14.2.6 : The Comptroller and Auditor-General of India

The Comptroller and Auditor General of India is appointed by the
President by warrant under his hand and seal. He can be removed
from office in like manner and on the like grounds as a judge of the
Supreme Court. To enable him to perform his functions with
independence and fearlessness, he is not given any redeployment
under the State after his retirement. The salary, allowances and
pension of the Comptroller and Auditor-General are not subject to
the vote of Parliament. These are charged on the Consolidated
Fund of India. These cannot be varied to his disadvantage after his
appointment. The Constitution does not precisely define the terms
and conditions of his service as well as his duties and powers. The
Constitution leaves it for the parliament to define the same. Article
148 (3) provides that The salary and other condition of service of
the Comptroller and Auiditor General shall be such as may be
determined by Parliament by law and until they are so determined,
shall be as specified in the Schedule. It further provides that He
shall perform such duties and exercise such powers in relation to
the accounts of the Union and of the States as were conferred on or
exercisable by the Auditor-General of India immediately before the
commencement of this Constitution in relation to the accounts of
the Dominion of India and of the provinces respectively.
In 1953, the- Parliament passed an Act to define the tenure and
conditions of service of the Comptroller and Auditor-General, He
has been given a six year tenure without any age restrictions, He is
paid the salary of the judges of the Supreme Court. His duties and
powers are governed by the Government of India Audit and
Accounts Order, 1926, as adopted by the India (Provisional
Constitution) Order, 1946. The undefined nature of his powers and
functions makes room for ambiguity and even confusion. This
ambiguity led to a controversy between the Auditor-General and the
Defence Minister. It is criticised that the Auditor-General often
exceeds his jurisdiction. The Constitution did not define his powers
and functions, nor has the Parliament rectified this omission by
statute prescribing the framework within which he is to function. It is
desirable that the Parliament should specify the role and functions
of the Comptroller and Auditor-General.
Functions of the Comptroller and Auditor General - Until 1976,
the duties and powers of the Comptroller and Auditor General
embraced both the auditing and accounting of all financial
transactions of the Governments. Since 1976, he has been relieved
of his responsibilities in regard to the compilation and maintenance
of accounts. He audits all expenditures from the revenues of the
Central Government or State Governments in and outside India
and, ascertains whether legally available for and applicable to the
service or the purpose to which they have been applicable and
whether the expenditure conforms to the authority which governs it.
A broader and newer concept regarding the role of the Comptroller

136

and Auditor-General has led to the greater attention to efficiency

and to the development of discretionary audit directed towards
discovering wastes and of matters beyond accounting, which
though intra-vires, are apparently unwise or extravagant.
Audit has a statutory as well as discretionary basis. In addition, it
upholds the Constitution and the laws in the sphere of financial
administration. The Comptroller and Auditor-General examines
sanctions given by competent authorities in order to find out that
whether they are proper and utilised for the realisation of the
purpose for which the sanctions have been given. His
responsibilities in regard to the audit of receipts are limited, and
need to be developed. The receipts from income-tax, wealth-tax,
expenditure-tax, estate duty, excise and land revenue are excluded
from the scope of his audit. The income-tax receipts are now being
progressively brought under his purview.
The Comptroller and Auditor-General is, thus, engaged in the
scrutiny of the financial affairs of the executive and submits his
report to the Parliament to which alone he is responsible. In the
case of the States, the report is laid before the State legislatures.
Thus he is head of the Indian Audit and Accounts departments. He
is the guardian of the public purse and controls the entire financial
system of the country at both the levels.

14.2.7 : QUESTIONS
1) How is the financial accountability ensured in India?
2) What is audit control? How is it ensured in India?
3) Write short-notes ona) Estimates Committee
b) Public Accounts Committee
c) Committee on Public Enterprises
d) Controller and Auditor-General of India.

MODULE 8
Unit 15

15
LOCAL GOVERNANCE
Unit structure
15.0 Objective
15.1 Introduction
15.2 Characteristics of Local Government
15.3 Importance of Local Government
15.4 Local Government in India
15.5 Urban Local Government
15.6 Rural Local Government
15.7 Unit end questions.
Note : Rural and Urban Administration to be covered under Local
Governance.
15.0 Objective : To study about local governance

15.1 : INTRODUCTION
Besides the Union and the State Government, the third tier of
governance in India is local government. Local government has
been described as the local self-government; i.e.; public
governance of the locality by the representative elected by the
eligible and registered voters living within the territorial boundaries
of a village, a town or a city. Local governments have existed in
India since the ancient times. However, the foundation of the local
government, existing at present, were laid in the second half of the
19th century by the British Government.

15.2 : CHARACTERISTICS OF LOCAL GOVERNMENT

The significant characteristics of Local government are as follows :
1) Engaged in solving the problems of the local people, in a village,
town or city.
2) Created by the laws of State Legislatures.
3) Required to function as per the provisions of the law.
4) Enjoys autonomy and has independence in decision making as
the State governments do not interfere in the local governments
day-to-day administration.
5) Affairs are managed by the representatives elected by the
people in the area.

138

15.3 : IMPORTANCE OF LOCAL GOVERNMENT

Local governments play an important role in democracy. Their
effective functioning delivers good governance at the local level.
1. Proximity :
They are close to the people. People can have easy access to local
governments. They are the most convenient body to meet peoples
local needs and to solve their immediate problems.
2. Training School of democracy :
Imparts training in democratic citizenship - Makes people aware of
the importance of having power and their responsibilities in the
exercise of power helps the people learn. How to control the
representatives and makes them accountable. It develops
confidence in people and trains them to take up responsibilities at
the regional and national levels. It creates political awareness and
inculcates democratic attitude in the people.
3. Decentralization of Power :
Assigning certain functions and responsibilities, along with
necessary powers and resources, is known as democratic
decentralization. Local governments facilitate such decentralization
of power. Decentralization of power gives opportunity to the
common people to develop political consciousness and promotes
democratic values of freedom, equality and the spirit of tolerance.
4. Generates civic sense :
Living in an area for generations develops in the people a sense of
affinity towards it. Further, It helps them identify the local problems.
These factors make the citizens proactive in finding solutions to the
local problems. This in turn, instills in them a strong civic sense and
such citizens foster a sound democratic culture in society.

15.4 : LOCAL GOVERNMENT IN INDIA

Since local government is a subject in the State list, Its nature of
functioning differs from State to State.
73rd and 74th Constitutional Amendments - brought about the
following fundamental changes in the local Governments.
a) Gave constitutional status to local governments.
b) Brought about uniformity in their structure.
c) Provided for the setting up of the State Election Commission for
conducting elections to the local bodies and State Finance
Commission to protect their financial autonomy.
d) Made provisions for reservation of seats for the SC, the ST, the
OBCs and women to enable their participation in the local
governments.

139

Local governments in India are broadly classified into two

Categories viz., urban and rural local government.

15.5 : URBAN LOCAL GOVERNMENT

According to the 2001 Census of India, the urban population is
285.4 million people, that is 27.78% of the total Indian populations.
The urban, areas in India are scattered across the length and
breadth of lndia. However the density (i.e. the number of people
living per sq.km.) of population within these urban areas is high.
The term urban area includes towns, cities and metropolitan cities.
In order to provide for a common framework for urban local bodies
and help to strengthen the functioning of the bodies as effective
democratic units of self-government, Parliament enacted the
Constitution (74th Amendment) Act, 1992, relating to Municipalities
in 1992. The Act received the assent of the President on 20 April
1993. The Government of India notified the 1st June 1993 as the
date from which the said Act came into force. A new part IX-A
relating to the Municipalities has been incorported in the
Constitution to provide for establishment of Municipal Councils,
Municipal Corporations and Nagar Panchayats for areas in
transition from a rural area to urban area, Municipal Council for
smaller urban areas and Municipal Corporation for larger urban
areas. It has fixed duration of Municipalities, appointment of State
Election Commission, appointment of State Finance Commission
and Constitution of Metropolitan and District Planning Committees.
All States have set up their Finance Commissions. For conducting
elections to urban local bodies, all States / UTs have set up /
election commissions. Elections to municipal bodies have been
completed in all States / UTs except Bihar and Puducherry where
this matter is sub-judice.
Urban Local Government in Maharashtra
Maharashtra is among the highly urbanised States in India.
The details of the urban local government in Maharashtra are as
follows : 1) Municipal Corporations : 22
2) Nagar Parishads : 222
3) Nagar Panchayats : 03
4) Cantonment Boards : 07
5) Industrial Township Authority : nil
Municipal Corporation :
A Munipal Corporation is establised by an Act enacted by the State
Legislature for a city having minimum population of 300,000. There
are 22 Municipal Corporations at present (2007) in Maharashtra.
The Composition of a Municipal Corporation is as follows :
1) The Council : The Council consists of representatives

140

(Councillors) elected from different wards (constituencies). Its

strength varies from a minimum of 65 to a maximum of 221
according to the class of the Corporation. A certain number of seats
are reserved for SC, ST, the OBCs and women. It is the general
body of the Corporation. It meets once in three months. Its term is
for five years.
2) Mayor and Deputy Mayor : The elected members of the Council
elect from among themselves the presiding officers, viz., Mayor and
the Deputy Mayor for a term of 2 years. The office of the Mayor is
of great dignity and honour as being the first citizen of the city.
3) Municipal Commissioner : The Municipal Commissioner is an
IAS officer appointed by the State Government, is the Chief
Executive Officer of the Municipal Corporation. He is assisted by
the Deputy Commissioners and the other officials.
4) Committees : Committees are constituted by an Act of the
Corporation. They include Standing Committee, Education
Committee, Transport Committee, etc. In certain cases, Town
Planning Committee and Ward Committees are also constituted
The Committees assist the Council in its working.
2. Municipal Councils : The cities having population of less than
3,00,000 are governed by the Municipal Councils. There are 222
Municipal Councils in Maharashtra of which 7 have been
established in the hill-station towns. The Municipal Councils have
been classified as under :
Class A

Class B

Class C

Population
Over 1,00,000

Population
between 40,000
and 1,00,000

Population
Less than 40,000

The Hill Station Towns are also administered by Municipal Councils

without considering the criterion of populations.
The composition of the Municipal Council is as follows :
1) The Council : The Council the General Body-consists of the
elected members and the nominated/co-opted members
Specific number of seats are reserved for different sections of
society. Its term is for five years. Minimum 17 & max 65
members.
2) The President and the Vice-President : The elected members
of the Council elect from among themselves the President and
the Vice-President for a term of 2 years.
3) Committees : The Municipal Council functions through various

141
committees. The President; the chairperson of the Standing
Committee. Besides this, there are six subject committees to
deal with Public, works, education, sanitation water supply,
planning and development and women-child welfare.

4) Chief Officer : The Chief Officer appointed by the State

Government, is the administrative head of the Municipal
Council. He is assisted by the Municipal engineer, health
officer, education officer, education officials and other officials.
3. Nagar Panchayat :
Nagar Painchayat is a new form of urban local government. The
74th Constitutional Amendment provided for the creation of Nagar
Pancnayat. A rural area in the process of transition to an urban is
governed by a Nagar Panchayat. It is rural and semi-urban area.
The following criteria are observed to form a Nagar Panchayat :
a) The population, of area must be between 10,000 and 25,000.
b) Its distance from a city with a Municipal Corporation or
Municipal Council of A grade should be less than 20
kilometres and 25% population of that area must be engaged
in employment other than agriculture.
c) An area having distance of more than 20 kilometres from a city
is also eligible to have Nagar Panchayat but 50% of its
population must be engaged in employment other than
agriculture.
Cantonment Boards : Cantonment Board is a special type of local
government. For areas where the army is stationed along with a
substantial civil population. They are governed by the Boards in
India of which 7 are in Maharashtra. The Cantonments Boards are
under the direct control of the Ministry of Defence. The Station
Commander is the ex-officio President of the Cantonments Boards.
The majority of members are the military officials. Besides these,
seven civilian members are elected by the civil population within the
area of the Board. The civilian members elect from among
themselves the vice president of the Board. The Chief Executive
officer is the administrative head who is appointed by the Ministry of
Defence. Though Cantonment Boards appear to be inconsistent
with the democratic principle of representative government, their
existence is justified because of their usefulness in matters of
national defence.
5. Industrial Township Authority (ITA) :
ITA is constitued to administer the industrial township under the
provisions of the Municipalities Act of Mdharashtra. It is a unique
urban local government which is administered by Industrial
Township Authority. At present (2007) it is non-existent in

142

Maharashtra.

15.6 : RURAL LOCAL GOVERNMENT

Panchayati Raj is the name of the present system of rural local selfgovernment institutions established in all States and Union
Territories since 1959. In objective as well as in scope and content,
Panchayati Raj is different from any local government attempted in
the past. It is regarded as an administrative revolution with
enormous potentials. Panchayati Raj comprises a three-tier system,
with the Village Panchayat at the base, the Block of Taluka
Panchayati Samiti at the intermediate level, and the Zilla Parishad
at the apex level. These rural local bodies are inter-connected
through their membership and serve as units of self government,
planning and development at the grass roots level.
The Panchayati Raj emerged consequent to the failure of the
Community Development programme to evoke popular interest and
participation in the implementation of the development
programmes. The non-statutory bodies were replaced by statutory
Panchayati Raj institutiors on the recommendation of the study
team headed by Late Balwantri Mehta.
Structure of Panchayati Raj :
The Panchayati Raj structure recommended by Study Team was
as under :
i) There should be a three-tier structure of local self governing
bodies from the village level to the district level the bodies
being linked up organically.
ii) There should be genuine
responsibility to them.

transfer

of power

and

iii) To enable these bodies to discharge their responsibilities

adequate resources should be transferred to them,
iv) It is through these bodies alone that all welfare and
development schemes and programmes should be
channeled.
v)

No higher body should have an opportunity to do what a

lower body can do itself, since these bodies were charged
with various duties and functions.

vi) The proposed three-tier system was such that it facilitated

further devolution and dispersal of power and responsibilities
in the future.
The State of Rajasthan was the first to establish Panchayat Raj on
2nd October, 1959; followed by Andhra Pradesh on 1st November,

143

1959. Since then all State Legislatures have enacted Suitable

Legislations and set up Panchayati Raj institutions.
Panchayati Raj in Maharashtra : The Government of Maharashtra
appointed a high-level committee in June 1960, headed by Shri
Vasantra Naik, the Revenue Minister to commend on the
implementation of the recommendations of the Team. The
recommendations of the Naik Committee are as follow :
1) If decentralisation is to be real and effective, it would be
imperative to establish a strong executive body at the district
level. It alone was capable of providing the requisite
resources, necessary administrative and technical personnel
and equipment required for a properly co-ordinated
development of the district. The Councillors of the District
Body-Zilla Parishad should be directly elected. Chairman of
the Panchayati Samitis would be the ex-officio Councillors of
the Zilia Parishad.
2) The Members of Parliament and the State Legislature ;
should not be associated with the Zilla Parishad or the
Panchayat Samiti Ex-officio/Associate Councillors/ Members.
Their total exclusion from the Panchayati Raj Institutions and
their disassociation from the day to day functioning of these
bodies would help in promotion and growth of leaders from
rural areas,
3) Provision for Standing Committee and requisite number of
Subjects Committee to take decisions from time to time.
Members of the Committees to be elected on the basis of
proportional representation with single transferable vote.
4) There should be a whole-time President and a Vice
President. They should be paid reasonable honorarium and
also provided other facilities such as residential
accommodation, transport, secretarial assistance etc.
5) All subject of activities at the district to be given to the Zilla
Parishad.
6) Almost full financial assistance to the Zilla Parishad
(including the income of the erstwhile rural local selfgovernment institutions) be given through the Grants
mentioned in the Act as Land Revenue Grant, Equalisation
Grant, Purposive Grant and Deficit Adjustment Grant and
Plan Grant in full for the schemes entrusted to the Zilla
Parishad.
7) Powers to the Zilla Parishad to raise their own resources
through taxes, rates and fees, power : to increase the rate on
land revenue.

144
8) Chief Executive Officer of the Zilla Parishad, to be appointed
from. I.A.S. Cadre.
9) The Panchayat Samiti at the,Taluka level should be a
statutory one having executive and supervisory functions
and it should serve as a link between the Village Panchayats
and the Zilla Parishad. It should act as a regional Committee
of the Zilla Parishad. No direct elections to Panchayat
Samiti. All Councillors of the Zilla Parishad to be Ex-officio
members of the Panchayat Samiti in their respective
Talukas. In addition, double the number of Councillors to be
elected from amongst the Sarpanchas as Members.
10) Zilla Parishad to exercise control over Panchayat Samiti,
which in turn, will exercise control over Village Panchayats. )
11) Village Panchayats to be organically linked with Panchayat
Samiti and Zilla Parishad.
12) No change in the existing provisions relating to Village
Panchayats to be made.

The Government of Maharashtra accepted the recommendations of

the Naik Committee. The Maharashtra Zilla Parishad and
Panchayat Samiti Bill was presented in the Legislative Assembly on
l9th August, 1961. The State Legislature enacted the Maharashtra
Zilla Parishads and Panchayat Samities Act, 1961. The Panchayati
Raj was inaugurated in Maharashtra on 1st May, 1962.
Report of the P.B. Patil Committee :
Naik Committee had recommended periodical review of the working
of the Panchayat Raj bodies to remove the lacunae in the Act, rules
and procedure. The State Government appointed the Second
Evaluation Committee in June 1984 under the chairmanship of
Principal P.B. Patil. The terms of reference of the Patil Committee
were extensive and included all the areas pertaining to the PRIs,
district Planning and rural development at large. The principal issue
before the Patil Committee was rejuvenation of the PRIs in
Maharashtra. On this issue the Patil Committee had forthrightly
observed that For the rejujvenation of the PRIs only cosmic or
marginal changes will not be enough. The Committee propounded
the concept of District Government to realise the objective of
democratic decentralization.
Patil Committee pointed out that The existing two sets of
government, viz., the Union and the State, are not in a position to
cope up with the enormous activities. It is, therefore, prudent to
establish the third level of the government and transfer the
governmental and development activities to the district government
in a phased manner. In the first five years the development

145

activities and in the later five years revenue related Activities be

transferred to the district government. This was a most innovative
suggestion
that found
place in
the
73rd Constitutional
Amendment.
The Patil Committee was extremely critical of the existing
machinery at the district level. The committee observed that We
strongly believe that rural development should be responsive to the
needs of the rural people. We advocate that there should be a
single all-embracing planning authority at the district level. This
planning authority should be an arm of the Zilla Parishad. The
Committee felt the need to establish a planning Cell in the Zilla
Parishad to carry- out the major tasks in district planning.
The Patil Committee was extremely critical of the division of
development activities into regular and special and the so-called
special activities being assigned to the District Rural Development
Agency (DRDA) and such other agencies. It recommended
merger of the DRDA with the Zilla Parishad and integration of the
regular and special activities as it was prior to 1972. The District
Government (Zilla Parishad) would emerge as the sole
development agency. This recommendation was of great
significance in view of the fact that the development agencies, other
than Zilla Parishad, controlled more than 70% development funds
and had marginalised the PRIs in 1970 and 1980s.
73rd Constitutional Amendment :
The significant aspects of the 73rd Constitution Amendment Act are
as follows :
1.

Gram Sabha : The 73rd Amendment Act has restored pivotal

role of the Gram Sabhas. It has been recognised that it is the
primary source of democratic power in a village. The Act
provides for a Gram Sabha which may exercise such powers
at the village level as the Laws enacted by the State
Legislature may provide.

2.

Constitution of Panchayats : The 73rd Amendment Act

makes it obligatory for all States to establish a three-tier
system of Panchayats at the village, intermediate and district
level. However, States having a population of less than twenty
lakh would not be required to establish Panchayats at the
intermediate level.

3.

Composition of Panchayats : According to the Act, all the

seats in a Panchayat shall be filled, by persons chosen by
direct election from territorial constituencies in the area of the
Panchayat.

4.

Reservation of Seats : There is provision for reservation of

seats for Scheduled Castes Tribes and the one-third of seats

146

for women including the Scheduled Castes/Tribes women.

Even the office of the chairperson is reserved for Scheduled;
Castes/Tribes and women.
5.

Duration of Panchayats : The 73rd Amendment Act provides;

for a duration (term) of five years for the Panchayats. The
election to constitute a Panchayat, when dissolved, shall be
held within a period of six months. The reconstituted
Panchayat shall function for the remaining period that the
dissolved Panchayat would have otherwise completed.

6.

Finance Commission : Provision of State Finance

Commission has found place in the 73rd Amendment Act. The
Act states that there shall be a Finance Commission in every
State to make recommendations to the government which
shall be put, by-the government, before the State Legislature,
together with an explanatory note and Action Taken Report
(ATR).

7.

Audit of Accounts : The Act provides for the statutory audit of

panchayat accounts. The Act states that the panchayats shall
keep the accounts in such manner as the government may, on
the advice of the Comptroller and Auditor-General of India,
prescribe. The audit reports be submitted to the Governor of
the State who shall cause them to be laid before the State
Legislature.

8.

Conduct of Elections : According to the provisions of the

73rd Amendment Act, the superintendence, duration and
control of the preparation of electoral rolls for, and conduct of
all elections to the, Panchayats shall be vested in the duly
constituted State Election Commission.

The Panchayat Raj in Maharashtra :

The three-tier Panchayat Raj institutions have been established in
the rural areas of Maharashtra. Their details, at present (2007) are
as follows :
1) Zilla Parishads : 33
2) Panchayat Samities : 349
3) Grampanchayats : 28,021
A brief description of its components is as follows :
1. Zilla Parishad :
The Zilla Parishad consists of elected and ex-officio members. The
elected
members are the representatives of the people. The
chairpersons (Sabhapatis) of Panchayat Samitis within the
jurisdication of the Zilla Parishad are its ex-officio members. One
third of the elected seats are reserved for women. The Scheduled

147

Castes and Scheduled Tribes are given representation through

reservation decided according to their proportion in population.
Twenty seven percent of the total seats are reserved for the Other
Backward Classes.
The Zilla Parishad has a term of five years. The members of the
Zilla Parishad also enjoy a term of five years. However, its
dissolution before the completion of the term by the State
government is possible on the ground of its inefficient functioning. It
is mandatory to hold fresh elections within six months to constitute
a new Zilla Parishad.
The elected and ex-officio members form the general body of the
Zilla Parishad, which, meets at least once in three months. It
discusses all matters of public importance pertaining to the district
and formulates policies. The President and Vice-President of Zilla
Parishad are elected by the members of the Zilla Parishad for a
period of two and a half years. The office of the President is
reserved for women, Scheduled Castes, Scheduled Tribes and
Other Backward Classes by rotation.
a) The Committees : The Zilla Parishad functions through various
committees. The standing committee and other subject cpmmittees.
The Standing Committee has an extremely important place in the
committee system of the Zilla Parishad. There are nine Subject
Committees each, dealing with a specific function like finance,
public works, agriculture, social welfare, education, health, animal
husbandry, women and child welfare, water supply and
conservation.
The Chief Executive Officer (CEO) is the head of administration. He
is an IAS officer appointed by the State government. With the help
of administrative machinery, the
CEO
implements
rural
development schemes. He is responsible for implementing
the resolutions and decisions of Zilla Parishad.
2. Panchayat Samiti :
The Panchayat Sarniti is at the intermediate level and functions at
the Taluka level in Maharashtra. Its members are elected directly by
the eligible voters from that area. The area of taluka is divided into
constituencies and people elect one representative from each
constituency. The members of the Zilla Parishad elected from the
area of the Panchayat Samiti and its ex-officio members. There is a
provision for the co-option of the members which enables the
Panchayat Samiti to provide representation to the experienced
people. As per the provisions of law, 1/3rd seats are reserved for
women, 27% seats are reserved for Other Backward Classes and
Scheduled Castes and Scheduled Tribes are given representation
in proportion to the population. The Pahchayat Samiti has a term of
five years.

148

a) The Chairperson and the Deputy Chairperson : The

Chairperson
(Sabhapati) and
the
Deputy Chairperson;
(Upsabhapati) are the officials of the Panchayat Samiti. They are
elected by the elected- members of the Panchayati Samiti for a
term of two and a half years. The office of the chairperson is
reserved for women, Scheduled Castes and the Scheduled Tribes
and the Other Backward Classes They occupy this office by rotation
as provided in the law. The chairpersons of the Panchayat Samiti
are the ex-officio member of the Zilla Parishad.
b) Block Development Officer : The Block Development Officer
(BDO) is the administrative head of the Panchayat Samiti. He is
assisted by the extension officers in agriculture, health, animal
husbandry, education, co-operation and industries.
3. Gram Panchayat : The Gram Panchayat is the basic unit of the
Panchayat system in Maharashtra. The Mumbai Village Panchayat
Act of 1958 provides for organizing Gram Panchayats. This Act
has been suitably amended from time to time. The Gram Panchayat
consists of a minimum of seven and a maximum of seventeen
members called Panchas, the eligible voters in the village elect
them directly. A village is organized into wards and each ward
sends one representative to the Grampanchayat. One third of the
total seats are reserved for women and 27% seats are reserved for
the Other Backward Classes. The Scheduled Castes and
Scheduled Tribes also have representation through reservation on
the basis of their proportion in population.
A minimum population of 500 is required to form a
Grampanchayat. Villages that have a population of less than 500
are grouped together to form a Group Grampanchayat. On the
basis of their population, the Grampanchayats are
classified into three, categories. A, B and C.
a) Sarpanch and Deputy Sarpanch :
The members of the Grampanchayat elect from amongst
themselves a Sarpanch and Deputy Sarpanch Both of them enjoy a
term of five years. The Sarpanch is the head of the
Grampanchayat. He is assisted by the Gram Sevaks in performing
his duties.
4. Gram Sabha :
The Gramsabha is an assembly of the local people and the
fundamental unit of democracy. The original Act had provided for
the constitution of the Gramsabha However, it failed to function
efficiently due to the lack of power. The 73rd Constitutional
Amendment has accorded a significant position in the present
system of Panchayati Raj Gramsabha provides a platform for the
people to come together and discuss village matters. The Sarpanch
must convene a minimum of six meeting of the Gramsabha in a

149

year.
The Gramsabha is a deliberative body. It gives villagers an
opportunity to express their views, opinions and grievances. It helps
to bring transparency and openness in rural politics. It takes
decisions regarding development schemes to be implemented in
the village.

15.7 : QUESTIONS
1) Give an account of urban Local government in India.
2) Give an account of rural local government in India.
3) Explain importance and characteristics of Local Government.

MODULE 8
Unit 16

16
PEOPLES PARTICIPATION IN
ADMINISTRATION
Unit Structure :
16.0 Introduction
16.1 Adminstration and public relations.
16.2 Peoples perception in Adminstration.
16.3 Adminstrations attitude towards people.
16.4 Reconciliation of Public and Adminstration.
16.5 Collaboration with the voluntary organizations.
16.6 Collaboration between the Government and the voluntary
ganizations.
16.7 Council for advancement of people action and Rural
envelopment.
16.8 Unit end questions.

16.0 INTRODUCTION
Administration and public are inseparable entities, both in theory as
well as practice of public administration. The very term indicates
that the administration is meant for the public. The nature of public
administration, as already discussed in the First chapter, has
underwent transformation from public administration to
development administration; from night-watchman state to the
welfare state. As a consequence, over and above its traditional law
and order functions for the well-being of the people, the public
administration is the instrument of governance and the success or
failure of a modern welfare state and its government is related with
the performance of the administration. It is an instrument to realize
the ideals enshrined in the Constitution and aspirations of the
people reflected in the laws enacted by the representative
institutions.
Thus, administration has become the cornerstone of the civilized
society in todays administrative State, a dominant factor in the life
of public at every stage, from craddle to grave. Thus,
harmonization of public and administration is a key issue present
in every modern State as the well-being or the public depends on
the administration and the success or failure of administration
depends on the trust, confidence, cooperation and initiative of the
public.

151

16.1 : ADMINISTRATION VIS-A-VIS PUBLIC

There is great increase in the functions and powers of
administration in our times. Until the advent of the twentieth
century, in the night watchman state, the role of administration visa-vis public was limited to maintenance of law and order,
administration of justice and collection of revenue.
Thus,
administration occupied very little space in the life of the public;
although it was always looked upon with awe and respected by the
public. Still administration was a remote entity. Thus, it was
possible to administer law with objectivity and emotional
detachment, also described as political neutrality.
However, the night-man concept was replaced by the social service
or welfare state which meant administration looking after health,
education; industry, agriculture and every thing under the sun that
affected the public. Thus, the public was encompassed by
administration and, in turn, public expected administration to
cater to their requirement. In the process, the administration
became, highly complex and technical and necessitated the
specialist the man with expertise to perform administrative
responsibilities. Thus, the nature of administration underwent
change in the 20th Century and it gradually became all powerful,
highly complex and technical. But since it was meant for the wellbeing of the public, the administration was expected to be
responsible and responsive to the public; to look into grievances of
people and expected to be pro-people; which in developing
countries meant pro-poor. Thus, the traditional concepts like
objectivity and neutrality were replaced by commitment and
dedication; the aloofness and impersonal attitude was replaced By
the emphasis on establishing channels of contact and
communication with the people. Rapport between the
administration and public was emphasized by insisting that the
administration should comprise of the public-spirited officials who
could motivate people and bring about, their active participation in
the development process. Thus, administration and public are
expected to be partners - collaborators in the process of
development, The very basis of the Community Development
Programme, launched in 1952, was the active participation of the
people. Five years later, the study team headed by late Balwantrai
Mehta pointed out that the failure of the CDP was due to absence
of active participation of the people and proposed democratic
decentralization. i.e. Panchayati Raj to incorporate popular
leadership and enlist the active participation of people in the
implementation of the welfare programmes and schemes. Thus,
Public and Administration are complimentary to each other.
The manifestation of the Administration reaching the Public is the
rapport between the two, established through public Relations.
Public relations is a two-way process in which the Administration

152

conveys the policies and programmes of the Government to the

Public and the grievances of the Public to Government. Thus,
administration is expected to be the great itermediary which links
the rulers and the ruled. The balancing Act is very difficult at times,
especially when the government policies are harsh and unpopular.
The skill of Administration Consists in its ability to explain, justify
and convince the public and at the same time the grievances of
the people, to the extent possible. When such measures involve
policy change, they must bring it to the notice of the government the
difficulties and hardships faced by the public and prevail upon it to
make the policies as humane as possible. In short, the
Administration is expected to be people-oriented, public spirited and
imbibed with humane approach.
The task of adminstration via-a-vis the public in developing
countries like India is still more difficult owing to the fact that vast
majority of our people are poor, illiterate, tradition-minded and lack
initiative necessary for the nation-building task. To overcome this
and generate zeal for development is a great challenge. The
Adminstation is expected to act as an agent of social change and
economic transformation; one who motivates people and brings
about their active participation in the implementation of the
developmental schemes. Their task was made more difficult by the
fact that the emphasis in the Five Year Plans, till 1977, was on the
little funds available for the rural development schemes, causing
resentment among the rural masses. However, this difficulty has
been overcome, and now, a public-spirited official has enough
funds at his disposal to undertake developmental work and thereby
arouse popular interest in the rural areas in the developmental
work.

16.2 : PEOPLES PERCEPTION IN ADMINISTRATION

For the successful working of public administration there is a need
for active citizenship and self-help. Public administration in a
democracy must be based on public consent and support. In fact, it
is a two-way process. Peoples mind must be known to the
administration and at the same time, administrators efforts must be
actively supported by, the people. The aspirations of the people
must be taken into consideration by the administration. People will
respect administration only when it responds to the aspirations of
the people.
It has already been pointed out that vast majority of people in India
are illiterate, poor, ignorant and apathetic towards development.
To urge public to participate actively in the process of development
is a challenge before the Indian administration. In order to cope up
with this problem, they must know what is public attitude towards
administration.

153

The public attitude towards the Indian administration has been the
subject of much speculation for years. The press, public
administration scholars and even the government officials have
debated the issue time and again, at great length. A.D. Gorwala
had pointed out that To state plainly, the public in India hardly have
any respect and pride .for the administration or the civil servants
who manage the administation. It is hostile and antibueaucratic.
Thus, the citizens hold the bureaucracy in low esteem. The
relationship between the citizens and public servants lacks
cordiality and mutual understanding. Numerous complaints are
always made by the public against the civil servants regarding
delays in disposel of cases, corruption, lack of proper
communication, evasion of responsibility, exploitation, favouritism,
arbitrary and high-handed functioning and indifferent attitude. The
public is suspicious about the integrity of the public officials and
regard right contacts, political pulls, speed money, etc. as the
ways and means to get the things done. The public feels that the
bureaucrats are too much rule-minded and totally devoid of any
human considerations. They are reluctant in disposal of work, thus
creating scope for middle-men who exploit the poor, needy public.
The Administrative Reforms Commissions findings on public view
of administration are as follows :
a)
b)
c)
d)
e)

Unhelpful attitude on the part of the officials;

Inordinate delay in transacting government business :
Corruption among the officials;
Non-availability of essential commodities;
Lack of proper attention from government agencies in providing
services to the common man - as for example, government
hospitals.
f) Favouritism and nepotism in dealing with the general public
g) Unsatisfactory progress of the Community Development
programme;
h) Public-dissatisfaction with the Panchayat Raj Institution and
i) Inefficient machinery for redress of public grievances at the
district level.

16.3 ADMINISTRATIONS ATTITUDE

TOWARDS PEOPLE
The Indian bureaucracy is, by and large, urban - middle class,
While performing their duties they mainly deal with the-rural masses
who are illiterate and poor. Thus, there is a wide cultural gap
between the class of administrators and the vast majority of
masses. The administrators find the masses indifferent and the
masses view the administrators as apathetic and disinterested in
the development process.

154

The bureaucracy points out that the people are unaware of their
rights, have no understanding of the problems and make no efforts
to get their grievances redressed. Further, they do not have
adequate knowledge of the rules, regulations and procedure of
administration. To some extent, people are pessimistic about the
assistance from the bureaucracy in getting the things done. The
civil servants, complain that there is too much interference in the
administration and that the citizens try to bring pressure through
local politicians. The administrators on such occasions, find it most
difficult to work honestly and freely.
Another standing complaint about the masses is that the general
masses neither take keen interest in their own affairs nor do they
show any initiative for bettering their own prospects. Further, they
hardly support or co-operate with the civil servants who honestly try
to bring about the change in the society. In fact, in a number of
cases, the civil servants are looked at with contempt, suspicion,
fear and distrust.
Occasionally, it is alleged that the citizens deliberately deviate from
the sanctioned plans. Thus, tempts the civil servants to overlook
and violate the rules and regulations, to ignore and connive at the
provisions of Law. Ultimately, this creates a scope for the civil
servants to indulge in mal-practices and corruption.

16.4 : RECONCILIATION OF PUBLIC AND

ADMINISTRATION
In the light of the divergent views held by the both the citizens and
the adrhinistrators about each other, to admit the claims of both of
them is difficult task. How to reconcile these mutually opposed
views? Can the relationship between the two be improved? C.P.
Bhambri opines that something more needs to be done to change
apathetic attitude of the citizens and make them positive and
participate in the functioning of the administration. According to him,
some linkages need to be established between the citizens and
administration in order to achieve the goals of mutual trust and
appreciation and for this the existing hiatus between the citizen and
the administration in India needs to be bridged.
It must be admitted that:the administration in a democracy has to
be democratic in temper. This is because in a democratic
administration people are the master to whom due attention and
courtesy must be shown by the bureaucrats.
As regards the linkage between the public and the administrators,
public administration must be well aware as to what public thinks of
the administrative acts and policies as well as what hopes and
desires are entertained by the public. A quick and efficient

155

machinery to attend promptly the complaints lodged by the public

against the administration is absolutely necessary.
A thorough rapport can be established between the administration
and the public by creating an agency of public relations in the
administration itself. Such an agency enables the administration to
learn about the public wishes and aspirations, to advise the public
about what it should think, desire and do in Specific spheres of
activities, to cultivate satisfactory contact between the officials and
about what the administration is doing for the public.
The egalitarian goals enshrined in the Constitution of our Country
cannot be attained through the efforts of administration only. If the
total transformation in our traditional and backward Society is to
take place rapidly, the tendency of our people to rely on
government administration for fulfilment of each and every need will
have to be abandoned. Public must shed away its negative role and
adopt positive role. The aspirants of progress and prosperity cannot
hold apathetic attitude towards their own issues of development.
They cannot remain detached from and indifferent toward activities
of the democratic government. Their initiative, interest, wholehearted support and active cooperation together with direct
participation in governmental activities must be mustered behind
the enormous efforts of our public administration.
The administrators should see that, they mix-up with the common
people, especially those from rural areas. Because it is them who
needs the administrator most. Proper atmosphere must be created
wherein the bureaucracy and the general public needless to say
that the success of the administration depends upon the
involvement, commitment, dedication and sacrifice with which the
public servants put their efforts for the welfare of the teeming
millions in the country.
We may conclude in the words of C. P. Bhambhri that It is
necessary to develop public relations which would improve
understanding between the citizen and the administrators. The
purpose of public relations is to create favourable community
opinion towards the programme of adminstration. Public should be
informed regarding the nature and scope of the available services.
Through public relations, confidence should be created in the mind
of the public towards the competence, fairness, impartiality and
sincerity of the public officials. People should feel that public
officials are honest in their duty and sympathetic in their attitude,
only then people shall assist and support the programme of the
administration. Public Relations is essential for the working of
administration, because the effectiveness of administration is
enhanced if the attitude of the citizen is friendly towards it. Public.
support which is very essential for effective administration, can
come through good Public Relations.

156

16.5 : COLLABORATION WITH THE VOLUNTARY

ORGANIZATIONS
With the increasing inability of the Welfare State to deliver Welfare
Services, in the late 1970s it was realised that the government, by
itself, is not in a position to achieve the development objectives.
The active participation of the people in the development process is
regarded as vital. The instrument of organizing and activating the
people in the development process is the voluntary agencies, also
described as the Non-Governmental Organizations (NGOs).
A voluntary organisation can be defined as an organization! that is
private, non-profit and tax-exempt Lord Beveridge defined voluntary
agency as an organization which whether its workers are paid or
unpaid is initiated and governed by its own members without
external control. Thus, a voluntary agency is a non-governmental
organisation (NGO) which collect its funds by way of subscriptions,
donations, contributions, grants from the State etc. The word
voluntary refers to voluntary contribution as well as voluntary
participation or both in the cases of some. The voluntary agencies
are engaged in certain activities in which private enterprises are
also engaged, e.g. digging tube-well. The significant point of
difference between the two being the private enterprise undertakes
socially useful activities for profit purposes whereas voluntary
agency does not have profit motive. The agencies employ full-time
professional workers to undertake socially useful activities on behalf
of the organization. The voluntary organizations are presumed nonpolitical in character. However, because of their independent
position, they can criticise measures and actions of government in
the public interest and even resort to agitational means to highlight
the grievances of people or to protest against administration. By
and large, State and voluntary organizations work by mutual
consultation and co-operation.
The
private
voluntary
organization
is
an
universal
phenomena. Some of these organisations function within the State
in which they originate whereas there are a number of voluntary
agencies in the developed countries which are engaged in
providing assistance to the developing countries.
16.5.1 : Role And Functions Of Voluntary Organizations
The number and importance of voluntary organisation is increasing
day-by-day. A welfare state undertakes a large number of activities
for well-being of the people. However , there are a number of
activities which the state can not undertake and these needs to be
undertaken by voluntary organizations.
16.5.2 : The significance of, voluntary action can, be -narrated, as
follows :

157

i) To enlist the participation of people :

The task of transformation of the under-developed societies into
developed societies cannot be left only to the administration and
certainly not to one single organization. It has to be the,
collaborated effort of all agencies and institutions of the people. In
order to broaden the base of the programmes and to enlist greater
public participation in implementation of programmes of
development, efforts of voluntary organizations would be more
effective than efforts of an individual leader.
ii) Essential for rural development :
There is a need for the rapid growth of voluntary organizations in
rural areas so that they can act as an effective agency to stimulate
popular interest and initiative in all programmes of self reliance on
the part of the people.
iii) Essential for preservation of democracy :
The voluntary organizations are absolutely, essential for the
development of democracy in the country. They are, in fact, the
surest guarantee against the dangers of growing State control over
every aspect of national life.
iv) Supportive role :
The modern democratic Welfare -State undertake more
responsibilities and functions than any of its forerunners. But, even
a welfare state cannot do everything. There are number of activities
outside the direct jurisdiction of the state which can easily be
undertaken by voluntary organizations. Thus these organizations
supplement the effort of the state voluntary organizations. State
action can support in two ways : As a parallel bar theory, some
services, for example, education, can be run directly by the
government. But, along with the government, voluntary Agencies
could also manage these services. When the State resources; are
limited, voluntary action could bring forth additional resources and
cover those areas which are left uncovered by the State. According
to the extension-ladder , theory, even where the State can find
additional resources to fulfil its basic obligations and cover the
entire services, voluntary organizations can still continue to function
as an extension of the State service. In view of their flexibility, ability
to experiment, pioneering spirit and other qualities, voluntary
associations can continue to work for better standards, better
methods and better forms, of organization.
v) Check on concentration of power :
Voluntary action also serves as a check on the concentration of
powers in the State; It prevents government from monopolizing
powers and functions in society, by involving citizens in public
affairs. Not only it is necessary to diffuse and decentralize power
from the national to the State and local levels, decentralization
should also imply sharing powers with voluntary action. Thus

158

voluntary organizations help, to bring about decentralization of

power and citizen-participation.
vi) New avenues of activities :
Voluntary action by providing constructive activities for groups
outside the area of politics, acts as a safety-valve and at the same
time makes free talent available to society. Further, through
voluntary efforts, citizen can release additional resources for
meeting local needs and enriching social life. Besides, voluntary
organizations can also search for new needs, work in new areas,
uncover social evils and unmet needs. They can anticipate change
which is inherent in the process of development, and act upon to
make it less painful.
vii) Rural Development :
A number of voluntary organizations have been working in the field
of rural development even prior to independence. The Community
Development Programme had provided for the involvement of
voluntary organisations, both in enlisting popular participation and
in implementation of development programmes. However, neither
the administrative machinery nor the policy makers had made any
serious efforts to enlist the cooperation of such organisations and,
in fact, kept them at a safe distance. However, the enormity of the
problems of rurat development made government take seriously the
issue of involvement of voluntary agencies. During the Fourth Plan
period, the Peoples Action for Development (PAD), sponsored
by the Food and Agricultural Organization (FAO) of the U.N., was
adopted in India and financial assistance was given to a number of
voluntary and service organisations working in the field of rural
development. However, major breakthrough in this regard was
achieved during the tenure of Rajiv Gandhi. The Seventh Plan
provided a wide scope to voluntary organisations and their
participation in the development activities. In the PAD programme
the planning begins from the roots i.e. a village. It is expected that
development of a village should be by the villagers themselves.
Financial assistance is provided but the villagers should be the
planners and executors. Local people have better knowledge of the
idle resources in their own villages and they also know the methods
of utilising them. In this process there is wide scope of the
intelligence, initiative, imagination, action programme and hard
labour of the people. This is complementary campaign to the
development programme of the Government and the 20 point
programme.
16.5.3 : Significance Of Voluntary Organizations
It is increasingly realized by both, the Government of India and the
State Governments that the development administration machinery
by itself can not bring about rural development. Therefore, CAPART
and PAD are appropriate steps taken to involve voluntary

159

organizations or NGOs in implementing the development

programmes. In fact, in some cases, the entire responsibility was
entrusted, to organization as Manav Lok of Dr. Dwarkadas Loniya.
Annasaheb Hazares Ralegan shiddhi was the model of voluntary
action for rural development. Thus, more than 1,200 voluntary
organizations, are working in Maharashtra alone and have
immensely contributed to the enormous task of rural development.
They have generated development awareness among the rural
masses and have organized them in changing their age-old
conditions of poverty and misery.
In sum, the phenomenon of grassroots voluntary activism is to be
seen as an attempt to kindle faith and energy in anti establishment
forces in a variety of settings at a time of general drift and loss of
elan, also at a time when the suffering masses are found to be
scared of confrontation with the status quo and are likely to walk
into the trap both of populist measures, when the need is for people
with will and creativity and readiness to wage sustained struggle not
just against a local tyrant but against the larger social system.
Underlying the micro movements is a search for a more adequate
understanding of the forces at work. They believe that available
ideologies are inadequate to cope with the crisis they are in. They
have found that none of the existing parties really cared for these
unorganised and suffering masses. Hence, the need for a new
genre of organisation and a new conception of political roles.
It is to fill this need that the widespread phenomenon of non-party
political formations have emerged. In part, they are performing roles
previously performed by Government or by opposition parties and
their front organisations. In part they are performing new roles that
have emerged in the new context or in condition of profound
marginalisation of millions of people and the social and moral
vacuum created by the indifference of the system to it. They are
providing new linkages with segments which hitherto remained
isolated and thereby bringing into the political process issues that
were hitherto left out. Finally some of them are also seeking to link
experiments at micro and regional levels to the macro political
situation, partly by similar struggles at so many micro points and
partly by the sheer impact of example. The more organised effort of
joining up horizontally and vertically and building towards a more
cohesive and comprehensive macro formation is in formative stage.
On the whole, though, it would be a mistake to think of these action
groups as political parties. Their role is neither antagonistic nor
complementary with the existing parties. It is a role an once more
limited and more radical, taking up issues that parties are unwilling
to take up, coping with a large diversity of situations that
governments and parties are unable to cope, encompassing issues
that arise from not merely local and national but also international

160

forces at work the individual effort is expressed in micro terms but it

deals with conditions that are caused by large-macro structures.
The non-party political formations are thus a part of a large
movement for global transformation in which Non-State actors on
the hand and non-territorial crystallisations on the other are
emerging and playing new roles.
16.5.3 : Collaboration
between
the
Government
and
theVoluntary Organisations
The government has responded to the growing importance of the
voluntary agencies. In 1972 it created a new body Peoples
Action for development (India) (PADI) to channelise funds to
preferred Voluntary Agencies. With the increased - resilience of the
voluntary sector in the eighties, Government merged PADI; with its
sister organisation Council for Advancement of Rural Technology
(CAPART) - to form the Council for Advancement of Peoples
Action & Rural Technology (CAPART) under the auspices of the
Ministry
of Rural Development in 1986. Alongwith the older
Central Social Welfare Board founded in 1953. CAPART is a major
source of government funds being provided to the voluntary sector
of government funds being provided to the voluntary sector. The
State affiliate of CAPART - Bharatiya Vikas Lok Karyakram
(Maharashtra) provided Rs. 90 lakhs to Voluntary Agencies
for rural development and water supply schemes between 1972
and 1987.
The most important development of this period, however, is the
unprecedented role assigned to Voluntary Agencies in the
governments rural development programme in the Seventh Five
year Plan (1985-90). The Plan document devotes an entire section
to Voluntary Agencies. They are called upon to implement
government effort so as to offer the rural poor, choices and
alternatives, and to act as the eyes and ears of the people at the
village level. In what is clearly a gesture towards NGOs, Voluntary
Agencies are invited to mobilise and organise the poor and
generate awareness to demand quality services and impose a
community system of accountability on the performance of village
level government functionaries. The specific areas and
programmes in which the participation of Voluntary Agencies is
sought, include areas of Major concern to the NGOs,
implementation of land ceiling and distribution of surplus land,
enforcement of minimum wages to agricultural labourers, as also
identification and rehabilitation of bonded labour.
The ongoing Eighth Five-Year Plan (1992-1997), retains the
emphasis on the involvement of voluntary agencies in the rural
development programme of the government.
In addition to the measures listed above, the government also
introduced field exposure to the work of rural voluntary agencies

161

into the training programme for I.A.S. officers. The official policy of
the government towards voluntary agencies is thus apparently
based on watchful benignity. However, at the grassroots level, the
actions of the police and the bureaucracy to Voluntary agencies
also frequently find themselves at loggerheads with the local
centres of economic and political power. These include influential
and wealthy individuals or groups and the institutions controlled by
them. In collusion with the local government machinery, they
present a formidable threat to the more radical Voluntary Agencies.
The latter have responded through a series of measures such as
reaching a wider audience through the press, securing the support
of influential political leaders and public figures, protest
marches/demonstrations, seeking legal redressal and forming
regional and national networks, such as Jana Andolan in
Maharashtra and Voluntary Action Network of India.

16.7 : COUNCIL FOR ADVANCEMENT OF PEOPLES

ACTION AND RURAL DEVELOPMENT (CAPART)
At the Centre there were two autonomous organisations - One
Peoples Action for Development (India) PAD and the other Council
of Rural Technology - (CART). From 1986 these two organisations
were amalgamated with the new name Council for Advancement of
Peoples Action and Rural Technology (CAPART). The office of the
new amalgamated autonomous organisation is located in New
Delhi.
Financial assistance is made available to registered voluntary
organisations from the CAPART for the following rural development
programmes :
1.

2.
3.
4.
5.

Pilot project of Public Co-operation - Agriculture, live stock,

poultry minor irrigation, social forestry, rural health skilled
training and vocational schemes on rural employment. The
organisation provides financial assistance to the extent of Rs. 5
lakhs maximum.
Development of Women and Children in Rural areas to the
extent of 5 lakhs maximum.
Accelerated Rural Water Supply Programme- No ceiling for
financial assistance.
Low cost sanitation scheme - No ceiling for financial
assistance.
Rural Landless Employment Guarantee Programme
(RLEQP) No ceiling for financial assistance.

Thus the role of voluntary organization in rural development has

received official recognition. There are more than 80,000 such
organizations, of which 14,000 are registered ones and eligible for
financial assistance. In times to come, involvement of voluntary
organizations is going to increase in view of the overall
development strategy of Eighth Five Year Plan.

162

Peoples Action for Development (PAD) :

Taking the cue from the Centre, the Maharashtra State Government
sought the Co-operation of the voluntary organizations to
implement State-run schemes. But, the wheels of bureaucracy
moved slowly and the Peoples Action for Development (PAD) was
revived only in 1990 to encourage voluntary agencies to work in
close co-operation with the State administration. Housed in
Mantralaya the State headquarters, PAD maintained contact with
more than 1,000 voluntary organizations in, Maharashtra in the last
two years. The State Government plans to make a budgetary
allocation of Rs, 11 crore from next year - ensure that the voluntary
agencies do not have to scourge for funds. The State Government
recently launched an ambitious Rs. 800 crore programme for water
and soil conservation to fight the recurring droughts. The
Government of Maharashtra wants the Non-Government
Organization to be involved in the implementation of development
programmes especially in the rural and tribal areas.

16.8 : QUESTIONS
1) What is peoples participation? State its significance.
2) Explain voluntary organizations and peoples participation
relationship.
3) Explain about Administration and public relations.
4) Write on Administrations attitude towards people.
5) What is the need for reconciliation of public and Administration

(MODULE 8)
Unit 17

17
RIGHT TO INFORMATION AND
E-GOVERNANCE
Unit Structure :17.0 Objective
17.1 Right to information
17.2 E-Goverance
17.3 Decentralised planning
17.4 Unit end questions

17.0 : OBJECTIVE :
To understand and study about Right to information, E-Governance
and Decentralised planning.

17.1 : RIGHT TO INFORMATION

17.1.1 Meaning - Right to information means the freedom of people
to have access to government information. The social crusaders
like Anna Hazare have launched public agitations to press for the
right to information. As a result a legislation was enacted by the
Maharashtra state Legislature in 2003. The advocates of the Right
to information maintain that in a democratic state the people are
sovereign and they have right to access information on the policies
and programmes of the governement. They are opposed to the
official secrets Act of the pre 1947 period as people are deprived
of vital information under the veil of secrecy. Barring the sensitive
matters like defence and foreign policy; it is argued that there must
be transparency in the working of government and this should be
ensured by the Right to information.
17.12 : Importance of Right to information :1. It will help to bring participatory democracy in India.
2. It will help to reduce the scope of corruption in public
administration.
3. It will help to reduce the gap between adminstration and people.
4. It would lead to openness, accountability and integrity in
administration.
5. Brings information for the citizens - Right to information Act
2005 mandates timely response to citizens requests for
government information.

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17.13 : Request for obtaining information :A person who desires to obtain any information under this Act, shall
make a request in writting or through electronic means in English or
Hindi or in the official language of the area in which the application
is being made, accompanying such fees as may be prescribed.

17.2 : E-GOVERNANCE
17.2.1 : Meaning - The impact of information technology on Indian
Adminstration finds manifestation in the Electronic governance, i.e.
e-governance. EG is the application of ICTs to the processes of
government functioning to accomplish simple, accoutable speedy,
responsive and transparent governance.
E-G is not about simply automating their current ways of doing
business. With the new tools of a networked society, government is
not merely computerising existing government; it is transforming the
existing government. E-G is the ICT enabled route to achieving
good governance. It integrates people, processes information and
technology for meeting governance goals. E-G represents a journey
from passive information giving to active citizen involvement :
Informating The Citizen; Listening to the citizen; Representing the
citizen; Consulting the citizen; Engaging the citizen.
E-G involves new styles of leadership, new ways of debating and
deciding policy and investment, new ways of accessing education,
new way of organising and delivering information and services.
17.2.2 : The Principal goals of expanding e-government are:
To Make it easy for citizen to obtain service and interaction with the
government at different levels;
-Improve government efficiency and effectiveness; and
- Improve government responsiveness to citizens.
Government to Citizen (G2C) initiatives are to bring one-stop,
online access to benefit and services. This potential for under
activity is identified as one of the most important elements in the
way E-G will change the nature of government.
Government to Business (G2B) initiatives will adopt processes that
dramatically reduce redundant data collection, provide one-stop
streamlined support for businesses and enable digital
communication with business using the language of e-business.
Government to Government (G2G) initiatives will enable sharing
and integration of Central, State and local data to facilitate better
leverage of investments in IT systems and to provide better
integration of key government operations.

165

Internal Efficiency and Effectiveness initiatives will bring commercial

best practices to important government operation, in particular,
supply chain management, human capital management, financial
management and document workflow.
The application of information technology to administration is
described
as
E-Administration.
This
process
includes
computerisation of land records which are very vital to the rural
community, electronic access to adminstration and its functionaries
and immediate availability of information sought as well as
redressal of grievances.
Potential Benefits of E-G and E-A
E-G is widely recognised as an effective instrument to :
- reduce poverty and spur sustainable development
- foster democracy, efficiency and transparency.
- provide better services for its citizens and
- promote competition and innovation thus improving the quality of
life for communities.
Electronic delivery of services and information would enable
governments to :
- reduce geographical and language barriers
- faciliate timely delivery
- accommodate special needs
- integrate processes and functions to achieve efficiencies and
cost reduction.
- respond to rapid changes and
- be available to the public anytime, anywhere.
Countries like India have the opportunity to leapfrog development
cycles by adopting proven best practices in governance.
E-G yield three broad sets of benefits :
- Improving government processes;
- Connecting citizens;
- Building relationships with and within civil societies.
Automation can cut financial and time costs and support efficiency
or productivity improvements. In developing countries where
relatively inexpensive manpower is available, replacing them with
costly ICTs cannot be justified on financial cost ground; ICTs need
to be justified in the context of other long term imperatives.
The source of efficiency gains are :
- Governance that is cheaper : producing the same outputs at
lower cost;
- Governance that does more : producing more output at the same
total cost;
- Governance that is quicker : producing the same output at the

166

same total cost in less time.

The sources of effectiveness gains are :
- Government that works better : producing the same outputs at
the same total cost in the same time but to a higher quality
standard;
- Governance that is innovative producing new outputs.
Other benefits :
- Internally providing such benefits as close monitoring of process
performance or better staff motivation or an improved public
image;
- Externally, by delievering cheaper, better services to those who
depend on government or transferring power, authority and
resources to lower, more localised levels of administration.
Connecting citizens :
- Talking to citizens : Providing details of government activities,
making public servants more accountable for their decisions and
actions.
- Listening to citizens : Making public decisions more responsive to
citizens views or needs.
- Improving public : Delivering quality, services convenience,
competitive cost.
E-G helps forge better working relationship with business : digitising
procurement from services to businesses improve quality,
convenience and cost. E-G also contributes to developing
communities.
17.2.3 : The Process of Implementing E-G
Following framework will help to understand the issues involved in
planning E-G initiatives.
Vision and context : What is possible and desirable through the
use of e-government? What are the opportunities and challenges?
Responsiveness : How can e-government make governments
more responsive to the need of society?
Capacity : How can e-government make governments internal
operations more efficient and effective?
Operations : What is required for e-government to work?
Measurement: How do we measure the impact?
Within this framework, an E-G initititive will address specific issues
such as :
-

What are citizens expectations of e-government? How can

government ensure the needed capacity to collect and respond
to these expectations? Can governments keep pace with rising
expectations for e-services?

167

How will e-government affect governments external relation

with citizens, businesses and civil society? What impact will it
have on society in general?

How will e-government offer the role and functioning of

democratic institutions, including the relationship between
Parliament and the Executive?

How can e-government strategies be best formulated and

managed to achieve national policy objectives?
Will e-government result in changes in procedures and/or lines
of accountability that increase transparency and accountability?

How can administrations best organise and plan to take full

advantage of the
communications and networking potential of e-government?
-How can e-government contribute to the cost efficiency of
government services?
What will be the implications for government structures and
processes?
The above questions addresses such aspects of public
administration as the delivery of services, decision-making,
knowledge management, communication, human resources and
financial management and regulations. They will also help assess
the potential impacts of e-government in transparency and
accountability, efficiency and effectiveness and overall coherence
of government.
17.2.4 : Stages of Implementation of E-G
United Nations has identified five phases for assessing a Countrys
progress towards E-G.
Phase I - Emerging Web presence : This is the start-up phase of
Passive relationship between the government and the public.
Government and its clients do not communicate on the Web. A
Country may have a single or a few official national government
Websites that offer static information to the user. Laws, regulations
and rules, guidelines, handbooks, directories, etc. are published on
the Internet.
Phase II - Enhanced Web presence : This phase represents an
Active / Passive relationship; the government is active in
disseminating information but users are passive. The number of
government Web pages increases as information becomes more
dynamic with users having more options for accessing information.
Users may be able to download specific forms.

168

Phase III - Interactive Web presence. In this Active/Active

Relationship, interactions between government and the public can
be completed on the Web. Users can obtain a tax form on the Web,
fill it in on the Web, and send it back to the tax authority through the
Web.
Phase IV - Transactional Web presence : E-government matures
at this phase. Business transactions can be fully completed on the
Web, electronic filing and subsequent electronic funds transfer.
Restructuring the government becomes imperative at this stage.
Phase V - Fully Integrated Web presence : This phase represents
the complete integration of all online government services through a
one-stop-shop portal.
17.12.5 : Two Most Important Electronic Delivery Channels Two of the most popular and effective electronic delivery channels
for government information and services are Public Kiosks and
World Wide Web Home Pages/Internet.
Websites
Internets WWW is the most, ubiquitous and least expensive
medium to disseminate information for government (in fact,
anybody) on its services and initiatives as well as culture, economic
and other subjects unique to a region. Government and government
agencies across the world are creating large number of Websites to
exploit this medium.
There are, however, two disadvantages : usage is available only to
those individuals with access to a personal computer and internet;
only transmission of information not for the actual transmission of
services.
Public Kiosks
International examples abound of the effective use of Kiosk
technology deliver government information and services. A variety
of concepts are used to describe public access cpmmunication
and information services, commonly known as tele-service-centres.
One of the greatest attraction of telecentres is that costs are kept
low by taking advantage of the fact that communication and
computing technologies allow voice, fax and internet data to travel
over the same telecommunication link.
In countries like India with low computer literacy, and low computer
/ internet connectivity, relevance of telecentres is extremely high.
The intervention of a human intermediary with skills and knowledge
between the citizen and growing digital infrastructure of egoverance, as is provided at a telecentre, is of vital importance.

169

Telecentres can be publicly or privately owned, be part of a public

or private franchise or may be owned or operated by government
departments, schools, community organisations and NGOs.
Telecentres are started in co-operatives, libraries, community
centres, churches, and farmers groups, or even operated by a
community radio station. They can operate as individual
businesses, as part of a franchise or as multi-branch company.
Worldwide, telecentres will range from a Micro centre with pay
phone(s) with a built-in web browser and possibly a smart card
reader and receipt printer to a Full Service Telecentre with many
phone lines, multi media PCs with internet access; printers, a
scanner, a digital camera, a video camera, a TV, and overhead
projector, a photocopier, a laminator, meeting rooms; and a
telediagnostic and video conferencing room.
Typically, telecentres will provide a range of services as well as
information on a variety of subjects which a visitor wants to access.
The services include Web-based content in local languages,
email/voice mail; word processing and desk top publishing; online
display of examination results; telemedicine; online greivance
redressal; e-commerce; music and games; internet telephony;
distance education, training and skill development; information
access through CDs; downloading forms/ applications and online
submission; and telemarketing
17.2.6 : Pre-conditions for Success in Implementing E-G :
Management of information is a cbmplex task because of its
complex characteristics, more so when you deal with that of an
linstitution like Government.
The path to E-G is strewn with many obstacles - reluctance to
accept change; many governments see the free flow of
information as a threat; some use IT to empower the people, others
to gain more control; legacy of paper-based systems; existing laws
and regulations; deeply-entrenched cultural habits of civil servants
security and confidentiality concerns; shortage of skilled knowledge
workers; and high public expenditure.
Lack of readiness for E-G contributes to both lack of and failure of
E-G initiatives. A wide range of infrastructure has to be in place
before a government can effectively take on E-G..
Data System :
The management systems, records and work processes have to be
readied to provide the quantity and quality of data to support E-G.
Capability to use local languages in their systems has to be
ensured. Content on the Website should be current, accurate,
understandable, trustworthy and available in a timely manner.

170

Legal Infrastructure:
The laws and regulations required to support E-G should be
enacted. For instance, creation of Public key Infrastructure and
Certification Authorities are essential without which e-commerce
and E-G. in the final phases, cannot take off effectively. Public Key
Infrastructure is to encrypt communications for security,
authentication and non-repudiation for facilitating online
transactions.
Technological Infrastructure:
Creation of network infrastructural in which computing, connectivity,
interoperability and security are assured, is of vital importance.
Developing a high-capacity communications infrastructure is
essential to reduce the current digital divide between high
bandwidth (generally urban) and low speed dial up users.
Human Infrastructure :
People with the right skills, attitudes or mindsets are essential to
initiate, implement and sustain E-G. Most of those in the
government tend to resist change, lack customer orientation and
resist information-sharing.
Ensuring this is the greatest challenge.
Institutional Infrastructure :
There has to be a dedicated institution to act as a focus, to lead and
drive E-G.
Leadership and Strategic Thinking :
Successful E-G initiatives demonstrate that one champion or a
small group of champions provide the leadership and vision to take
other along and put E-G on top of the agenda of a given
government. The passion with which Chandrababu Naidu, the Chief
Minister of Andhra Pradesh, has been pursuing E-G initiatives is a
case in point.
Think Big, Start Scale Fast is robust guideline to pay attention to
while implementing E-G programmes.
17.2.7 : E-Governance in India
A wide range of E-G initiatives are being pursued at the national as
well as the State-level with varying levels of commitments and
success.
According to NASSCOM, the southern States of Andhra Pradesh,
Karnataka and Tamil Nadu are leading in terms of implementation
at different citizen-Government interfaces. Others, Kerala, Gujarat,
Maharashtra, West Bengal and Raj asthan are catching up fast.
Nevertheless, other than a few show-case projects, E-G has not
made much progress due-to several operational, financial,
personnel, planning and implementation challenges.

171

17.2.8 : The major hurdles :

- Operational hurdles:
No clear revenue stream for the private sector; lack of coherent
government policies; inappropriate processes for tendering,
RFPs and bid assessment.
-

Financial :
Government unwilling to commit funding; uncertainties in
viability of public-private partnerships.

Planning and Implementation :

No clear roadmap with measurable milestones; focus on
computerisation and hardware spend; low emphasis on process reengineering and management change.
Personnel :
Absence of appropriate work Culture; lack of ownership of projects
and frequent personnel transfers, NASSCOM has recommended a
three-phase Action Plan for E-Governance.
Phase I: By end 2003
- IT training to be made mandatory for all Class I government
personnel.
- Tendering and bid evalutation procedures be re-written to
encourage participation.
- NISG (National Institute of Smart Governance) to be
operational. Role of NIG (National Informatics Centre) to be
clearly defined.
IT champions in Government departments.
Phase II : By end-2004
- State wide area network in place
- PC : Personnel ratio of 1:4 in all departments
- Identify core projects to be automated
- Citizen ID cards
- Computerisation of all land records
- State funding from Centre to be linked to e-Governance
spending.
-

Phase III : By end-2005

States to offer citizen services online
50% of all government, procurement to be online
Focus on developing applications for primary health, disaster
management and education.

Accelerate
public-private
partnership
when
core
infrastructure and procedures in place.
Secure multi-lateral funding to accelerate e-Government
spending.

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Some E-Governance Initiatives

A brief account of some noteworthy e-governance initiatives is as
under :
1. Gyandoot
Gyandoot (Messenger of Information) Project, Indias most
successful government-to-citizen intranet project, set up over 30
internet-connected villages in a district in Madhya Pradesh provide
user-charge-based services to the rural people.
The capital investment involved in setting up the kiosk is taken care
of by the District Council and is operated by a carefully chosen local
matriculate who runs it on commercial lines. He bears the cost of
stationery, maintenance and electric and telephone bills. He Pays
10% of income as commission to the District council for maintaining
the net. Each kiosk operator is expected to earn a net income of at
least-Rs. 36,000 per annum at conservative projections.
The services and facilities offered, are :
Prices of agriculture produce at different auction centres (at a
nominal charge of Rs. 5/-); on-line registration of applications for
obtaining income/caste/domicile certificates (for Rs. 10), on-line
public grievance redressal (Rs. 10/-); a fee based e-mailing facility;
village auction site at Rs. 25/-) one can put ones Commodity on
sale for three months and Rs. 10/- for browsing the list of saleable
commodities); on line matrimonial site (Rs. 25/- for three months);
information regarding government programmes.
The public expects government services to be comparable with the
best services available from the private sector in terms of quality,
accuracy, timeliness and user-friendliness. They no longer tolerate
delays, bureaucratic mistakes or excessively time consuming
difficult procedures. They expect to be treated individually and to
have range of options available to them, enabling them to select the
best combination for their needs.
Decision-makers in government today are confronted with
proposals for reinventing, reengineering, redesigning; downsizing or
outsourcing the processes of their organizations. All driven by
Information and information and Communication Technologies
(ICTs).
E-government is a tool. And like any tool, no rnatter how powerful,
it has limited value and relevance in itself. Its values arises from its
application to specific goals and objective.
In the final reckoning, what matters is how far E-G initiatives help
improve the quality of life and foster sustainable human
development by bringing together public and private interests to
build the digital infrastructure, or by refashioning government
processes to bring them more in line with the operating practice of
business, or by improving the policy formulation process to make

173

policy more effective and responsive in a changing environment.

While many governments are making strides, too few are moving
quickly enough, and none can afford to be left behind, IBM.
A recent study done at the Brown University, USA, analyzing the
performance of 1197 national government Websites in 198
countries on a 100-point scale using two dozen different criteria
Indicates:
-

Services offered in 88% of government Websites are not

executable online.
86% of the Websites have no privacy policy.
91% have no Security policy.
75% did not respond to an email responsiveness test.

Of course, considering the newness as well as the complexity of the

technology and its application, what we have achieved is surely not
unremarkable. The point however, is that for Leveraging the full
benefit of the greatest technology of our times for E-G, lot more
remains to be done.
Kerala - FRIENDS
The Dept. of IT, in association with the local bodies and seven
government departments have set up an Integrated Services
Centre called FRIENDS (Fast, Reliable, Instant, Efficient, Network
for Disbursement of Services) with a view to enabling a smooth and
transparent C2G interface. These centres accept rail utility bills,
taxes and fees pertaining to the participating departments and offer
quality services to the citizens. FRIENDS has been launched in all
14 district headquarters in the States.
Kerala - AKSHAYA
The project is envisaged as a practical, commercially viable enabler
to impart basic IT literacy to at least one member of each of the 65
lakh families in the State and to extend the training initiative into a
service delivery mechanism for the local citizen conceived as a
Public Private Partnership programme. Each of the Akshaya
centres will be equipped with necessary equipment like computers,
fax, printers, telephones, broad band Internet connection and
software so as to cater to the information and communication
requirements of the local citizens.
The Internet (arguably the most important communication tool the
world has seen, so far), powerful microprocessors, high capacity
degital services, low-cost memory, and broadband networks are
redefining the world as we know it.
The breathtaking pace of technological change transforming every
institution. Human knowledge is doubling every seven to ten years.
Communication is now nearly instantaneous. These changes are
causing staggering upheaval in the familiar systems including
governance.

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17.3 : DECENTRALISED PLANNING

India is a very large country, comprising 28 States and 7 Union
Territories, districts, 5,011 blocks and six lakh villages, with
immense diversity in material and human resources. Proximity with
the area and the people whose development is contemplated is
essential for adequate knowledge and understanding of local
problems, the localitys constraints as well as its potential.
It is obvious that planning for rural development has to be
undertaken at a fairly decentralised level. Without a firm grasp of
the wide variations in natural endowments, soil and climate, social
and cultural milieu, historical legacies and group alignments, area
planning would lose much of its relevance.
Decentralisation should include all aspects of local level planning,
its formulation, implementation, monitoring, etc., for effective and
purposeful rural development. Development does not simply mean
in the domestic product of the area concerned but egalitarian and
non-exploitative society. In other words, the objective is not simply
the development of the areas but also of the people especially that
of the weaker sections. Decentralisation becomes all the more
necessary if this broader objective of development is to be
achieved.
Planning may be centralised or decentralised. This division is made
from the viewpoint of the execution of plans. Under centralised
objectives, targets and priorities for every sector of the economy. It
takes all investment decisions in accordance with the goals and
targets of the plan. The principal problems of the economy - what
and how much is to be produced, how, when and where it is to be
produced, and to whom it is to be allocated - are exclusively
decided by this authority. The central planning authority controls
every aspect of the economy. It fixes prices of all products and
wages of all types of workers. All anticipated financial product and
factor imbalances that are likely to arise within the planning period,
are sought to be corrected in advance to the planning authority.
Oscar Lange rejects centralised planning because of its
undemocratic character. The entire planning process is based on
bureaucratic control and regulation. Naturally, such planning is
rigid. There is no economic freedom and all economic activities are
directed from above. Shortages and mistakes arising during the
course of planning are, not likely to be rectified because of the
absence of decentralised decision-making.
On the other hand, decentralised planning refers to the execution of
the plan from the grass roots. Under it, a plan is formulated by the
central planning authority in consultation with the different
administrative units of the country. The central plan incorporates
plan under the central schemes, and plans for the states under a
federal set up. The state plans incorporate district and village level
plank Similarly, plans for different industries are formulated in

175

consultation with representatives of industries. But individual firms

are free to take independent decisions about investment and output
policies, and so are individual farmers. Under decentralised
plaining, prices of goods and services are primarily determined by
the market mechanism despite government control and regulation
in certain fields of economic activity. There is freedom of
consumption, production and enterprise under it. However, the
planning authority recommends to the central and state
governments to provide certain incentives to the private sector. It
also lays down areas of public sector activities.
However, in the context of rural development, it is too simplistic to
describe the planning from the above as centralised and planning
from the below as decentralised. Planning from below does not
mean cumulative totaling of block plans into district plans, district
plans into state plans and ultimately state plans into the national
plan. What is contemplated is not simply adding up but coordination
of plans at each successive higher level in the process of
integration inevitably one has to make adjustments in plans
formulated at lower levels. This would mean some curtailment of
the authority of local level planning. Adjustments made at a higher
level should, not be arbitrary and should be made through mutual,
discussion.
The proper way to look at decentralisation is to view it as two way
process. Priorities-not necessarily rigid-and the quantum of financial
resources which could be made available from national to state and
from state to district and so on-apart from those which could be
raised at respective levels without cutting into the sources available
to higher - levels, - will have to be determined from above. Each
and every project and public expenditure allotted to it do not
become sacrosanct simply because they have been determined by
local-district, block, mandal-authority. Planning is not wish
fulfilment. It may not be possible to fully satisfy even the felt needs.
If financial resources are not in sight, even needs would, require
prioritisation. Besides, every welfare or developmental needs has a
physical and financial linkage consequence. Thus more food will
need better seed, irrigation, fertiliser, etc., and more milk would
need better cattle, fodder, veterinary services, chilling plants,
bottles and bags. It will not be possible to fully, envisage the linkage
consequences at disaggregated levels, and the investment may
prove to be uneconomic or even anfractuous, if forward and
backward linkages are not taken into account. Such problems do
not arise in a free market economy because the individual
entrepreneur bears the risk of his error of, judgement. But when
rural development projects are launched by the state, subsidised by
it and financed by public sector banks, great care has to be
exercised in the choice of projects and their implementation. There
are certain national priorities; though perception about them may
differ according to ones ideological perceptions. Similarly, every
state government has its own set of priorities within the national

176

frame. In a two-level planning Commission, When a third tier,

namely, the district, is added to the planning, hierarchy, the
problems of co-ordination and reconciliation become more difficult
to handle.
17.3.1: MULTI-LEVEL PLANNING
The concept of multilevel planning is the operational form of the
decentralized planning. The uni-level planning, described as
command planning, was practised in the former socialist countries.
The single central planning authority was entrusted with decisionmaking powers and its commands (decisions) were implemented by
the regional and local agencies. On the other hand, social and
economic planning is a subject included in the Concurrent List
under the scheme of distribution of powers in the Indian
Constitution. As a consequence, the planning process in India is
federal in nature; wherein the centre and states have powers
pertaining to planning. In addition to these two levels, the planning
at the grass roots level was adopted and led to the third level, i.e.
the district level planning. In order to make the planning more
meaningful, the Planning Commission has, accepted the concept of
Block level planning.
Thus the planning process in a large democratic polity like India
takes place at more than one level and hence described as multilevel planning.
- Multi-level planning is, basically an exercise in the
decentralization of the planning process. The heart of the concept
is therefore decentralization. Decentralization is not mere breaking
the bulk, but ensuring many complementarities, consistencies
and flows as well as closing the gaps. In order to understand the
nuances of the concept further, we may distinguish it from two wellknown expressions viz., deconcentration and delegation. The
term deconcentration implies only breaking the bulk i.e., to
decrease the quantity in unit space. It is thus merely a mechanical
process. Delegation implies entrusting or committing some tasks
to a lower level for administrative convenience. Decentralization, on
the other hand, implies assigning a particular role in the process,
that is, the level to which decentralisation takes place is made to
have a viable stake in the process.
It means assigning of both powers and responsibilities and
rendering the level fully accountable for its activities. The clear
role and accountability seem to be the hall-marks of
decentralization.
Decentralization requires certain conditions to be met, if it is
to succeed. In this context, it may be noted that :
1. Mere delegation of some powers and functions to sub-national
units does not achieve all that is required;
2. Genuine popular involvement in the process of planning is
absolutely necessary. Trusting the people is an indispensable pre-

177

condition for bringing any kind of radical change in society; and

3. The roles of the different agencies should be properly spelled
out. Duplication should be avoided. It is necessary to clarify the
work to be done at different levels and to indicate how their work is
integrated with that of the Planning Commission.
The extent of decentralization needed for a country and the content
of that decentralisation would depend on the problems and needs,
perceptions and value systems of the country. The multi-level
planning procedures are determined largely by the countrys
situation, its socio-political climate and its development setting
Thus a multi-level planning system has to be designed for the
specific situations and cannot be generalised.
The multi-level planning operation represents a system approach
in planning The systems approach implies that there are subsystems within a system. These sub-systems will have a cluster of
activities based on inter-dependent and inter-linked activities. The
system approach pre-supposes that managerial command should
include as complete a segment of the task as possible. Thus, a
sub-system is a relatively independent system and yet part of an
inter-dependent system. While carving out sub-systems, therefore,
certain principles have to be kept in view-the principle of activity
differentiation, the principle of inter dependency and the principle of
small external effects.
17.3.2: Pre-requisites of Multi-level Planning
The pre-requisites of multi-level planning are as follows:
i) Identification of level and functions to be performed at each
level;
ii) Establishment of planning machinery at each level with suitable
trained staff;
iii) Indications of outlays that would be available for planning at
each level;
iv) Delegation of powers matching resources and responsibilities in
consonance with tasks assigned;
v) Well-defined procedure and time-frame for various stages of
planning to be accomplished.
17.3.3 : RATIONALE FOR MULTI-LEVEL PLANNING
India has adopted multi-level planning owing to the realization that
centralized planning cannot solve the development problems of a
vast country, with varied developmental needs. The arguments put
forth in support of multi-level planning, are as follows :
1. Centralized planning results in lags between development and
the utilization of resources and capacities. These lags can be
considerably reduced in decentralised planning.
2. The planning process cannot succeed purely on bureaucratic
lines. Active participation, involvement and support of the local
people are needed if planning and implementation are to
succeed. Participation of people can be achieved only if

178
planning is carried to the lower sub-national levels. Thus
decentralisation is needed for effective mobilization of public
participation.

3. Decentralization is needed in order to counteract the evils of a

highly centralized type of planning and decision-making. The
centralized type of planning cannot adequately take care of all
the requirement at different territorial and sectoral levels of the
planning process.
4. The task of planning requires not only the formulation a broad
policy framework but also specification of the details of this
framework. A specification of details would be possible only in
the light of relevant information and data. This kind of
information is more readily available on the spot. Planning has,
therefore, to move closer to those levels where better-informed
decision-making would be possible.
5. When planning becomes decentralised, it would tend to become
more area-specific; that is, it would be possible to establish
close complementary between development schemes and
local potentials, problems and priorities.
6. In developing countries like India characterised by inter-regional
disparities in development and heterogeneity in social structure,
the problems of poverty and unemployment are area-specific
and group-specific and demand a decentralized approach
toward their solution.
7. It has been established that decentralized planning ensures
better spatial convergence and sequencing of inter-related
activities and optimisation of investments.
17.3.4 : Operational Dimension
The essence of multi-level planning is decentralization. This
decentralization does not simply mean disaggregation of targets
and resources to different levels. Such a disaggregation would be a
static breaking down exercise and not multi-level planning. On the
other hand, multi-level planning implies that planning would be
undertaken at each level independently, the plans at each level will
be matched with those at the other levels and fitted together to
produce a unified plan. While the unified, plan itself will have a
certain unity and internal consistency, the plans drawn up at the
different levels will also be characterised by such unity and
consistency.
The concept of multi-level planning incorporates the principles that
proper decision-making is possible at Any level if the strategy at
each Ievel is determined after careful consideration of the
potentials, needs and limitations of the next higher as well as the
next lower levels of planning. Thus, each level does not look upon
planning as a self-contained activity at that territorial level,
but recognises the openness of the economy and always has
an eye on spill-over associations, inter-relationships and

179

Complementarities
Multi-level planning is a two-way approach. It requires a lot of
preparatory efforts from both ends. The higher level should give all
macro framework indicators and guidelines for planning. The lower
level must feed the higher level with information and has also to
prepare the plan from below. The two approaches will then have to
be harmonised.
17.3.5 : THE STAGES OF MULTI-LEVEL PLANNING
In order to ensure that the multi-level planning; becomes
meaningful, the following stages, have to be observed:
i) The first stage in the multi-level planning process is the
determination of appropriate levels of decision-making with
reference to various activities. This, would include
(a) establishment of a suitable planning machinery or structure at
the level which will be the nucleus planning body; (b) defining the
scope and functions of planning at each level; and (c) deciding on
inter-area allocation of resources among different levels.
ii) The second stage in the multilevel planning process Involves
organising inter-action between different levels in terms of
exchange of information and organising deliberative consultations
at different stages of plan formulation and plan appraisal. This step
is the most important and the success of a Multi-level planning
operation would depend on the frequency and efficiency of this
process of inter-action. Suitable conventions and procedures will
have to be evolved for this repetitive process to be successful.
iii) The third stage in the multi-level planning process is what is
called the nesting of the plans at different levels and integrating
them into a unified frame. Nesting implies securing both balances
within the plans drawn up for different levels and also their
harmonisation. Integration is a multi-level concept. Securing
integration within plans at different levels implies achieving balance
at three levels viz., sectorial, spatial and operational levels/ At each
level, the balance has to be achieved within certain parameters.
Sectoral balance has to be achieved with due consideration for
national and State priorities, localre levance, economic efficiency
and internal consistency. Similarly, spatial balance has to take into
account considerations like location, accessibility, net-work or
international efficiency. Operational balance has to be achieved
with due consideration to organization, delegation of functions and
powers, management procedures and personnel systems. Thus,
integration of plans at different level itself is a complicated process.
Such integrated plans of different level will then have to be
harmonised. This task is call nesting.
Multi-level planning may thus be viewed as an intricate
management concept calling for some exacting jobs. These include
organization of planning machinery at different levels with
adequately
trained and sufficiently motivated
personnel,

180

establishment of proper procedures of work between and within the

levels and managing inter-actions among and within the system
and the sub systems,
17.3.6 : FRAMEWORK OF MULTI-LEVEL PLANNING
The framework of multi-level planning, in the Indian context, is as
follows:
1. National Level : At the national level the Planning Commission
was established in 1950. It is the central, as well as the supreme
authority, in the sphere of planning. It is expected to undertake the
tasks of determining the plan priorities and broad allocation of
resources to the different undertaking planning for strategic
commodities, services required by the whole country and
international transactions. It is also entrusted with responsibility of
formulating and implementing the programmes related with the
betterment of the standard of living of the people.
2. Inter-state Level : The National Development Council,
established in 1953, serves as a link between the Union and the
States. The issues involving uniform policy, for the whole country
are decided by the Union government, the planning Commission
and the State governments. The Five Year Plans prepared by the
planning Commission are discussed and ratified by the National
Development Council.
3. State Level : Most states have evolved their planning machinery
during last three decades. They prepare state plans within the
framework of the five year plans. The State level planning is more
concerned with such activities as agriculture and allied activities
and infrastructure provision which will include irrigration, power,
roads, transport and provision of social services.
4. District Level : District level planning relates to the preparation
of the plans for the development of district, development projects
which may be located in the district minor and medium irrigation
schemes, small scale industries, agriculture and animal
hasbandary, provision of social services within the district.
5. Grassroots Level : The origin of the grass roots level planning
can be traced back to self-sufficient village community during the
ancient and medieval India. However, the village economy was
destroyed during the later eighteenth and nineteeth century by the
British rulers. During the pre-Independence period, the concept of
grass-roots planning was revived by the developmental
experiments at Martandam by Dr. Spencer, Shree Niketan of
Ravindranath Tagore and the constructive programme propagated
by Gandhiji. As a consequence hundreds of developmental projects
at the village level were undertaken by the Gandhian workers.
Gandhiji advocated the concept of Gram Swaraj, which in
planning terminology implies grass - roots planning.
In the post-independence period, the Community Development
Programme of rural development was launched on 2nd October,

181

1952. A new adminstrative structure - Development Block - was

evolved as it was felt that village was too small and district, for that
matter Taluka or Tehsil, was too large a unit to effectively
implement development programmes. Thus a development block
comprised of 60 to 75 thousand populations, living in 75 to 100
villages. Development machinery, headed by a Block Development
Officer and eight to ten village level workers was provided. There
was no specific reference to the block level planning but
developmental work was assigned to the grass root level entity.
The Study Team headed by Balwatrai Mehta recommended
democratic decentralisation, including the development and
planning and to provide pivotal role to the intermediate tier, i.e. the
Block level organization. Another significant aspect was the
recommendations regarding the Gram Sabha. The Gram Sabha,
the Village Assembly of the entire village population was expected
to take decisions regarding the developmental works to be
undertaken in the village. Thus grass roots level planning was ever
present in the thinking of planners; but owing to inadequacy of the
administrative structure, lack of funds and absence of
developmental awareness among the rural people, no serious effort
was made to practise grassroots level planning.

17.4 QUESTIONS
Write Notes on :
1. Right to information
2. E-Goverance
3. Decentralization

POLITICAL SCIENCE PAPER III

(Revised Course)
3 Con.42(a)-O7.

( REVISED COURSE )
( 3 Hours )

N.B.

JL-670

[ Total Marks : 100

(1) Attempt any five questions of which at least two

must be from each section.
(2) All questions carry equal marks.
(3) Tie the answer-books of two sections together.
Section I

1.
2.

4.
5.

Define Public Administration. Discuss its scope.

Discuss the contribution Maxileber to Public
Administration.
(a) New Public Management
(b) Good Governance
Explain about Legislative control over public
Administration.
Write short notes (any two) :(a) New Public Administration.
(b) Herbert simon on Decision making.
(c) Executive control over the Administration.
(d) Change nature of Public Administration.
Section II

6.
7.
8.
9.
10.

Explain the Significant features of the India

Administrative System.
What is budget? Discuss the main stages in the
Preparation of budget in India.
Explain the composition, role and functions of the Union
Public Service Commission.
Define Corruption. Discuss the problems of corruption
in administration. Suggest measures to minimize
corruption.
Write short notes (any two) :(a) Urban Local Government
(b) Comptroller and Auditor General of India.
(c) Public Accounts Committee.
(d) Right to Information.

183

(REVISED COURSE)
( 3 Hours )
N.B. (1)
(2)
(3)
1.
2.
3.
4.
5.

6.

[Total Marks:100

Attempt any five questions of which at least two must

be from each section.
All questions carry equal marks.
Tie the answer books of two sections together.
Section I
Define Public Administration? State the role and
importance of Public Administration in Modern State.
Explain the following concepts :(a) Comparative Administration.
(b) Development Administration.
Evaluate Herbertsimons views on the Theory of
Decision Making.
The entire administrative machinery comes under the
control of the Legislature. Discuss.
Write short notes on any two of the following :(a) New Public Administration
(b) Scope of Public Administration
(c) Changing nature of public Administration
(d) Good Governance
Section II
Discuss the provisions made in the constitution of India
with regard to India Administrative System.

7.

Critically analyze the process of recruitment to All India

Services.

8.

Financial Administration is one of the most important

aspects of Public Administration. Comment.

9.

Explain about Rural self Governance.

10. Write short notes (any two) :(a) Peoples Participation in Administration.
(b) Right to Information.
(c) Lok Adalat.
(d) Role of NGOs.

184

(REVISED COURSE)
( 3 Hours )
N.B. (1)
(2)
(3)

[Total Marks:100

Attempt any five questions of which at least two must

be from each section.
All questions carry equal marks.
Tie the answer books of two sections together.
Section I

1.

What is Public Administration? Explain its nature.

2.

Review Max Webers views on bureaucracy.

3.

Give a critical account of New Public Management ideology.

4.

Explain the Legislative and Judicial control over administration.

5.

Write short notes on any two of the following.

(a) Importance of public administration.
(b) McGregor The Human side of enterprise.
(c) Good Governance
(d) Hebert Simon and decision making.

6.

Section II
Explain the significant features of the Indian Administration
system.

7.

State the process of recruitment of higher Civil Services in

India.

8.

What is budget? Discuss the main stages in the preparation of

budget in India.

9.

Write on rural and urban local government in India.

10. Write short notes any

two

185