TOPIC : HOW TO MAKE THE INDIAN CIVIL SERVICE PERFORMANCE ORIENTED?

THE CONTEXT: In June 2022 the Government of India came up with the Agnipath Scheme for the armed forces of the country with a view to make these leaner forces without compromising their combat abilities. Voices from various segments of the society have also iterated their concurrence with the idea and even demanded a similar kind of scheme with regard to the civil services especially the All India Services (AIS).This article analyses this debate from the UPSC perspective.

THE ISSUE: Rapid changes are taking place around the world in terms of economy, urbanisation, climate change, pandemic, technological advancements (shock), and increased emphasis on local awareness and identity etc. The response time to adapt to such changes is much shorter now than it used to be. As instruments of public service, civil servants have to be ready to manage such changes. On the one hand, the perception is that they are wedded to the status-quoist approach and resist change while on the other hand, we see various examples where the civil servants have taken initiatives to bring the desired change in the positive direction. But such one-off incidents is not sufficient and we need to comprehensively remould our services to make them performance oriented without losing the welfarist side of the services.

WHAT AILS THE CIVIL SERVICES?

INDIAN BUREAUCRACY IS ALLEGED TO BE STATUS QUOIST

• As instruments of public service, civil servants have to be ready for change. The common experience, however, is that they resist changes as they are wedded to their privileges and prospects and thereby, have become ends in themselves

o   For example, the 73rd and 74th Amendments to the Constitution have brought about major changes. Rural and urban local governments have been enabled to become institutions of self-government.

However, the intended vision has not been achieved, due to the reluctance on the part of the civil servants to accept the changes in control and accountability as well as the altered roles and responsibilities.

RULE-BOOK BUREAUCRACY

• By the rule book bureaucracy, it meant mainly following the rules and laws of the book without taking care of the actual needs of the people.
• Due to rule book bureaucracy, some civil servants have developed the attitude of’ bureaucratic behaviour’, which evokes issues like red-tapism, the complication of procedures, and the mal-adapted responses of ‘bureaucratic’ organisations to the needs of the people.

POLITICAL INTERFERENCE

• Civil servants at the regional level work in coordination with the political representative. They both are required to serve the common people by bringing development, welfare, well-being and peace to society.
• The political representative for the sake of fulfilling the populist demand influences the functioning of administrative officials. Hence, an administrative official has to adhere to the will of the political master.
• This interference sometimes leads to issues like corruption, and arbitrary transfers of honest civil servants. Also, this led to substantial inefficiency where the vital positions are not held by the best officers and ultimately this can lead to institutional decline.

STRUCTURAL ISSUES

Civil services have been facing many structural issues

• Generalist officers: Civil Service is conceived primarily to deliver the core functions of the state such as maintenance of law and order and implementation of government orders.
• However, with changing needs with the advent of globalisation, and economic reforms, the role of the state has changed. Therefore, there are new challenges due to technological evolution (for example cyber security). Thus, there is a higher demand (of specialist officers) for domain knowledge at the policy level.
• Ensuring transparency and accountability along with participatory and representative decision-making are some issues that need to be addressed.
• There are instances of lack of employment opportunities in some public services, while there are many vacancies in others.

COMPETING NOT COLLABORATING

• Contrary to public perception, most AIS officers do not collaborate as professionals. They are often competing with each other, questioning almost everything that the other AIS officer brings to them. This is indeed strange, but that is how it is. This has led to enormous delays, and decision-making has suffered. Moreover, an AIS officer rarely sticks his neck out to defend a junior colleague.
• Quite a few are protecting their backsides and looking at a post-retirement job in the government. The AIS could have evolved as a group with a distinctive ethos wherein the constituents understood and helped each other. But it has not happened.

HYBRID ROLE IDENTITY

• In recent years the notion of identity has given rise to a rich debate in nearly every share of life. The focus has been, for instance, on the desire of individuals to conform to shared norms in society, the cognitive aspects of norms or the sense of belonging.
• In such a case, a bureaucrat is a part of (sometimes large) organizations and he gets accustomed and exposed to certain perceptions and preferences of the organization. Hence, he acts not only as a rational actor on his own account but also as an en-cultured actor, whose perception of a supposed “good policy” is deeply influenced by the social context that he is part.

STEPS TO IMPROVE THE PERFORMANCE

RECRUITMENT

• Rationalization and harmonization of services: The existing 60 plus separate civil services at the central and state level needs to be reduced through rationalization and harmonization of services. [Recruits should be placed in a central talent pool, which would then allocate candidates by matching their competencies and the job description of the post. Concomitantly, the number of exams for civil services should ideally be brought down to one with all India ranking. States may also be encouraged to use this pool for recruitments.]
• Encourage lateral entry: Inducting specialists at higher levels of government will provide much-needed expertise.
• Outsource service delivery: Efforts need to be made to outsource service delivery to reduce dependence on the administrative machinery. Research is needed to identify possible services to be outsourced; various PPP models should be explored to determine the best possible mode of outsourcing.

TRAINING

• Training is the critical component of human resource development. The current systems of training for civil services do not adequately reflect changes in the socio-economic scenario and the emerging new challenges.  The reform agenda should comprise mandatory training for all civil servants at the induction stage combined with mid-career training imparting them with the required domain knowledge.
• There is also a need to inculcate ethical underpinning in the civil servants by implementing the Code of Ethics.
• Mid-career exams/skill assessments might be undertaken to evaluate and decide on future postings.
• Monitoring and overseeing mechanisms shall also be revitalised reaping the knowledge and experience of various institutes, the corporate sector, civil society etc.

EVALUATION

• Institute goal setting and tracking: There is an inherent need to set key responsibility/focus areas and progressively reduce discretionary aspects to evaluate civil servants.
• Institute the online Smart Performance Appraisal Report Recording Online Window (SPARROW) template in all central and state cadres. [The online portal was introduced for the Indian Administrative Service Officers in 2011. Through this portal, the IAS officers could record their performance appraisals on time and without delay. Now it has been extended to Group B and C officers also. Most recently in June 2022, the newly merged Municipal Corporation of Delhi (MCD) also announced to adopt a comprehensive online system for its employees to file annual performance appraisal reports.]
• Compulsory retirement for underperforming officers: Develop benchmarks to assess the performance of officers and compulsorily retire those deemed unable to meet the benchmarks.
• Incentivization: Review existing schemes and introduce new schemes of incentives for extraordinary performance.

E-INITIATIVES

• Robust Vigilant Mechanism: Strengthen institutional mechanisms for prevention and detection of corruption. Thus, there is a need to review existing vigilance mechanisms.
• There is a need to strengthen the implementation of a Centralized Public Grievance Redressal and Monitoring System (CPGRAMs).
• Implementation of e-Office: Implementation of e-Office may be expedited in all ministries/ departments; all states/UTs may also be encouraged to adopt it.
• Prompt delivery of services: Every department should seek to simplify their processes to cut administrative delays and ensure participatory feedback mechanisms for efficient service delivery.

REFORMS IN THE RECENT PAST TO IMPROVE THE PERFORMANCE OF CIVIL SERVICES

REFORM

BENEFITS

LATERAL ENTRY

• Lateral recruitment is aimed at achieving the objective of bringing in fresh talent into the system, which will create new energy to the system.
• The Second Administrative Reforms Commission too had recommended lateral entry at senior positions.
• Indian Administrative Service (IAS) officers have little expertise in subjects like civil aviation, defence, coal, shipping, etc., as the states where the IAS officers spend most of their early career do not deal with these subjects. Lateral entry will make the Indian administration also match the global standards.
• The US has a system of lateral entry, where about 4000 new officers are appointed as “political appointees” with the inauguration of a new president, allowing incoming presidents to work on their agenda more effectively. India had rejected the USA model – adopting the British model of lifetime ‘neutral’ civil service where civil servants remain politically neutral and formulate technically sound policies according to the will of the political executive within the framework of the constitution.
• Lateral entry opens a small window to get the best from the American and British systems and puts pressure on the system to reform and perform.

NATIONAL PROGRAMME FOR CIVIL SERVICE CAPACITY BUILDING  – MISSION KARMAYOGI

• It is aimed at better service delivery to the public “governance, performance, and accountability”. lt promises a shift from rules to roles, silos to coordination, interdisciplinary movements, and a continuous capacity-building exercise.
• The focus of the reform is the creation of a ‘citizen-centric civil service’ capable of creating and delivering services conducive to economic growth and public welfare.
• It aims for learning resources from the best institutions and practices from across the world while retaining Indian sensibilities and culture.
• The mid-career training will now be available to all government staff instead of the top officers alone, and their profile and assessment will be continuous.
• If there is a need for some special appointment, then authorities can do so by looking at the profile of the officers with the help of technology instead of depending on perceptions.
• Accordingly, Mission Karmayogi shifts the focus from “Rule-based training to Role-based training”. Greater thrust has been laid on behavioural change.

THE PRESENT DEBATE OF THE AGNIVEER TYPE OF SCHEME FOR ALL INDIA SERVICES

WHY AGNIPATH LIKE SCHEME FOR AIS

• There is a huge sense of dissatisfaction over the performance of the civil services, particularly AIS. For example, the people are generally dissatisfied with the performance of the police and there are credible complaints about its brutality, third-degree methods and extra-judicial killings.
• It has been noticed that once an officer is selected for the AIS, he/she develops a smug attitude that his/her career for the next 30/35 years is now secure. Therefore, there is a lack of pressure to perform, an incentive to innovate, and a desire to excel.
• Senior officers of the IAS and IPS have gone to the Supreme Court for reforms in the civil services and the police.
• The judiciary has, from time to time, given directions for reforms but these have not been implemented in letter and spirit.
• In the last few decades, the AIS have grown in size and have become very, very top-heavy. There are a number of officers who are holding top positions but have very little work to do. Therefore, they are frustrated and look for politicians to get a top posts in the bureaucratic mainstream.

WHAT SHOULD BE KEPT IN MIND

• The law-and-order problems have become far more complex and people are not happy with the police. But, still, abolition of police or rather an infusion of trained civilians in the police force is not an option as it might result in lawlessness and chaos. Thus, it is imperative to not only just increase the efficiency of trained police personnel but also increase their strength.
• The AIS have rendered excellent services to the country despite the severe constraints under which the officers function.
• To cope with the increasing responsibilities, there has been a steady expansion of civil services. More training and reorientation in the service approach is more needed than to have Agniveer kind of entrants.
• Government activities today cover a much wider spectrum. Now the welfare schemes are being undertaken on a massive scale. To cope with the increasing responsibilities, there has been a steady expansion of the civil services and reducing the strength in not going to be much useful, we need both the strength and quality of service personnel.

PROPOSED STRUCTURE OF AGNIPATH IN AIS

• Strict review of the performance of AIS officers: The objective of the reviews should be to weed out 25 per cent of officers at the first stage (after 15 years of service), 10 per cent of officers at the second stage (after 25 years of service) and 5 per cent of officers at the third stage (after 30 years of service)
• Reason for Weeding out: Weeding out should be for
• poor performance,
• charges of corruption,
• any other misconduct of a serious nature, or
• For being physically unfit.
• Impartial Screening: Screening at each stage will have to be very rigorous and the mechanism to do so must be impartial. It will have to be doubly ensured that the officers are not victimised for political reasons.
• The officers may be given copper/silver/golden handshakes at the three stages.

Benefits of this scheme for AIS

• The periodic trimming of services would ensure that officers become performance-oriented, and acquire new skills and a flair for innovation in administration. The complacency and smugness would disappear in a majority of cases.
• The bureaucratic top would become lighter leading to efficiency and better coordination.

OTHER SUGGESTED REFORMS

1.  The paper, titled “The Indian Administrative Service Meets Big Data” in 2016 recommended: (South Asia Program at the Carnegie Endowment for International Peace)

• Data: The DoPT should use data on civil servants’ abilities, education, and training when placing officers early in their careers. As officers gain experience, performance metrics can inform key decisions about promotion and allocation.
• Lateral Exit: officers deemed unfit for further service at certain career benchmarks are compulsorily retired through a transparent and uniform system of performance review.

2. Sarkaria Commission recommended:

• Generalists should yield place to greater specialization in areas of public administration.
• The minimum period of deputation under union government should be laid down
• Set up Advisory council for Personnel Administration: for regular consultation between Union and state on AIS management.

3. 2nd ARC recommendations:

• A system of two intensive reviews one at 14 years of service and the other at 20 years. And for a new appointment, the period of employment shall be for 20 years
• It has identified 12 domains for specialization: general administration, urban development, etc.
• Establish National institutes of Public Administration and graduates from it and other selected universities will be eligible to appear for the Civil service examination.
• It can create a large pool of aspiring civil servants as well as enable serving bureaucrats to attain a deep knowledge of the country’s political economy, increased domain expertise, and improved managerial skills
• The age of entry for general candidates is 21-25 years and a maximum of three attempts.

4. Hota committee has recommended:

• Fixed tenure of at least 3 years for an officer of higher civil service along with annual performance targets.
• A civil service board for all decisions regarding transfer posting and promotions

5.  Supreme court in 2013(TSR Subramanian case): All actions must be taken on basis of written communication as oral directives undermine the credibility of the order

6.  A Parliamentary panel has recommended the deputation of IAS and IPS officers in the private sector to bring in domain expertise and competition.

THE ANALYSIS OF THE ISSUE

Present day training/learning landscape for AIS is diverse and fragmented with inconsistencies in training priorities by various training institutions with a multiplicity of training curricula, leading civil servants to think departmentally and in silos. Due to this, there is a lack of a shared understanding of India’s national developmental aspirations and needs. While courses are offered in patches for civil servants, there’s an absolute lack of a life-long learning environment. There is a need to view training and learning as a continuous process. As the Indian economy grows it will get more complex to govern. Also, there is increasing use of complex technologies in governance and public service delivery. Therefore, governance capacities and technical competencies of government employees will have to be enhanced proportionately. Starting with lateral entry to Mission Karmyogi to now much talked about Agniveer kind of scheme for AIS is a welcome step in the right direction but the tagged complexities and concerns with each of the initiatives must be addressed to keep the relevance of the schemes intact.

THE CONCLUSION: Capacity augmentation of Civil Servants plays a vital role in rendering a wide variety of services, implementing welfare programs, and performing core governance functions. A transformational change in Civil Service Capacity is proposed to be affected by organically linking the transformation of work culture, strengthening public institutions, and adopting modern technology to build civil service capacity with the overall aim of ensuring efficient delivery of services to citizens. The future of the country cannot be progressive without a reformed bureaucracy. Civil servants are uniquely positioned to play a role in lifting more than 170 million out of poverty into prosperity and the new suggested Agniveer kind of scheme might help in bringing the much-needed behavioural change in the serving officers and foster a sense of responsible service in the aspiring ones.

QUESTIONS TO PONDER

1. An Agnipath scheme for the AIS will help to remove complacency and inefficiency in bureaucracy. Comment
2. It has been noticed that once an officer is selected for the AIS, he develops a smug attitude. How can the proposed Agniveer kind of reforms for AIS can help in bringing behavioural changes in the serving officers?

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