THE CONTEXT: In the wake of the 2024 elections, India’s government faces significant challenges in adapting its public administration to modern needs, revealing a gap between traditional bureaucratic practices and contemporary governance demands. Addressing these issues requires a nuanced understanding of public administration distinct from corporate governance, alongside strategic reforms.
THE ISSUES:
- Bloating of the Government: Despite the promise of “maximum governance, minimum government,” the government has expanded, leading to a realization that there are too few civil servants to serve a burgeoning population.
- Misconception about Lateral Entry: The government perceives lateral entry as a panacea for all administrative ills, even though public administration is far removed from corporate governance, with diverse objectives that change over time. The management of a corporate entity is based on clear and unchanging objectives, whereas public administration consists of a medley of departments or organisations dealing with diverse areas. The government needs to recognize that public administration is a complex system that cannot be managed like a corporate entity.
- Inadequacies in the Civil Service System: The problem lies with the civil service system, not with individual officers, as the system is hierarchical, rigid, and centralized, inconsistent with contemporary management philosophy. The assumption that the governmental system can be set right by importing corporate employees or appointing consultants experienced in corporate governance work is wholly misplaced.
- Need for Fundamental Change: The governmental system needs a fundamental change to flip into an output and outcomes mode, recognizing that individual officers can achieve dazzling results if given support and flexibility. The governmental system is a conglomeration of subsystems, and individual officers have achieved marvellous results within these subsystems when given support and flexibility. However, these results are often short-lived, surviving only as long as the officer continues in that position.
- Importance of Political Ownership: Political ownership at the central and state level is necessary for systemic change, along with the acceptance of states and the involvement of bodies like the NITI Aayog and the Commonwealth Secretariat. Empowered authorities headed by the PM and CM can drive change, as seen in the implementation of GST through interaction between states
- Misplaced Assumption about Corporate Employees: The assumption that importing corporate employees or appointing consultants experienced in corporate governance can set right the governmental system is wholly misplaced.
- Ignoring Constitutional Provisions: It would be mistaken to make the task of overhauling the system even more challenging by ignoring constitutional provisions for reservation. Ignoring constitutional provisions for reservation can make the task of administrative reforms even more challenging. The government needs to ensure that it addresses these provisions and works within the constitutional framework to bring about systemic change.
THE WAY FORWARD:
- Training and Orientation: Implement training programs to educate lateral entrants and existing civil servants on the differences between public administration and corporate governance. This can include workshops and seminars that highlight the unique challenges and objectives of public administration. Mission Karmayogi initiative focuses on capacity building for civil servants to improve their understanding of governance and policy implementation. Second ARC emphasizes the need for training civil servants to bring about behavioral and attitudinal changes, ensuring they are equipped to handle the nuances of public administration.
- Structured Lateral Entry Program: Establish clear guidelines for lateral entry, including transparent recruitment processes, defined roles, and responsibilities. This should involve a probation period where entrants are assessed for fit and effectiveness. UK’s Fast Stream Program recruits’ graduates into the civil service with a structured training and development path, ensuring they are well-integrated into the public sector. Baswan Committee suggested encouraging lateral entry to address personnel shortages, especially in large states facing deficits in IAS officers.
- Decentralization and Flexibility: Implement reforms to decentralize decision-making and allow more autonomy at local levels. This can reduce bureaucratic red tape and improve responsiveness. Australia implemented New Public Management reforms to enhance efficiency and accountability in the public sector, focusing on decentralization and performance measurement. Second ARC advocated for decentralization and reducing hierarchical rigidity to promote a more action-oriented bureaucracy.
- Political Ownership and Coordination: Use NITI Aayog as a platform for fostering collaboration between central and state governments, ensuring political ownership of reforms. The successful implementation of GST in India through cooperative federalism serves as a model for achieving political consensus on reforms.
- Learning from International Models: Study and adapt successful international models of public administration reform, such as those from New Zealand and Canada, focusing on efficiency and citizen-centric services. OECD’s Value for Money Initiative focuses on improving service delivery efficiency, which can be adapted to the Indian context. World Bank’s GIPAR Encourages countries to adopt whole-of-government approaches to improve policymaking and service delivery.
- Technological Integration and E-Governance: Leverage technology to streamline administrative processes, improve transparency, and enhance citizen engagement. e-Samiksha is a real-time online system for monitoring government decisions, improving accountability and efficiency. Hota Committee recommended using ICT to transform government processes, making them more accessible and accountable.
- Addressing Constitutional Provisions: Ensure that reforms respect constitutional provisions, such as reservations, while promoting merit-based recruitment and advancement. Surinder Nath Committee advocated for performance appraisals to focus on development and placement of officers in roles that best utilize their skills. Implement Performance-Based Appraisal systems that evaluate civil servants based on performance, ensuring fair and merit-based progression.
- Long-term Systemic Overhaul: Approach reforms as a long-term process, implementing changes incrementally to allow for adaptation and learning. New Zealand’s Public Sector Reforms Focused on gradual changes to improve efficiency and service delivery, serving as a model for India. OECD suggests focusing on quality and efficiency of services, which can guide India’s long-term reform strategy.
THE CONCLUSION:
By embracing structured reforms, political ownership, and international best practices, India can transform its public administration into a more efficient and responsive system. This transformation is essential for meeting the evolving needs of its diverse population and ensuring sustainable governance.
UPSC PAST YEAR QUESTIONS:
Q.1 Initially Civil Services in India were designed to achieve the goals of neutrality and effectiveness, which seems to be lacking in the present context. Do you agree with the view that drastic reforms are required in Civil Services. Comment 2017
Q.2 Has the Cadre based Civil Services Organisation been the cause of slow change in India? Critically examine. 2014
MAINS PRACTICE QUESTION:
Q.1 Critically analyze the challenges faced by the Indian administration system in the context of lateral entry and systemic rigidity. Discuss potential reforms that could enhance efficiency and responsiveness.
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