UPSC Mains Answer PYQ 2019: Public Administration Paper 2 (Section- A) | Public Administration Optional for UPSC (Notes) PDF Download

Q.1. Answer the following Questions in about 150 words each: (10 x 5=50)

• In the text of Arthashastra, Kautilya (also known as Chanakya), an ancient Indian philosopher, and advisor to the Mauryan emperor Chandragupta Maurya, presents a comprehensive treatise on statecraft, economics, and governance. The Arthashastra provides a detailed analysis of the various aspects of the state, its administration, and the role of the king. It offers insights into the state's responsibilities and the ways in which it can be effectively governed. The statement "the State is neither a police State nor merely a tax gathering State" highlights the balanced approach Kautilya suggested for a successful and prosperous state.
• In this context, the term "police State" refers to a state where the primary focus is on maintaining law and order through strict surveillance, control, and force. In such a state, the ruler exercises absolute power, and the rights and freedoms of the citizens are often compromised. On the other hand, a "tax gathering State" is one where the chief goal is to maximize revenue collection, often at the expense of the welfare and development of its people.
• Kautilya's Arthashastra emphasizes that a successful state must strike a balance between these two extremes. It outlines the state's key responsibilities, which include maintaining law and order, protecting its citizens, providing public goods and services, and ensuring the welfare and development of its people. The state must also collect taxes to generate revenue for financing these responsibilities. However, Kautilya emphasizes that the state should not be overly focused on either law enforcement or tax collection at the expense of the other aspects of governance.

The importance of balance in governance can be illustrated through various examples:

• Maintaining law and order: A state must ensure the safety and security of its citizens by maintaining law and order. However, this should not lead to a repressive police State where individual freedoms are curtailed. Kautilya highlights the importance of a well-trained and disciplined police force that operates within the bounds of law and justice.
• Tax collection and revenue generation: The state needs to generate revenue through taxes to finance its various responsibilities. However, excessive taxation can lead to the impoverishment of the citizens and hinder economic growth. Kautilya emphasizes a fair and efficient tax system that takes into account the ability of the citizens to pay and does not overburden them.
• Public goods and services: The state is responsible for providing essential public goods and services such as infrastructure, education, and healthcare. These services are crucial for the well-being of the citizens and the overall development of the state. However, the state must also ensure that the provision of these services does not lead to excessive spending and fiscal irresponsibility.
• Welfare and development: The state has a responsibility to ensure the welfare and development of its citizens. Kautilya emphasizes the importance of policies and programs that promote social equity, economic growth, and overall prosperity. However, the state must also ensure that it does not become overly paternalistic and stifle individual initiative and enterprise.

In conclusion, Kautilya's Arthashastra presents a nuanced and balanced approach to governance that emphasizes the importance of maintaining a balance between the various responsibilities of the state. The statement "the State is neither a police State nor merely a tax gathering State" highlights this approach and underscores the need for a state to avoid the extremes of repression and excessive taxation in order to ensure the welfare and development of its citizens.

(b) The economic reforms have significantly infringed the basic values and spirit of the Indian Constitution. Examine.    (10 Marks)

The economic reforms in India, initiated in the early 1990s, have had a substantial impact on the Indian economy and society as a whole. These reforms, which included liberalization, privatization, and globalization, aimed at opening up the Indian economy to the world and facilitating rapid economic growth. While these reforms have certainly contributed to India's impressive economic growth, they have also raised concerns over the infringement of the basic values and spirit of the Indian Constitution.
The Indian Constitution lays down certain basic values that underpin the country's social, economic, and political systems. These values include social justice, equality, and the welfare of the people. In this context, it is essential to examine whether the economic reforms have been consistent with these values.

• Social justice: The economic reforms have led to a significant reduction in poverty levels in India, which can be seen as a positive development in terms of promoting social justice. However, the reforms have also led to increasing income inequality in the country, with the rich getting richer and the poor struggling to make ends meet. This widening income gap has, in many ways, undermined the spirit of social justice enshrined in the Constitution.
• Equality: The Constitution of India guarantees equality before the law and prohibits discrimination based on various grounds. However, the economic reforms have not always been consistent with this principle. For instance, the privatization of public sector enterprises has led to a situation where certain sections of society, particularly those belonging to the lower income strata, have found it difficult to access essential services like healthcare and education. This, in turn, has exacerbated existing social inequalities in the country.
• Welfare of the people: The Constitution of India places a strong emphasis on the welfare of the people, particularly in terms of providing them with a decent standard of living and access to basic amenities. However, the economic reforms have often been criticized for prioritizing economic growth over social welfare. For instance, the government's focus on attracting foreign investment and promoting the private sector has sometimes come at the expense of investing in social sectors like healthcare, education, and social security, thereby compromising the welfare of the people.
• Federalism: The Indian Constitution envisages a federal structure of governance, where the central and state governments share powers and responsibilities. However, the economic reforms have resulted in a greater centralization of decision-making, particularly in areas like fiscal policy and resource allocation. This has, to some extent, weakened the federal structure and undermined the autonomy of state governments.
• Secularism: The Indian Constitution lays down the principle of secularism, which implies that the state should not favor any particular religion or religious group. However, the economic reforms have been criticized for indirectly promoting communalism and religious discrimination. For instance, the emergence of a market-driven economy has led to the growth of consumerism and the commodification of religious symbols and practices, thereby reinforcing religious identities and divisions in society.

In conclusion, while the economic reforms have undoubtedly contributed to India's rapid economic growth, they have also raised some serious concerns regarding the infringement of the basic values and spirit of the Indian Constitution. It is important for policymakers to ensure that the benefits of economic growth are equitably distributed and that the country's constitutional principles are upheld in the process of economic development.

(c) Macaulay’s ideas on Indian Civil Service corresponded to the elite theory of bureaucracy, which continue to persist. Do you agree? Justify.    (10 Marks)

Yes, I agree that Macaulay’s ideas on the Indian Civil Service (ICS) corresponded to the elite theory of bureaucracy, and some aspects of these ideas still persist in the modern Indian Administrative Service (IAS).

• The elite theory of bureaucracy is a concept that suggests that a small group of highly educated and skilled individuals control the administration and decision-making process in an organization or a government. Macaulay’s ideas on the ICS were based on the premise of creating a class of elite administrators who were highly educated, competent, and dedicated to the service of the British Empire in India.
• Macaulay's Minute on Indian Education (1835) emphasized the importance of creating a class of people who would be "Indian in blood and color, but English in taste, in opinions, in morals, and in intellect." This idea was aimed at creating a merit-based administrative system that would be efficient in governing the vast Indian subcontinent.

In this context, the following points justify the correspondence between Macaulay's ideas and the elite theory of bureaucracy:

Creation of an elite class: Macaulay's ICS aimed at creating an exclusive class of bureaucrats who would be selected through a rigorous process of competitive examinations. This was done to ensure that only the most competent and efficient individuals would be able to join the ICS.

• Meritocracy: Macaulay's system emphasized the importance of merit-based selection to ensure the efficiency of the bureaucracy. The competitive examinations were designed to test the intellectual capabilities of the candidates, and only those who performed exceptionally well were selected for the ICS.
• Training and grooming: The selected candidates were given extensive training and grooming to ensure that they were well-versed in the art of administration and governance. This was aimed at creating a group of highly skilled and competent bureaucrats who would be able to effectively manage the affairs of the British Empire in India.
• Loyalty to the British Crown: One of the primary objectives of Macaulay's ICS was to create a bureaucracy that would be loyal to the British Crown and dedicated to the service of the empire. This was essential for maintaining the stability and integrity of the British rule in India.

Some aspects of Macaulay's ideas continue to persist in the current Indian Administrative Service (IAS), which is the successor of the ICS:

• Merit-based selection: The IAS officers are selected through a competitive examination conducted by the Union Public Service Commission (UPSC), which is aimed at ensuring that only the most competent and deserving candidates are selected for the service.
• Training and grooming: The selected IAS officers undergo extensive training at the Lal Bahadur Shastri National Academy of Administration (LBSNAA) and other specialized institutions to ensure that they are well-equipped to handle the challenges of administration and governance in modern India.
• Elite status: The IAS is still considered an elite service in India, and its officers occupy some of the most prestigious and powerful positions in the Indian bureaucracy.

In conclusion, Macaulay's ideas on the Indian Civil Service were based on the elite theory of bureaucracy, which aimed at creating a highly competent and efficient administrative system to govern India under British rule. Some aspects of these ideas continue to persist in the modern Indian Administrative Service, which is the successor of the ICS.

(d) There has been an opinion that the ethos of Indian Judicial System continue to be colonial. Suggest measures for raising the level of judicial excellence for achieving speedy justice.    (10 Marks)

The Indian Judicial System, since its inception, has been influenced by the colonial legacy of the British era. This has often led to criticisms that the ethos of the Indian Judicial System is still colonial in nature. However, it is essential to strengthen the judicial system for achieving speedy justice and ensuring the rule of law. Here are some measures that can be adopted for raising the level of judicial excellence in India:

• Judicial Reforms: Comprehensive judicial reforms are needed to address the issues plaguing the judiciary. These reforms should aim at improving the efficiency, transparency, and accountability of the judicial process. This can be achieved by introducing modern management techniques, technology, and performance evaluation systems for judges and other court officials.
• Strengthening the Judicial Infrastructure: Adequate infrastructure, such as courtrooms and facilities for judges, lawyers, and litigants, should be provided. This can help address the issue of overcrowded courtrooms and improve the overall functioning of the judiciary. Additionally, technological advancements should be utilized to streamline court processes and reduce delays.
• Timely Filling of Judicial Vacancies: The issue of judicial vacancies should be addressed on a priority basis. This can be achieved by streamlining the appointment process and ensuring a transparent and merit-based selection of judges. This will help in reducing the backlog of cases and improve the efficiency of the judicial system.
• Legal Education and Training: Legal education in India should be reformed to produce competent and skilled legal professionals. This can be achieved by revamping the curriculum and focusing on practical training, legal ethics, and professionalism. Additionally, adequate training should be provided to judges and other legal professionals to equip them with the necessary skills and knowledge to deliver speedy justice.
• Alternative Dispute Resolution (ADR) Mechanisms: Encouraging the use of alternative dispute resolution mechanisms like mediation, arbitration, and conciliation can help in reducing the burden on courts and provide speedy justice to litigants. The government should invest in creating awareness about ADR mechanisms and providing the necessary infrastructure and resources for their effective functioning.
• Legal Aid and Awareness: Legal aid should be made accessible to all, particularly to the marginalized sections of society. This can be achieved by strengthening the legal aid mechanism through adequate funding and infrastructure. Additionally, legal awareness programs should be conducted to educate people about their rights and the functioning of the judicial system.
• Judicial Accountability: The judiciary should be made more accountable and transparent to ensure public trust in the system. This can be achieved by setting up an independent and effective mechanism to address complaints against judges and by making the appointment process more transparent.
• Separation of Investigation and Prosecution: To ensure impartiality and prevent miscarriage of justice, the investigation and prosecution processes should be separated. This will help in reducing the influence of any external factors on the judicial process and ensure fair trials.

In conclusion, the Indian Judicial System needs to shed its colonial legacy and adopt modern practices to ensure speedy justice and uphold the rule of law. By implementing the measures mentioned above, India can move towards establishing a more efficient and effective judicial system.

(e) Various commissions have reiterated the crucial role of the Governor in Indian system of governance, but the successive governments have not heeded to make the Governor’s office apolitical. Examine with examples.    (10 Marks)

The post of the Governor in the Indian system of governance has been a subject of debate and discussion since the inception of the Indian Constitution. The role of the Governor is crucial in maintaining the federal structure of the country, preserving the Constitution, and ensuring the smooth functioning of the state governments.
Various commissions and committees, such as the Sarkaria Commission (1988), the M. M. Punchhi Commission (2010), and the National Commission to Review the Working of the Constitution (2002), have emphasized the need for making the Governor's office apolitical. However, successive governments have not taken adequate steps to address this issue, leading to several instances of the Governor's office being used for political purposes.
Some examples highlighting the politicization of the Governor's office in India are as follows:

• The appointment of Governors: The Constitution of India does not provide explicit guidelines for the appointment of Governors, except the requirement that the President appoints them. This has led to the practice of political parties appointing their loyalists as Governors when they come to power. For example, in 2014, when the NDA government came to power, they replaced several Governors appointed by the previous UPA government.
• Discretionary powers: The Governor has discretionary powers to invite the leader of the majority party or a coalition to form the government in case of a hung assembly. However, there have been instances where Governors have allegedly misused this power for political gains. For example, in the Karnataka Assembly elections in 2018, the Governor invited the BJP, which had the highest number of seats but not a majority, to form the government. However, the Congress-Janata Dal (Secular) alliance had a clear majority but was not given the opportunity to form the government.
• Dissolution of State Assemblies: The Governor has the power to dissolve the State Assembly if he/she believes that the government cannot function according to the provisions of the Constitution. This power has been misused by Governors in the past to dissolve assemblies prematurely, allegedly to favor their political parties. For instance, in 1980, the then Governor of Uttar Pradesh dissolved the state assembly after the Congress party lost power in the center, leading to the imposition of President's rule.
• Imposition of President's Rule: The Governor can recommend the imposition of President's rule in the state if the constitutional machinery fails. However, this power has been frequently misused for political reasons. For example, in 2016, the then Governor of Uttarakhand recommended President's rule in the state, citing a constitutional crisis. The opposition claimed that the Governor's decision was politically motivated, as the ruling Congress party was facing internal strife.

To make the Governor's office apolitical, the following steps can be taken:

• Clear guidelines for the appointment of Governors, ensuring that they have no political affiliations and are eminent persons with experience in public life.
• A fixed tenure for Governors, which is not subject to the whims of the central government, ensuring stability and independence in functioning.
• Establishing a neutral and impartial mechanism for the exercise of discretionary powers, such as appointing a government in a hung assembly and dissolving the state assembly.
• Limiting the Governor's power to recommend President's rule, by making it mandatory to consult a committee consisting of legal and constitutional experts before making such a recommendation.

In conclusion, the office of the Governor plays a vital role in the Indian system of governance. However, successive governments have not taken adequate steps to make this office apolitical, leading to several instances of its misuse. It is high time that the central government takes concrete steps to depoliticize the Governor's office and strengthen the federal structure of the country.

Q.2.(a) Article 356 acts “very much like the proverbial bolt from the blue ... without giving an opportunity or notice to the State Government to correct its alleged shortcomings”. This phenomenon not only undermines the autonomy of the State Government, but also demeans the status of the President of India. Critically analyze.    (20 Marks)

Article 356 of the Indian Constitution deals with the imposition of President's Rule in a state. It is invoked when the President of India, on the receipt of a report from the Governor of the State, is satisfied that the government in that state is not functioning according to the provisions of the Constitution. In such a scenario, the President assumes the functions of the State Government and the powers vested in the Governor or any other executive authority in the State.

Critics of Article 356 argue that its invocation often acts as a "bolt from the blue" because it can be imposed without giving the state government an opportunity to respond to the alleged shortcomings or rectify them. This can undermine the autonomy of the state government and demean the status of the President of India in the following ways:

• Disregard for federalism: The Indian Constitution is founded on the principle of federalism, which implies a division of powers between the central and state governments. Article 356, by allowing the central government to unilaterally impose President's Rule in a state, can be seen as a violation of this federal principle, as it undermines the autonomy and authority of the state government.
• Arbitrary use of power: The invocation of Article 356 has often been criticized for being arbitrary and politically motivated. For instance, it has been used by the central government to dismiss state governments led by opposition parties, thereby enabling the central government to extend its political control over states. This not only undermines the autonomy of the state government but also raises questions about the impartiality of the President, who is supposed to act as the guardian of the Constitution.
• Lack of accountability: Article 356 does not provide any mechanism for the state government to challenge the imposition of President's Rule or seek redress for the alleged shortcomings. This lack of accountability can create an environment where the central government can abuse its powers without any checks and balances, thereby undermining the federal structure of the Indian Constitution.
• Judicial intervention: The Supreme Court of India, in the landmark S.R. Bommai vs Union of India case (1994), laid down certain guidelines to curb the misuse of Article 356. The court held that the imposition of President's Rule is subject to judicial review and that the President's satisfaction must be based on relevant material and not be arbitrary or mala fide. However, despite this judgment, instances of misuse of Article 356 continue to occur, raising questions about the efficacy of judicial intervention in safeguarding the autonomy of state governments.

In conclusion, while Article 356 is an essential tool to ensure the smooth functioning of the state governments in accordance with the provisions of the Constitution, its misuse can have serious implications for the federal structure of India. The need of the hour is to evolve a more transparent and accountable mechanism for invoking Article 356, which respects the principles of federalism and upholds the dignity of the President's office.

(b) Public Sector Undertakings were expected to take the Indian economy to the ‘commanding heights’, instead the successive governments have been pushing for disinvestment. Critically examine how the scenario has changed over the years.    (20 Marks)

• Public Sector Undertakings (PSUs) were established in post-independence India with the objective of achieving self-reliance, rapid economic development, and promoting equity and social justice. They were expected to take the Indian economy to the 'commanding heights,' as envisioned by the first Prime Minister of India, Jawaharlal Nehru. However, over the years, the economic scenario has changed, and successive governments have been pushing for disinvestment in PSUs.
• Initially, PSUs played a crucial role in creating a strong industrial base in India. They laid the foundation for the growth of industries like steel, power, telecommunications, heavy engineering, and fertilizers. PSUs were also responsible for generating employment opportunities and providing essential goods and services at affordable prices.

However, with time, several factors contributed to the decline in the performance and relevance of PSUs. Some of these factors are:

• Inefficient management: PSUs were often plagued by bureaucratic red-tapism, which led to delays in decision-making and implementation of projects. Furthermore, many PSUs were overstaffed, leading to high wage bills and low productivity.
• Political interference: PSUs were often used as instruments for political patronage, which led to nepotism and corruption. Political interference also resulted in the appointment of inefficient managers and board members.
• Competition from the private sector: The liberalization of the Indian economy in the 1990s led to increased competition from the private sector. Many PSUs could not adapt to the changing business environment and lost market share to more efficient private companies.
• Financial burden: The poor performance of several PSUs led to mounting losses and an increased financial burden on the government. The government had to infuse capital into these companies to keep them afloat, which diverted resources from more critical sectors like health, education, and infrastructure.

Recognizing these issues, successive governments have been pushing for disinvestment in PSUs. Disinvestment refers to the sale of shares of PSUs to private investors, with the objective of reducing the government's stake in these companies. The rationale behind disinvestment is to:

• Improve efficiency: Disinvestment can lead to increased competition, better management practices, and higher efficiency in PSUs.
• Reduce fiscal burden: By disinvesting in loss-making PSUs, the government can save resources and allocate them to more critical sectors like health, education, and infrastructure.
• Generate revenue: Disinvestment can serve as a source of revenue for the government, which can be used to fund development projects and reduce fiscal deficits.
• Encourage private sector participation: Disinvestment can help in promoting private sector participation in the economy, which can lead to higher investments, job creation, and economic growth.

Over the years, the government has disinvested in several PSUs like VSNL, BALCO, and Hindustan Zinc, among others. The disinvestment process has also been accompanied by strategic sales, where the government sells its stake to a strategic partner who can bring in technical expertise, better management practices, and financial resources.
However, the disinvestment process has faced several challenges, such as political opposition, resistance from trade unions, and the lack of a clear policy framework. Moreover, concerns have been raised about the loss of national assets and the potential negative impact on employment and social objectives.

In conclusion, while PSUs were expected to take the Indian economy to the 'commanding heights,' their declining performance and the changing economic scenario have led successive governments to push for disinvestment. While disinvestment can have several benefits, it is essential to ensure that the process is transparent, well-planned, and takes into consideration the interests of all stakeholders, including employees and the public.

(c) Emerging developmental aspirations of the society necessitate the constitutional amendment to change the present safeguards available to the civil servants. Evaluate the pros and cons of such amendment.    (10 Marks)

Pros of Constitutional Amendment:

• Greater Accountability: By amending the constitutional safeguards available to civil servants, the government can ensure greater accountability and transparency in the functioning of the bureaucracy. This could be achieved by introducing performance-based appraisals, stricter disciplinary action, and transparency in promotions and transfers.
• Reduction of Red-Tape: The current safeguards often lead to excessive red-tape and delays in decision making. The amendment can help streamline processes and reduce red-tape, leading to faster and more efficient public service delivery.
• Flexibility in Hiring and Firing: The amendment can provide the government with greater flexibility in hiring and firing civil servants. This can lead to better human resource management, with the government being able to recruit and retain the best talent in the bureaucracy.
• Encouragement of Meritocracy: The amendment can help promote a merit-based system for promotions and transfers, replacing the existing seniority-based system. This can lead to a more efficient and merit-based bureaucracy.
• Improved Service Delivery: With civil servants being more accountable and efficient, the overall quality of public service delivery can improve, leading to better satisfaction among citizens.

Cons of Constitutional Amendment:

• Threat to Political Neutrality: The removal of certain safeguards can expose civil servants to political pressures, thereby compromising their neutrality and impartiality. This can lead to the politicization of bureaucracy, which can have detrimental effects on the functioning of government institutions.
• Job Insecurity: The amendment may lead to job insecurity among civil servants, as they may be more vulnerable to arbitrary dismissals and transfers. This can adversely affect their morale, leading to reduced efficiency and effectiveness in their work.
• Risk of Corruption: With the fear of being dismissed, civil servants may be more susceptible to corruption and unethical practices, as they may look for alternative sources of income to secure their future.
• Loss of Institutional Memory: Frequent hiring and firing of civil servants may lead to a loss of institutional memory, as experienced officials are replaced by new recruits. This may negatively impact the functioning of government institutions, as officials may lack the necessary experience and knowledge to perform their duties effectively.
• Resistance from Civil Servants: The amendment may face strong resistance from civil servants, as they may perceive it as an attempt to undermine their security and autonomy. This can lead to protests and strikes, disrupting the normal functioning of government institutions.

In conclusion, while there are potential benefits to amending the constitutional safeguards available to civil servants, it is essential to carefully consider the possible negative consequences. Any such amendment must be approached with caution, ensuring that the delicate balance between accountability and autonomy of civil servants is maintained, while also protecting their political neutrality and commitment to public service.

Q.3.(a) “Strong PMO is anti-thesis to the feature of collective responsibility of Council of Ministers.” Examine the issues in relation to the position of PMO vis-a-vis Council of Ministers in the light of this statement.    (20 Marks)

• The statement suggests that a strong Prime Minister's Office (PMO) undermines the principle of collective responsibility of the Council of Ministers. To examine this issue, we need to understand the roles and functions of both the PMO and the Council of Ministers and analyze the impact of a strong PMO on the functioning of the Council of Ministers.
• The Prime Minister's Office (PMO) is a central agency that provides support and advice to the Prime Minister in the exercise of his/her duties and functions. It acts as the principal workplace of the Prime Minister and is responsible for coordinating the activities of various ministries and departments. The PMO plays a crucial role in policy formulation, implementation, and monitoring.

On the other hand, the Council of Ministers is a constitutional body comprising the Prime Minister and his/her chosen Cabinet Ministers, Ministers of State, and Deputy Ministers. They are collectively responsible for formulating and implementing government policies and programs. The Council of Ministers operates on the principle of collective responsibility, which means that all the ministers are collectively responsible to the Parliament for their decisions and actions.

A strong PMO can undermine the collective responsibility of the Council of Ministers in several ways:

• Centralization of power: A strong PMO often leads to the centralization of power and decision-making authority in the hands of the Prime Minister. This can result in sidelining the Council of Ministers and reducing their role in decision-making processes. This concentration of power may lead to a lack of coordination and consultation among the Council of Ministers, thereby affecting the principle of collective responsibility.
• Bypassing the Council of Ministers: A strong PMO may bypass the Council of Ministers and directly deal with bureaucrats and administrators. This may lead to the undermining of the authority of the Council of Ministers and a violation of the principle of collective responsibility. For example, during the tenure of Prime Minister Indira Gandhi, the PMO became highly centralized, and the Council of Ministers was often bypassed in decision-making processes.
• Reducing accountability: A strong PMO may reduce the accountability of individual ministers to the Parliament, as the decision-making process becomes centralized in the Prime Minister's hands. This may lead to a decline in the responsiveness of the Council of Ministers to the Parliament, thereby affecting the principle of collective responsibility.
• Weakening the role of Cabinet Committees: Cabinet Committees play a crucial role in the decision-making process in the government, as they consist of senior ministers who deliberate on important policy issues. A strong PMO can bypass these committees and make decisions without their consultation, thereby weakening the role of the Council of Ministers in policy formulation and implementation.

However, it is essential to note that a strong PMO can also have some positive implications for the functioning of the Council of Ministers. A strong PMO can ensure better coordination among various ministries, faster decision-making, and effective implementation of policies. It can also help in reducing inter-ministerial conflicts and ensuring policy coherence.

In conclusion, a strong PMO can potentially undermine the principle of collective responsibility of the Council of Ministers by centralizing decision-making authority, bypassing the Council of Ministers, reducing accountability, and weakening the role of Cabinet Committees. However, it can also contribute to better coordination and policy coherence. Therefore, it is crucial to strike a balance between the functioning of the PMO and the Council of Ministers to ensure that the principle of collective responsibility is upheld and the government functions smoothly.

(b) Capacity issues relating to employees have hampered the implementation of several government programmes. Trace the reasons in the context of the provisions of the National Training Policy, 2012.    (20 Marks)

The National Training Policy (NTP) of 2012 is a comprehensive policy framework designed to improve the capacity and efficiency of government employees in India. It aims to enhance the skills and knowledge of civil servants to help them deliver effective public services. Despite the policy's noble intentions, several capacity issues have hampered the implementation of various government programs. Some of the reasons for this can be traced to the provisions of the National Training Policy, 2012, as discussed below:

• Inadequate Coverage of Training Needs: The NTP focuses on training civil servants at different stages of their careers, but it does not adequately cover the entire gamut of training needs. For example, it does not fully address the training requirements of lower-level functionaries, who play a crucial role in the implementation of government programs at the grass-root level. The lack of proper training for this group results in capacity issues and inefficiencies in program implementation.
• Lack of Customized Training Programs: The NTP aims to provide generic training modules for civil servants. However, it does not cater to the specific needs of different departments and sectors. This one-size-fits-all approach can limit the effectiveness of training programs, as the training needs of employees working in diverse sectors such as health, education, and infrastructure can vary significantly.
• Insufficient Emphasis on Skill Development: The NTP does not place enough emphasis on skill development, focusing more on knowledge enhancement. This might lead to a situation where employees have theoretical knowledge but lack the practical skills required to implement government programs effectively.
• Inadequate Monitoring and Evaluation Mechanisms: The NTP lacks robust monitoring and evaluation mechanisms to assess the effectiveness of the training programs. This makes it difficult to determine whether the training provided is yielding the desired results in terms of improved capacity and program implementation.
• Limited Involvement of Private Sector: The NTP does not encourage sufficient participation of the private sector in the design and delivery of training programs. The private sector could bring in valuable expertise and resources to help address capacity issues in government programs.
• Insufficient Funding: The NTP does not allocate adequate financial resources for training programs. This can result in poorly designed and executed training programs, which do not effectively address capacity issues.
• Resistance to Change: There might be resistance to change among some government employees, who may be reluctant to adopt new skills and practices. This can further hamper the successful implementation of government programs.

Examples of capacity issues in government programs:

• The Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA), aimed at providing guaranteed employment to rural households, has faced capacity issues such as insufficiently trained staff to monitor and evaluate the program, resulting in leakages and inefficiencies.
• The National Health Mission, which aims to improve healthcare services in rural areas, has suffered from a shortage of skilled healthcare professionals and inadequate training of existing staff, leading to poor service delivery.

In conclusion, the provisions of the National Training Policy, 2012, have not been entirely successful in addressing capacity issues related to employees in government programs. There is a need to re-evaluate the policy and incorporate measures such as adequate coverage of training needs, customized training programs, skill development, robust monitoring and evaluation mechanisms, private sector involvement, and sufficient funding to ensure that government employees can effectively implement various programs.

(c) The strategy to deal with the non-performing assets of banks may lead to overburdened taxpayers. Examine the role of government to protect the interests of both.    (10 Marks)

Non-performing assets (NPAs) refer to loans and advances given by banks that have turned bad, either due to the borrower's inability to repay or fraud. NPAs have been a significant concern for the Indian banking sector for quite some time, as they lead to higher provisioning requirements, reduce profitability, and erode the capital base of banks. The government, as the majority shareholder in public sector banks (PSBs), plays a crucial role in addressing the issue of NPAs and protecting the interests of taxpayers and other stakeholders.
Here are some ways the government can manage NPAs and protect the interests of both taxpayers and other stakeholders:

• Strengthening the legal and regulatory framework: The government should strengthen the existing legal and regulatory framework to facilitate faster resolution of NPAs. This may include amendments to the Insolvency and Bankruptcy Code (IBC), the SARFAESI Act, and the Debt Recovery Tribunal (DRT) framework to expedite the recovery process and minimize the burden on taxpayers.
• Improving corporate governance in PSBs: The government should focus on enhancing corporate governance practices in PSBs by ensuring the appointment of independent directors with relevant expertise, promoting greater transparency, and strengthening the risk management framework. This would help in better decision-making and minimize the chances of creating new NPAs.
• Encouraging the sale of NPAs to asset reconstruction companies (ARCs): The government should promote the sale of NPAs to ARCs, which specialize in resolving stressed assets. This would enable banks to offload their bad loans and focus on their core business of lending, thereby reducing the burden on taxpayers.
• Recapitalization of PSBs: The government may consider recapitalizing PSBs to strengthen their capital base and absorb the losses arising from NPAs. However, this should be done judiciously, and only after evaluating the bank's performance and its potential to recover bad loans. Recapitalization should also be accompanied by structural reforms in the banking sector to ensure that the funds are used effectively and do not lead to the creation of new NPAs.
• Promoting mergers and consolidation: The government can consider promoting mergers and consolidation among PSBs to create stronger and more efficient banking entities. This would help in better management of NPAs and reduce the burden on taxpayers.
• Strengthening the credit appraisal process: The government should work towards strengthening the credit appraisal process in banks, including the use of technology and analytics to assess the creditworthiness of borrowers accurately. This would help in minimizing the creation of new NPAs and protect the interests of taxpayers and other stakeholders.
• Encouraging alternative sources of finance: The government should promote alternative sources of finance, such as corporate bonds, to reduce the dependence on bank loans. This would help in diversifying the sources of finance for businesses and reduce the burden on banks and taxpayers.

In conclusion, the government plays a crucial role in managing NPAs and protecting the interests of taxpayers and other stakeholders. By adopting a multifaceted approach that includes strengthening the legal and regulatory framework, improving corporate governance, encouraging the sale of NPAs to ARCs, recapitalizing PSBs, promoting mergers and consolidation, and enhancing the credit appraisal process, the government can effectively deal with the issue of NPAs and minimize the burden on taxpayers.

Q.4.(a) Considerable attention has been paid to the restructuring of the administrative systems at the Central and local levels, but very few reforms have been undertaken at the State level. What steps would you suggest to rectify it?    (20 Marks)

To rectify the lack of reforms at the State level, the following steps can be suggested:

• Decentralization of power: Strengthening the decentralization process by entrusting more powers and functions to the local self-government institutions like Panchayats and Municipalities. This would enable better decision-making at the grassroots level and ensure effective implementation of policies and programs. For example, the 73rd and 74th Constitutional Amendment Acts in India aimed at empowering Panchayats and Municipalities, but their effective implementation is still a challenge in many states.
• Administrative Reforms Commission (ARC): Establishment of State-level Administrative Reforms Commissions, similar to the Central ARC, to review the existing administrative systems and suggest reforms for efficient functioning. These commissions should focus on measures such as simplification of procedures, elimination of redundant rules and regulations, and adoption of e-governance initiatives for better service delivery.
• Performance-based incentives: Introducing performance-based incentives for the State-level bureaucracy to encourage efficiency, responsiveness, and accountability. This could include performance-linked promotions, financial incentives, and public recognition of outstanding work.
• Transparent recruitment and promotion: Ensuring transparency in the recruitment and promotion processes of the State-level bureaucracy by adopting merit-based criteria and minimizing political interference. This could be achieved through the establishment of independent and impartial institutions like the Union Public Service Commission (UPSC) at the State level.
• Capacity building and training: Strengthening the capacity of the State-level bureaucracy through regular training and skill development programs. This would enable them to effectively discharge their duties and keep up with the changing socio-economic environment. State Administrative Training Institutes could play a crucial role in this regard.
• Citizen-centric governance: Fostering a culture of citizen-centric governance by promoting transparency, accountability, and participatory decision-making at the State level. This could be achieved through measures like proactive disclosure of information, simplification of grievance redressal mechanisms, and promoting public consultation in policymaking.
• Inter-state cooperation: Encouraging inter-state cooperation and sharing of best practices to facilitate learning and replication of successful administrative reforms. This could be done through platforms like the National Development Council, Inter-State Council, and the Zonal Councils in India.
• Legislative reforms: Undertaking comprehensive legislative reforms to simplify and rationalize the existing laws, rules, and regulations at the State level. This would reduce the scope for bureaucratic discretion and corruption, and ensure a conducive environment for effective governance.
• Financial devolution: Ensuring greater financial devolution to the State governments by revising the revenue-sharing arrangements, as recommended by the Finance Commissions. This would provide them with adequate resources to undertake administrative reforms and improve public service delivery.
• Political will and commitment: Finally, the success of any reform initiative at the State level hinges on the political will and commitment of the State leadership. They must demonstrate strong resolve to initiate and implement administrative reforms, and create a conducive environment for their success.

(b) It is observed that non-functioning of District Planning Committees is preventing the convergence of rural and urban planning needs. Do you agree? Justify.    (20 Marks)

Yes, I agree that the non-functioning of District Planning Committees (DPCs) is preventing the convergence of rural and urban planning needs. DPCs were envisaged as a platform to bring together rural and urban planning at the district level, as mandated by the 73rd and 74th Constitutional Amendments. However, various factors have contributed to their non-functioning, which in turn hampers the convergence of rural and urban planning needs.

• Lack of Financial Autonomy: DPCs often do not have adequate financial resources at their disposal. They are dependent on funding from the state and central governments, which limits their ability to create and implement effective plans. This hampers their ability to address the diverse needs of both rural and urban areas.
• Bureaucratic Control: The functioning of DPCs is often marred by excessive bureaucratic control, as they are headed by the District Collector. This leads to a top-down approach in planning, which does not cater to the specific needs of rural and urban areas. It also undermines the spirit of decentralization and local self-governance.
• Limited Capacity and Expertise: DPCs often lack the technical expertise and human resources required to effectively plan for the diverse needs of rural and urban areas. This results in generic plans that do not cater to the specific requirements of different regions within the district.
• Political Interference: Political interference in the functioning of DPCs often results in the prioritization of projects based on political considerations rather than the actual needs of the people. This undermines the effectiveness of the planning process and prevents the convergence of rural and urban planning needs.
• Weak Coordination: There is often weak coordination between different departments and agencies involved in the planning process at the district level. This results in a fragmented approach to planning, which does not effectively address the needs of both rural and urban areas.
• Inadequate Participation: The participation of local stakeholders, including elected representatives, civil society organizations, and citizens, is often limited in the functioning of DPCs. This results in a lack of ownership and accountability, and prevents the effective convergence of rural and urban planning needs.

Examples:

• In Uttar Pradesh, the functioning of DPCs has been limited due to political interference and a lack of financial autonomy. This has resulted in inadequate planning for the needs of both rural and urban areas, leading to issues such as inadequate infrastructure, poor service delivery, and widening disparities between rural and urban areas.
• In Kerala, despite having a relatively better functioning DPC system, issues like the lack of technical expertise, bureaucratic control, and inadequate participation of stakeholders have hampered the effective convergence of rural and urban planning needs. This has led to issues such as unplanned urbanization and inadequate infrastructure in rural areas.

In conclusion, the non-functioning of DPCs is indeed preventing the convergence of rural and urban planning needs. There is a need to strengthen the functioning of DPCs by addressing the issues of financial autonomy, bureaucratic control, capacity building, political interference, coordination, and participation. This will enable DPCs to effectively plan for the diverse needs of rural and urban areas and promote balanced regional development.

(c) The police-public interface is punctuated with distrust and fear. Suggest how the police can reform its image in the eyes of the public.    (10 Marks)

The police-public interface is crucial for maintaining law and order, ensuring the safety and security of citizens, and upholding the rule of law. Over the years, however, the image of the police has been tarnished by numerous incidents of corrupt practices, human rights abuses, and unprofessional behavior, leading to an erosion of public trust and confidence. In order to reform its image and improve the police-public interface, the police can implement the following measures:

• Community Policing: Community policing is an approach that focuses on building strong relationships between the police and the community, encouraging cooperation, and fostering a sense of shared responsibility for public safety. By engaging with citizens, attending community meetings, and working with local organizations, the police can better understand the needs and concerns of the community and develop tailored solutions to address them. This, in turn, can help improve the police's image and enhance public trust.
• Transparency and Accountability: The police must be transparent in their functioning and decision-making processes. This can be achieved through the use of technology, such as body cameras, to ensure that police actions are recorded and can be reviewed if necessary. Additionally, independent oversight mechanisms, such as police complaint authorities, should be established to hold police officers accountable for their actions and ensure that they are held to the highest standards of professional conduct.
• Training and Sensitization: Police officers should receive regular training in areas such as human rights, gender sensitivity, and ethical conduct. This will help them better understand and respect the rights of citizens, and respond to situations in a more empathetic and professional manner. Furthermore, training should also focus on equipping officers with the requisite communication and interpersonal skills, enabling them to engage with the public in a more respectful and effective manner.
• Focus on Service Delivery: The police must shift their focus from being a force that is primarily concerned with maintaining law and order to one that prioritizes service delivery. This can be achieved by adopting a more citizen-centric approach, wherein the needs and concerns of citizens are given utmost importance. For instance, the police can establish help desks at police stations to assist citizens with their queries and concerns or develop mobile applications to enable citizens to report crimes and access other police services.
• Inclusion and Representation: The police force must be representative of the diverse communities they serve. This includes ensuring that recruitment processes are fair and transparent, and that adequate representation is given to women, minorities, and other marginalized groups. This will not only enhance the police's understanding of the unique needs and concerns of different communities but also help build trust and improve their image in the eyes of the public.

In conclusion, by adopting these measures, the police can work towards reforming their image and improving the police-public interface. This will ultimately lead to a more trusting and collaborative relationship between the police and the citizens they serve, resulting in a safer, more secure, and just society.