Techniques of Administration Improvement - UPSC PDF Download

Introduction

• Upon achieving independence, India inherited a colonial legacy in its administration that was primarily focused on revenue collection and maintenance of law and order. In the initial years following independence, the Indian government's main concerns were the integration of princely states and addressing the issues faced by refugees and displaced individuals.
• However, as India became a republic, the nation's objectives shifted towards social and economic development. This called for a more people-oriented administration that was responsive to the developmental needs of the citizens. As a result, the necessity for administrative reforms to suit the needs of an independent India became apparent.
• To implement these reforms, the Government of India undertook various measures, including the formation of committees and commissions, as well as organizing conferences to suggest improvements in the administrative system. In the following sections, we will discuss the meaning, needs, and types of administrative reforms, followed by an overview of the reform steps and measures taken in the country since independence.

Meaning of Administrative Reforms

Administrative reforms refer to a planned, systematic, and intentional process of inducing transformation within an administrative system to improve its performance, efficiency, and alignment with societal needs. These reforms are essential for overcoming resistance to change and facilitating a shift from traditional administrative practices to more innovative and effective ones.

Administrative reforms encompass various aspects, including organizational restructuring, process reengineering, policy realignment, and capacity building. They are not spontaneous but rather result from a comprehensive analysis, planning, and implementation to achieve specific objectives.

Three key elements characterize administrative reforms:

• Artificial stimulation: Reforms are deliberately induced and guided by a well-thought-out strategy.
• Transformational process: Reforms aim to bring about significant changes in the administrative system.
• Resistance to change: There is often opposition to the reform process, which must be addressed and overcome.

Need for Administrative Reforms
Modern societies are characterized by constant and systematic transformations, requiring continuous adaptation and innovation. Administrative systems, as integral parts of society, must evolve to keep pace with these changes and address emerging challenges.
The need for administrative reforms arises from various factors, including:

• Dynamics of societal change: As society evolves and adopts new values, knowledge, and technology, administrative systems must also adapt to remain effective and relevant.
• Political environment: Public administration operates within a political context, and its functioning is heavily influenced by political institutions, processes, and decisions. Administrative reforms are necessary to ensure that administrative systems can effectively implement policies and achieve national goals.
• Technological advancements: Rapid advancements in information and communication technology (ICT) require administrative systems to adopt new tools and approaches to enhance efficiency, transparency, and responsiveness.
• Changing role of the state: With the growing emphasis on good governance, accountability, and decentralization, the state's role has shifted from merely controlling resources to partnering with citizens and facilitating their participation in governance. This requires fundamental changes in the administrative system and the way it interacts with the public.

In conclusion, administrative reforms are essential for ensuring that administrative systems can effectively respond to the changing needs and expectations of society. By adopting a multidisciplinary and comprehensive approach, these reforms can contribute to the creation of more efficient, transparent, and accountable public administration systems.

Types of Administrative Reforms

Administrative reforms, according to Gerald E. Caiden,.can be of four types.

• Reforms imposed through political changes.
• Reforms introduced to remedy organisational rigidity.
• Reforms through the legal system, and
• Reforms through changes in attitude.

Reforms imposed through political changes
Administration is shaped and influenced by political forces. The change in ' political scene also affects administration. Structure and working of idministration is affected by political changes. 

Reforms introduced to remedy organisational rigidity
Bureaucratic structures have to change to be flexible. The rigidity in the structure of administration has to be removed. The changes can take place in the form of restructuring, reinvention, realignment, rethinking and reengineering.

Reforms through the legal system 
Laws pertaining to administrative reform can lead to significant changes in administration. Legislation is normally preceded by consultations and deliberation3 in several forums such as committees, commissions, press etc.

Reforms through changes in attitude
Human beings are an important part of any organisation. Change in their attitude will help in bringing reforms. No legal, structural and political change can lead to desired reform unless and until these are appreciated and accepted by the people working in the organisation. 

Administrative Reforms in India since Independence

India gained independence in 1947 and faced various challenges, including the partition, refugees, migration, and the integration of princely states. The newly formed government aimed to promote the welfare of the people through socio-economic development. To achieve this, the administrative machinery inherited from the colonial regime had to be restructured, reformed, and renewed. Several measures were taken up by the Government of India (GOI) in the area of administrative reforms.

• Secretariat Reorganisation Committee, 1947: Headed by Girija Shankar Bajpai, this committee focused on addressing personnel shortages, better utilization of available manpower, and improving work methods in the Central Secretariat.
• Shri N. Gopalaswamy Ayyangar Report, 1950: This report provided a comprehensive review of the working of the machinery of the Central Government and suggested ways to reorganize it.
• A.D. Gorwala Committee, 1951: This committee, headed by Shri A.D. Gorwala, emphasized the need for a clean, efficient, and impartial administration in its Report on Public Administration.
• Paul. H. Appleby Reports, 1953 & 1956: American expert Paul H. Appleby was invited to suggest reforms in Indian administration. His two reports focused on administrative reorganization, practices, and the administration of government's industrial and commercial enterprises. Key recommendations included the establishment of the Indian Institute of Public Administration and the creation of an Organisation and Methods (O&M) Division to improve government procedures.
• Committee on Plan Projects, 1956: Established by the Planning Commission, this committee aimed to achieve economy and efficiency in the implementation of plan projects.
• Committee on Prevention of Corruption, 1962: Headed by K Santhanam, this committee studied the causes of corruption and suggested measures for improvement, including the setting up of the Central Vigilance Commission (CVC).
• Administrative Reforms Commission (ARC), 1966: Chaired by K Hanumanthaiya, this commission had the widest scope, covering public administration at the Centre and in the States. It submitted 20 reports containing over 500 recommendations, leading to major and minor changes in administration.
• Kothari Committee, 1976: This committee, chaired by Shri Kothari, examined recruitment and selection methods for All India Services and Central Group A and B Services, recommending a single examination system.
• National Police Commission, 1977: Chaired by Shri Dharam Vira, this commission examined the role and functions of the police with regard to crime control and public order, magisterial supervision, investigation, prosecution, and crime records.
• Economic Reforms Commission, 1981: Led by L.K. Jha, this commission studied important areas of economic administration and suggested reforms for rationalization and modernization of the economic administrative system.
• Commission on Centre-State Relations, 1983: Chaired by Mr. R.S. Sarkaria, this commission reviewed the working of existing arrangements between the union and states, making recommendations for changes and measures needed.
• National Commission to Review the Working of the Indian Constitution, 2000-03: Under the chairmanship of Chief Justice (Retd.) Venkatacheliah, this commission examined the functioning of the Indian Constitution.

In conclusion, since gaining independence, India has made numerous efforts to reform and improve its administrative machinery. These reforms have been carried out through various committees and commissions, focusing on different aspects of administration, including personnel management, economic administration, police functions, and constitutional arrangements.

Conference of Chief Secretaries, 1996
A Conference of Chief secretaries of the state and union territories was organised by the Department of Administrative Reforms & Public Grievances (AR & PG) on 20lh November 1996. The focus of the Conference was on having an accountable, open and citizen-friendly government and on improving the performance and integrity of the public services.

The follow-up actions of the Conference included:

• Setting up of an inter-ministerial Working Group on Right to Information and Transparency headed by Shri H.D. Shourie;
• Constituting an Expert Group headed by Shri N. Vittal to look into the computerization in personnel system and public services;
• Formulation of citizen’s charters by all ministries with public interface;
•  Steps to provide timely disposal of departmental enquiries and vigilance proceedings;
• Developing grievance redressal machinery; and
• Initiating civil service reforms especially including the transfers and promotions in Centre and States.

Chief Minister’s Conference, 1997

In pursuance of the objectives of accountability, transparency, and responsiveness spelt out bv the Conference of Chief Secretaries, a national debate was generated on the above-mentioned issues to elicit opinion of the wider public, which included officials, experts, voluntary agencies, media, academia and the citizens groups. This debate culminated in an Action Plan for effective and responsive government. The Action Plan was discussed and adopted in the Conference of Chief Ministers on 24th May 1997, to be implemented by both the Centre and the State governments.

The Action Plan has three components, namely:

• Making Government Accountable and Citizen-friendly
• Transparency and Right to Information
• Improving the Performance and Integrity of the Public Services

We will discuss the three components now.

Accountable and Citizen-friendly Government

To make the government and administration accountable and friendly to the citizens, the following steps are undertaken.

Implementation of Citizen’s Charter

• The Government of India has directed ministries and departments with public interface to formulate a citizen’s charter laying down the standards of service and time limits, avenues of grievance redressal and provision for monitoring.
• The Department of AR&PG has coordinated efforts in this regard to see the adoption of the citizens’ charter in ministries, departments and agencies of the Centre and States.

Redressal of Public Grievances

• Director of Grievances have been appointed in every ministry and department for redressal of public grievances in the Central government. The time limits for disposal of public grievances have been specified and software has been developed for computerized, web-enabled and networked monitoring of public grievance redressal mechanism. A compendium of guidelines has been published in this regard. Similarly, a Standing Committee of Secretaries to Government of India has been set up under the chairmanship of the cabinet secretary to monitor the public grievance redressal mechanism of the Central government.
• At the State level, States like Madhya Pradesh, Tamil Nadu and Uttar Pradesh have made institutional arrangements to monitor the redressal of public grievances by Chief Minister’s Secretariat. Likewise, Andhra Pradesh, Assam, Haryana, Madhya Pradesh, Maharashtra, Rajasthan, Tamil Nadu and Uttar Pradesh have started special programmes and campaign for taking administration to the people. Delhi has set up a Public Grievance Commission and Assam and Madhya Pradesh have also set up a separate department for the same.

Reviews of Laws, Regulations and Procedures

• The existing laws, regulations and procedures are to be reviewed, amended, modified and reformed in order to make them simpler. The Action Plan provides for Centre and States to look into the repeal of obsolete laws, reduction of time and cost for the disposal of cases in civil and criminal courts and easy practice of approvals, sanctions and issue of permits with a view to improving service delivery and bringing about transparency in the functioning of the government.
• A Commission was set up under the chairmanship of Shri P C Jain for reviewing the steps taken by different ministries and departments in this regard. The Commission made certain recommendations relating to amendments and changes in the laws, regulations and procedures; repeal of dysfunctional and irrelevant laws; documentation of laws and subordinate legislations, executive orders, instructions and circulars; and simplifications and consolidation of rules, regulations and orders.
• The ministries and departments have made attempts in this regard by modifying and amending various Acts and laws. The outdated laws have been repealed. The Department of AR & PG monitor the review of such rules and regulations by ministries and departments on a regular basis.
• The P C Jain Commission reviewed over 2500 laws and recommended repeal of about 1400 laws and amendments to about 241 laws. The follow up action has been taken up under the supervision of a Standing Committee.

People’s Participation: Decentralization and Devolution of Powers

• The Action Plan provides for the decentralisation and devolution of powers. This will include people’s participation consistent with the 73rd and 74th Amendments of the Constitution, involvement of the people and voluntary agencies in the delivery of services, and devolution of administrative powers.
• People’s participation has been ensured by providing constitutional status to the PRIs in the country. Elections are conducted for these bodies. There are around 2.5 lakhs Panchayats, of which about 2.25 lakhs are Gram Panchayats and they have elected approximately 3.4 million representatives at all levels. The urban local bodies have also been accorded similar status. With the Extension to the Scheduled Areas Act, 1996, the provisions of the 73rd and 74th Act have been extended to the tribal areas of 10 States and all these States have enacted legislation to give effect to these provisions.

Transparency and Right to Information

• This provision in the Action Plan entails freedom of information to the public. This will include amendments to the Official Secret Act, 1923 and Indian Evidence Act. The Freedom of Information Act, 2003 has been passed. The Act seeks to provide freedom to every citizen to secure information under the control of public authorities. It seeks to make government open, transparent, responsive arid accountable to the people. This Act provides easy access to the people to all information relating to government activities and decisions except matters relating to national security. Most of the States - Goa, Karnataka, Maharashtra, Delhi, Rajasthan and Tamil Nadu- too have legislated the Right to Information.
• Information and Facilitation Counters (IFCs) have been set up by ministries, departments and organisations with large public interface in areas such as land records, passport, investigation of offences, administration of justice, tax collection and administration, issue of permits and licenses etc. Information and Communications Technology based public service delivery has helped in promoting accountability and transparency in administration.

Improving the Performance and Integrity of the Public Services

• The Action Plan aims at improving the performance and integrity of the civil services. The civil servants are to adhere to ethical standards and be committed to basic principles of the Constitution such as secularism, social justice, rule of law, professionalism anf intergrity. the plan also entails the prepration of the code 
• of Conduct for the Central and State civil services. It also aims to regulate the relationship between the politicians and the civil servants.
• Amendment to the existing provisions for the prosecution and removal of corrupt officials as well as reward to the employees for doing good work is being taken up. The CVC has displayed on its website the names of various senior officials for whom it has recommended action for corrupt practices. Some of the States that have reported strengthening of vigilance procedures are ’Karnataka, Kerala, Maharashtra, Nagaland, Uttar Pradesh and West Bengal.    ,
• The strengthening of the investigation agencies and vigilance machinery, such as, Lok Ayukta, CBI, CVC, Income Tax authorities, Enforcement Directorate, and revamping of existing procedures for departmental queries and vigilance proceedings have enabled in improving the integrity of public services.
• In this connection recently, CVC has been set up as an independent and autonomous body by executive order. The provisions of giving statutory status is still awaited and the bill is pending in the Parliament. The Rajya Sabha passed the central vigilance commission bill conferring statutory status on the CVC to probe offences committed by central public servants, corporations, societies and local authorities. It provides for the CBI to obtain approval of the government before conducting any inquiry into an offence committed by officers of the rank of joint secretary or above in any government department or PSU. The Bill passed by the Lok Sabha in Feb. 2003, provides for appointment of a CVC and not more than four vigilance commissioners. CBI and Enforcement Directorate have been brought in its purview in matters pertaining to investigation cases of the public servants:
• This will help in strengthening the vigilance machinery and provide for close networking of various related agencies.
• At the Union level, the Lokpal Bill proposes to deal effectively with corruption in high places and the nexus between politicians, civil servants, businessmen and criminals. The bill is pending before the Parliament. Several States, like Assam, Andhra Pradesh, Bihar, Gujarat, Himachal Pradesh, Karnataka, Madhya Pradesh, Maharashtra, Orissa, Punjab, Rajasthan, Uttar Pradesh and Delhi, have already set up the corresponding institution of Lok Ayukta.
• A Code of Ethics has been drafted by the Government of India to improve the integrity of the civil servants. This will be in addition to the existing Conduct Rules. The State governments of Gujarat, Madhya Pradesh and West Bengal are also drafting Code of Ethics for civil servants.
• Likewise, providing institutional arrangements to look into the postings and transfers of officials to prevent political interference is being worked out. The Central government has set up a Civil Services Board to process proposals for the postings and transfers of the officials of the level of deputy secretary, director and joint secretaries. This will curb the practice of frequent and arbitrary transfers of the public servants. Many of the States have also laid down the transfer policy pertaining to the civil servants.

Fifth Pay Commission, 1997

The Commission was established under the chairmanship of Mr. Ratnavel Pandian. The Commission, in effect, became more than a conventional Pay Commission, and went into major issues of administrative reforms. he Commission observed that the entire machinery of the government has to best staff, determining the size of tlie ministry/department, no file movement beyond three hierarchical levels for a decision to be taken, injection of the concept of multi, skilling at the Group D level and abandoning of the centralised planning model.

Evaluation of Recent Reforms

• At the Central level, various ministries and departments have been slow in implementing the reforms. The citizen’s charters lack quality, as many of the ministries and departments have renamed their information brochures as charters. The citizens as well as the employees also seem to be unaware of the charters. The computerization and networking is yet to be fully implemented by the Centre and the States.
• The review of laws has not been taken up at the required pace. The Lokpal Bill is lingering in the Parliament. The Department of AR&PG found that many of the Information and Facilitation Counters set up by the ministries and departments are non-functional. The code of ethics is yet to come up. The voluntary retirement scheme has also not been properly taken up. At the State level, much is left to be achieved. The Right to Information Act has been place in several States, but it has not been properly implemented.
• Nothing has been going beyond the 73rd and 74th constitutional amendments. The States have not implemented the constitutional amendments in letter and spirit. As a result, decentralisation has suffered a setback. The States have not adequately streamlined the function of the panchayats. In some States more powers has been vested with the district and intermediate levels whereas in some States more powers have been given to the gram panchayats and the intermediate leyels and not to the district level. The States have not provided these bodies with adequate staff and finances in relation to the subjects allocated to them. Again, the district planning committees have not been set up by a number of states. The gram sabha are not fully empowered as their powers and procedures have not been properly laid down. The urban local bodies have lost their importance due to the multiplicity of corresponding institutions that have come up to carry out varied functions pertaining to housing, urban regulation, water and sewerage, and power distribution. Also, there is dearth of resources, which creates problems for rendering better services.

Ministry of Personnel, Public Grievances, and Pensions

• The Ministry of Personnel, Public Grievances, and Pensions was established through a series of administrative reforms and restructuring. Initially, a Department of Administrative Reforms was created within the Ministry of Home Affairs in March 1964. This department was responsible for suggesting reforms and conducting studies on various aspects of administration, including organization, methods, and personnel. Additionally, the O & M Division, previously under the cabinet secretariat, was transferred to the Department of Administrative Reforms.
• Based on recommendations from the ARC, a Department of Personnel was established within the cabinet secretariat on August 1, 1970. This department took over responsibilities related to civil services from the Ministry of Home Affairs. Later, in February 1973, the Department of Administrative Reforms' work was transferred to the Department of Personnel, which was then renamed the Department of Personnel and Administrative Reforms. In April 1977, the Department of Personnel and Administrative Reforms was moved from the cabinet secretariat to the Ministry of Home Affairs, where it remained until the end of 1984. Similar departments were also established at the state level.
• In March 1985, the Department of Personnel and Administrative Reforms was elevated to a full-fledged Ministry of Personnel and Training, Administrative Reforms, Public Grievances, and Pensions. The ministry was then re-designated as the Ministry of Personnel, Public Grievances, and Pensions on December 10, 1985, and included three departments: the Department of Personnel and Training (DOPT), the Department of Administrative Reforms and Public Grievances, and the Department of Pension and Pensioners' Welfare. Notably, the ministry was placed under the overall charge of the Prime Minister, assisted by a Minister of State. Additionally, the subject of public grievances was added to the Department of Administrative Reforms to provide a more integrated view of administrative inadequacies and potential improvements.
• The Department of Administrative Reforms and Public Grievances was assigned several tasks, including the conduct, coordination, and evaluation of administrative reforms; matters pertaining to organization and methods; and policy matters and issues related to the redressal of public grievances. In 1989, the department also took over functions related to research in personnel administration and liaison with state governments and professional institutions in personnel matters from the Department of Personnel and Training.

Conclusion

In conclusion, the dynamics of development involve the interplay of various actors, such as the government, the market, and the community. While the market and state play crucial roles in economic development and resource allocation, they are prone to failures and inefficiencies, necessitating the need for community involvement. Communities foster cooperation, promote trust and social capital, and contribute to the supply of local public goods. Understanding the roles and interactions of these actors is essential for promoting sustainable and inclusive development, as well as addressing the challenges posed by market and government failures.

Frequently Asked Questions (FAQs) of Techniques of Administration Improvement 

What is the meaning of administrative reforms?

Administrative reforms can be defined as artificial inducement of administrative transformation against resistance. They involve pre-meditated, well-studied, and planned programs with specific objectives in view and aim to bring about a new order in administration through a formal, mechanistic, and meditated process of structured change.

Why are administrative reforms needed in India?

Administrative reforms are needed in India to deal with continuous systematic transformation, cope with changes in the environment, adopt fresh innovative culture, adopt new knowledge and technology, and create a new order through the elimination of old structures and systems. They are essential for ensuring good governance, accountability, efficiency, effectiveness, transparency, and decentralization.

What are the types of administrative reforms?

According to Gerald E. Caiden, administrative reforms can be of four types: (i) Reforms imposed through political changes, (ii) Reforms introduced to remedy organizational rigidity, (iii) Reforms through the legal system, and (iv) Reforms through changes in attitude.

What are some significant administrative reform measures taken in India since independence?

Some significant administrative reform measures include the Secretariat Reorganization Committee (1947), Shri N. Gopalaswamy Ayyangar Report (1950), A.D. Gorwala Committee (1951), Paul H. Appleby Reports (1953 & 1956), Administrative Reforms Commission (ARC, 1966), Kothari Committee (1976), National Police Commission (1977), Economic Reforms Commission (1981), Commission on Centre-State Relations (1983), and the Fifth Pay Commission (1997).

What is the significance of the Action Plan adopted in the Chief Minister's Conference, 1997?

The Action Plan aims to make the government and administration more accountable, transparent, and responsive. It has three components, namely: (i) Making Government Accountable and Citizen-friendly, (ii) Transparency and Right to Information, and (iii) Improving the Performance and Integrity of the Public Services. The plan involves the implementation of Citizen's Charters, the redressal of public grievances, reviewing laws and regulations, ensuring people's participation through decentralization and devolution of powers, and improving the performance and integrity of civil services.