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INTRODUCTION
Most questions were sent by Aditya Jha, our regular and active
participant in various writing challenges, and Asha Goud, also an
active participant on Insights.
INSIGHTS
development. However, till the advent of Major advances were made after the world
comparative public administration and war -II when a host of developing nations
theorists like Riggs and Waldo, it was came on the horizon. This rendered the
ecological only in the narrow sense of the application of conventional American
word. Its scope was limited to its immediate administrative theories in the changed
environment and there was no focus on politico-cultural context futile. And, thus the
cross-cultural and cross-temporal studies theoretical advances by Riggs and others in
while pursuing a science of administration. comparative and development
administration were born to facilitate
2 developmental efforts in changed situations.
Ecological in this context means the impact Finally, the latest paradigm the theoretical
of the environment, i.e. society, polity, inclination and development in the field of
events etc. on the subject matter. Public policy are essentially the markers of
growing needs of socio-economic
Starting from the first attempt towards the development and the predominance of
proposal towards theory building from public administration in them.
Wilson, one sees the American spoils
system and its inefficiency as its pillars. Thus, the field of Public Administration has
This provoked him to propose making suitably reacted to and affected by the
administration separate, efficient, economic changes in its ecology.
and effective.
legislation takes place may itself establish principally aims to ensure that the personal
the limits and checks that would prevent preferences of the civil servants do not come
any executive overreach. Further, the in way of delivering services to the people.
preparation of such rules may involve the However, such value neutrality is ideal only
targeted constituents which will lead to in an egalitarian society where all are
awareness which in turn will prevent any equally placed. The disparities in
abuse. Parliamentary techniques, like development across various levels/layers
committee on subordinate legislation require delivery of services to be value-
prevalent in India, may be adopted to laden. However, such values as NPA
ensure accountability of the executive. proponents recommended should be
transparent to prevent any misuse and
Hence delegated legislation coupled with facilitate evaluation of administrative
certain checks in place should not pose a impact.
problem in the Indian parliamentary system
of governance. Any individual cannot be expected to be
neutral in thoughts and approach on a
personal level. However as a civil servant his
commitment to the broader goals of
8 Civil Service neutrality is a fiction. constitutionalism and democracy can
How can any thinking person be ensure the right balance in his official
neutral? (CSE 2010/20 marks/200 conduct. Proper training and organisational
Words) culture may reinforce such commitment.
1 2
Civil Service neutrality has two dimension Neutrality in civil services has the same
viz. political neutrality and value neutrality. notions and implications as the word
secular has to the constitution of our
Political neutrality ensures commitment to country. We have interpreted secularism in
the policies of the government within the a completely different and innovative way
acceptable legal and constitutional and so is the interpretation of the word
framework, irrespective of the political party neutral.
in power. As an individual a civil servant is
bound to be affiliated to one political 1. Neutrality in our context means an
thought or the other but this should not unbiased and balanced view keeping in
affect his official conduct of business. Such mind the pros and cons of various groups
neutrality reinforces multi-party and their interest. It in no way means
parliamentary democracy like in India. The overlooking or neglecting any facet of issue
party which returns victorious by the on hand.
electorates is assured of full support of the 2. Neutrality is driven by the sound
civil services machinery towards attainment principles of our society based on equality,
of its policy objectives. justice and fairness, transparency and
accountability to the society and its people.
Value neutrality which traces its origin to 3. Neutrality is keeping in mind the general
Webers construct of ideal bureaucracy, welfare of the public at large and divorcing
our thoughts from any particular political Comparing these with Administrative
ideology, personal thinking or beliefs. Management Thinkers who focussed on top
4. A neutral decision is thus bound to reflect level management and gave general
rationality, respect, balanced and unbiased principle like unity of command,
attitude and above all the integrity and hierarchy, unity of direction, authority and
admirance of the civil servant towards responsibility, order and initiative, Taylor
society. basically solved the problems at shop floor
level. Thus, all his techniques were useful
It is thus very clear from the given points and yet are used in form of OR,
that it is only a thinking person driven by Management by Exceptions, time and
principles who can be really neutral. motion study, systems analysis etc.
Thus in presence of a concrete situation, his
(Paper-I) propositions brings efficiency.
to obey and rely on set practices, which In Simons construct the magnitude of the
generated monotony in work. Such zone of acceptance depends upon the
arrangements lead to suppression of sanctions available in the organisation to
workers creative and innovative enforce its orders. Thus positive or negative
capabilities. reinforcements available in the organisation
The concepts Taylor thought would bring in may affect the behaviour of the individual
efficiency were actually procedures that and along with it the zone of acceptance.
could be employed in each concrete
situation to secure their application, thereby As it may be made out from the above, both
restricting freedom of thoughts and these behaviouralists linked acceptance or
flexibility of operations in work life of otherwise of orders with human motivation
workers. unlike in the theories of their predecessors
in which orders from superiors was
10 The Barnard-Simon Theory of naturally followed as a factor of hierarchy.
Organisation is essentially a theory of
motivation. Comment (2009/200
Words)
[ Paper- I and II ( Topic: Comparative
Public Administration(CPA), Evolution of
Indian Administration)]
Chester Barnard has given the concept of
zone of indifference which represents a 11 The categorization of Balanced and
mental boundary beyond which orders will Unbalanced polities is nothing but
not be accepted. Herbert Simon has laid a an attempt to vindicate futile
similar construct viz. zone of acceptance. academic theorisation of Comparative
Both these concepts entail that motivation Public Administration. Comment.
of an organisational member is important (200 words)
for orders to be accepted and followed.
Any academic theorization cannot and
In case of Barnard, the zone of indifference should not be summarily dismissed as
is largely dependent on the net satisfaction futile. Riggs categorized political systems
of an individual arising out of the into balanced and unbalanced polities.
contribution-inducements relations. While According to Riggs, any political system has
contribution refers the efforts put forth by 2 components the political executive and
an individual, inducement is the the bureaucracy. The political executive
compensation monetary or otherwise- for consists of the elected officials, assembly
the individual. Hence, to make an individual and the political parties collectively
follow orders will require adequate referred to as the constitutive system.
satisfaction on part of that individual which A Balanced Polity is a political system in
will motivate him to follow the same. which there exists a healthy balanced
Alternatively, training or persuasion can between the political executive and
also be used to enlarge the zone of bureaucracy in policy formulation and
indifference. administration. In an unbalanced polity,
one side (usually the bureaucracy)
dominates the system (though there are
cases where the political executive has However, such a generalisation is absurd in
dominated as well). my view.First, to look at the type of polity to
While it would be unfair to judge a country determine its quality is not based on
or its political system simply based on evidence. If a nation is dominated by
whether it has a balanced or unbalanced bureaucrats, it may be the need of the hour.
polity, such a categorization would Political class may not be mature enough to
nevertheless help study its characteristics deal with socio-economic issues. And,
and working better. Developed countries in history has proven that such polities have
general tend to have a balanced polity while succeeded and are quite stable too. India in
developing countries tend to exhibit an the early years post-independence would be
unbalanced polity. a good example to cite here.
Thus, such a categorization enhances our
understanding of a countrys polity. While There are other reasons also behind my
its importance does have its own argument. You can find more in the book. It
limitations, it would be unfair to call it futile is a comprehensive one for CPA and a quite
theorization. small book (170 odd pages A5 sheets). But,
if you are to write mains this year, do not
(To understand what a balanced and read the entire book. Instead, focus only on
unbalanced polities implies, refer below- this chapter and your earlier readings.)
government, the provincial government and consideration and a generic set of rules to
the local bodies. All these tiers were govern the management existed.
provided with certain authority and duties In the Behavioral Theory, much attention
but they have to bow to the suzerainty of the was paid to human nature/psychology and
monarch. This delegated administration how human beings behaved under various
required detailed codification of degree of scenarios. Maslow, Simon, McGregor, etc
decentralization, authority and duties, were some of the famous thinkers who
accountability to the king etc. elaborated on the behavioral theory,
3) Kautilya proposed a establishment of a emphasizing on human nature and
dedicated organisation to collect revenues, exploring the human mind.
maintain law and order and provide justice
and punishment. Thus the authority, The Neo approach in the 2 theories
delegation and division of labour was to be essentially advocated a total absence of
clearly defined for effective co-ordination of hierarchy in the organizational structure,
decisions and their implementation. This instead studying individuals by their nature,
necessitated a detailed codification of their department, etc. Much emphasis was
organisational structure. brought to customer-orientation and the
need to study deeper behavioral traits of
Thus we see that codification of laws and customers.
order was a technical necessity which was In essence, the neo approach thus brought
recognized by Kautilya and hence he a people-centric perspective of the classical
emphasized on written orders and well and behavioral theories in a practical
defined codes. organization-oriented manner, thus,
bringing the 2 theories close to each other.
persons of high integrity, as they would not As any crime committed is violation of
have any personal benefit from the work human rights, there has been for setting up
that they do. Hence, he acknowledged that of Human Rights Courts for the purpose.
bureaucracy is the best form of legal- However, such change in the institutional
rational model. setup will not serve any effective purpose
But, bureaucracy is such a type of system unless the inherent ills of the system are
that the power is fully concentrated in the properly addressed.
hands of officials that it jeopardizes the
liberties of the citizens. A strong The vacancies in the judicial setuo must be
bureaucracy would undermine democracy. immediately filled up. Suitable reforms in
The society would not accept bureaucracy so the investigative and prosecuting agencies
easily because it knew it had a high may also be initiated to reduce corruption
tendency to be incompetent and get and delays. Media and Civil society may be
corrupted easily. So, Webers theories of suitably used to create pressure for quicker
highlighting the pros of bureaucracy rather disposal of cases.
than the cons was an attempt to ensure its
social acceptance. Hence, suitable reforms are required in the
present setup to make criminal justice
(Paper-II Topic: Significant issues in system more effective. The Human Rights
Indian Administration, Administrative Commission through suitable intervention
reforms since Independence) may supplement the efforts of this reformed
setup.
15 Looking at the state of criminal
justice administration, we do
not need a Human Rights
Commission, but a human rights 16 Broadly in which direction have
court. Comment.(200 words) administrative reforms moved
since Independence? Has it changed
the situation on ground? (150 words)
established. But its ills started surfacing and protect stakeholders interest by
also noted by ARC-I. Reforms in the field of metamorphosing into facilitating
Personnel management, financial administration post LPG.
administration and accountability were From cultural veil of secrecy and
brought. New institutions like IIPA, CBI, consequent discretionary powers of a
CVC, Dept. Of Personnel etc setup. But due bureaucrat, the reforms harmonized the
to highly authoritarian political leadership, administration with the mutation of Right
these were not reflected in governance. to information by Sevottam standards
After 1990s came the era of de- acknowledging the ecological needs of a
bureaucratisation, de-centralisation and globalized society.
open economy. License raj was done away. Thus we can say the administrative reforms
Administration took the role of a facilitator. in Indian bureaucracy have always been
Further transparency was brought by e- directed to address the prevailing
governance. The administration was made administrative challenges.
more participative. Recruitment and
Conditions of service were reformed.
Now the state vows to promote less
government more governance to bring (Paper I and II Techniques of
good governance in the system and Administrative Improvement)
accordingly reforms are being brought.
17. The available techniques of
2 administrative improvements(CPM,
PERT) are too mechanical and
The administrative culture of India has simplistic to be applied in the real
grown organically from ideology and world of governance. Comment. (150
ecological compulsions to administrative words)
necessity developing the system from being
the harbinger of economic, social and The administrator has to take decision in a
technological development in 1950s to the complex environment of political,
cutting edge for good governance, thus sociological and time constraints. Though
proving that it is capable enough to respond decision making techniques help to analyse
to the emerging challenges of the problem objectively, but the inherent
administration in 21st century. value free character of these techniques
Commencing from the ideological render them non-productive more often
aspirations, the community development than not.
program of the 1950s metamorphosed to For taking a decision using these techniques
PRI of the 90s, out of administrative the administrator must know all the factors
necessity to reform thus creating an and their degree of influence in the current
effective institution to implement centrally situation. However, situations are generally
sponsored schemes and bring decentralized unforeseen and such objective diagnosis in
planning. the given time constraint would not be
From the ecological needs of regulatory possible.
administration in licensing of industry to However it must be mentioned here that
LPG era the administrative reforms were these techniques could be used for reference
directed to build institutional capacity to by heuristically defining variables. Or they
MGNREGA is the largest public works Making the administration less bureaucratic
programme in the world. Its sheer size, and and more democratic; and managing
scope has forced changes at the lower-tier of disasters effectively and efficiently would be
governance in India. the two biggest challenges for Indian
administration in the coming years.
The Indian administration is characterized
by high centralisation and low delegation of Amid growing privatisation and
power and authority. It is essentially a top- globalisation, citizens expectations for
down model. But, such an approach could service delivery has increased manifold.
have never worked for a large programme Public services face a crisis of quality and
like MGNREGA. efficient delivery essentially because of the
rigid adherence to rules in the strictly
This forced devolution of powers in the hiearchial setup of bureaucracy. They have
spheres of planning, implementation and to become flat, more participatory and
monitoring to the Panchayat and block flexible enough to overcome this crisis. A
levels. At least 50% of the works are planned business as usual approach about the
by the Gram Panchaye and approved by the bureaucratic structure would only aggravate
Gram Sabha this crisis.
Monitoring could not have been possible by Also, with faster economic growth which is
the top-down approach. Thus, social audit often unsustainable and inequitable, all
came into vogue and now has empowered kinds of disasters are only growing in
and educated the lower tier. E-governance number. They include natural calamities,
at this level also became necessary for large terrorist and extremist attacks, industrial
level monitoring. Capacity building disasters, epidemics etc. As they take a huge
programmes for Panchayats like Rajiv toll on our society and economy(2.5% of
GDP as per World Bank estimates), and
private corporations can not manage them; achieving the constitutional goals. For eg.
it is essentially public administration that The President, the Vice President, Council
faces this challenge. Of course, making of Ministers, the judiciary are provided
organisations flatter and improving specific roles in the Indian constitutional
coordination would be a pre-requisite for scheme.
handling these challenges as
aforementioned. The constitution thereafter also broadly lays
out the means to achieve the enshrined
There are other challenges too but the sheer goals. Thus the directive principles of state
size and depth of these two challenges make policy are aimed to channelize the efforts of
them the biggest which require the greatest the various organs towards achievement of
attention. the constitutional goals.
It specifies the functional domain of each The Bureaucracy was a machinery designed
actor and prepares the ground for their co- by the British to perpetuate their rule,
operative functioning such that they especially in remote rural areas.
reinforce the efforts of each other towards
neutrality goes in hand with activism, as it is elite services(Group A). Some measures
just to defend the public interest and the including structural changes, institutional
philosophy of the constitution as a changes and career advancement can bring
whole.(social,economic,political justice; much need spur in the State Services.
equality-status,opportunity;freedom) Structural Changes include, restructuring of
posts and jobs which are especially reserved
23. Do State Services suffer in for Group A Services. There can be some
comparison with the All India and exceptions and opportunities can be created
Central Services? Suggest measures where State Services Personnel, as a reward
for enhancing the role, competence of their performance can avail them too.
and impact of State Services. (300 Institutional Changes like enhancing the
Words) capabilities of State Public Service
Commissions should be done. Standards of
State Services personnel are recruited by the Recruitment and Training should be
State Public Service Commissions. State improved in accordance to UPSC.
services occupy the lower ranks/positions in Career Advancement and in service
the state administration, where senior and promotion should be brought. Period
top posts are reserved for All India Services examinations and based on their result,
personnel. Therefore, Generally with speedy promotions of State Service
exceptions, the candidates which apply and Personnel can revive the lost enthusiasm
go to join state services do not possess high and promote activity in them. Also other
calibre and skills. opportunities available to AIS and Central
The State Services personnel are promoted Services personnel which enhance their
to All India Service , very late in their career. skills, can be open for these officials too.
The reason behind this is only a third posts
in AIS are to be filled by them. Even their 24.India has failed to devise a long term
career promotions in regard to posts is slow, strategy for drought management.
compared to All India Services and Central Comment (200 Words)
Services. The Governments often consider
them second rung officials and desire for All (Following pointers must be used when
India Services personnel. answering this question-
The State Services owing to these
limitations, tend to become less 67% of India suffers from drought every
enthusiastic, lack activism, and frustration year on an average. And, the toll it takes on
and pessimism often overcomes them. They human life, state finances and crop
lack a national perspective due limited production are thus immense.
mobility(only inside the State). They do not
receive the kind of training which is Despite the widespread prevalence and
imparted to AIS and Central Services recurring occurrence, the issue has become
personnel. Even their skills get outdated politicised. For, it is politically expedient to
and remain static owing to limited announce compensation for the farmers
opportunities, functions, roles and non rather than embarking on a path of drought
dynamism which characterise their job. management.
Hence, it is not misplaced to accept that
state services suffer in comparison to other
In the NDM act, 2005 the responsibility for In the field of Industry, India achieved self
drought and flood management has been reliance in various fields. Well distributed
assigned to the Min. of Agriculture. But, industries, including remote areas , were
pro-active steps have been elusive. setup. Similarly in the field of Agriculture,
various policies to help farmers were carried
These things are to be mentioned along with out. As a result, India achieved Green
your opinion on its repercussions for India; Revolution in 1960s , ensuring its food
reasons behind this failure; and what it security.
conveys about the state of Indian
administration.) Community development blocks were setup
throughout the country. But owing to lack of
peoples participation, it failed. Various
steps were taken towards decentralisation,
(Paper I and II) PRIs were setup throughout the country
and finally constitutional status was given
25. Indicate the milestones in the story of through 73rd and 74th amendment in the
development from the Nehruvian era of Liberalization model.
Model to the Liberalization
model. (CSM 20011/300 words) Banks were nationalised in 1971.
Agricultural credit was exacerbated by
setting up of RRBs, NABARD and
encouraging other micro-financial
India adopted socialistic policies after institutions. Various legislations towards
independence. Directive Principles were poverty alleviation, social reforms towards
enshrined in the constitution, obligating the reducing ills like female foeticide,
state to work for the welfare of people. population control, child care were brought.
Nehruvian Model was the centralised model Garibi Hatao ICDS, IRDP were all steps in
of governance and limited role of Private this direction.
sector. As the country progressed, the need
for decentralisation and liberalisation was The result of these was India obtained a
felt, which were finally brought in 1990s. 3.5% growth in GDP in early decades and
Liberalisation model have been in place later 5% in 1980s. Agriculture was
since then. transformed and its production grew
consistently. The Industrial output although
In Nehruvian Model ,the state assumed declined and India faced a BoP crisis , but
much greater role of Socio-Economic significant progress was achieved till 1990s
transformation. Public Sector Enterprises in basic infrastructure. New era of
were setup to bring rapid industrialisation. technology ushered in 1980s. Literacy level
Various social reforms in the form of and Health sector improved due to welfare
legislations were carried out. Land reforms measures of the state.
such as abolition of zamindari, first
amendment act etc were brought. India But still India lacked in many spheres. It
achieved many milestones during this era. lacked competitiveness. Many ills crept in
the governance system. Therefore
Liberalisation model was brought and This did not stop here. After a policy is
further reforms were carried out. framed, the execution is much more
complex and time consuming. Lack of
monitoring and evaluation allowed
discrepancies and leakages.
26. The blame for out poor public sector
performance can be laid on the way The discretionary power multiplied when
our bureaucracy is politico-bureaucratic nexus was setup.
structured,Comment (CSM Weak civil society, media and absence of
2007/200 words) technology failed to expose the above
limitations.
A look at the economic sub-system of the made with consultation, implementing with
prismatic society, also called Bazaar- the consent & co-operation of implementing
Canteen model also validates the agency, regular monitoring, changing the
above.Market forces of demand and supply behavioral attitude of the bureaucrats at the
as well as religious, social and ethnic factors suitable level etc.Due to top down model
influence the economy. Improper regulation with the assumption of similar reforms
of a diverse range of services results in works well in every situation the local
difference of price, quality and satisfaction diverse condition and particular need does
of customers. Wide gap in wages exist for not give the right planning of reform. All
the same work, fueling motivation to work these culminate in top down model and thus
by illegitimate means. it has not produced the desired effects.The
failure of lokayukta in states is an example
Thus a careful examination of prismatic of it.
society points out that many features of the The other reasons for the failure of
developing society exists and are at different administrative reforms are lack of political
stages of transformation. Therefore, if will to implement, fragmented nature of
prismatic model is evaluated in developing administrative reform in which only when
and developed societies, it will be found to problem becomes acute then steps are
be equally applicable. taken.Also in india the bureaucracy is
institutional not instrumental due to its
colonial past so its difficult to implement
any reform straightway without
30 The real problem of administrative corresponding change in behavioral
reforms in India at the state and local change.These further adds to the failure.
levels in that they are imposed from But its not true that all reforms imposed
above. Comment. (2011/300 words) from above are failure. The working of
vigilance commission in the states, the PRIs
Administrative reform is conscious change introduced after the 73rd and 74th
in administrative system to remove certain amendments, the RTI act despite of their
deficiency against the resistance.In india we certain deficiency are working satisfactorily
have three tier of government at the center, and has led to the realizations of their goals.
state and local level.Time to time reform So it seems that the reasons of failure of
effort are made at all the levels. administrative reform at state and local
The administrative reform at sate and local level are many and imposition from up is
level are taken in the most of situation on one of them. So to be effective the reforms
the compulsion from union government be should be designed at particular level and if
it forcing of states for implementing PRIs or necessary the persuasion to adoption of
legislating on FRBM. States dependence on reform rather than imposition should be
union for finance becomes the main reason preferred route.
for this compulsion. Similarily at the local
level the reform takes place at the behests of 31 Attempts to solve administrative
either the center or state that too for the problems in isolation from the
finance or fear of being surpassed. structure of power and purpose in the
But for any reform to succeed there are polity are bound to be illusory.
certain preconditions like its plan should be
efficient.The law part which is policy world so as to guide them to better manage
deliberation if left to the political masters the financial aid and economic and
will make administration even better and development prospects brought as
management approach can fulfill in assistance by the first world. The NPA
accomplishment of this. though emphasized on values of
public administration has never been able to administration but is also concerned about
realize its full status and potential as an effective delivery of public goods and
independent social science subject,if it leans services.
toward management it can build its own
theories, body of literature without loosing The recent development of NPM & PCT is
its independent status. the resurgence of the importance of
management principles in Public
new public management paradigm ,public Administration by realistically evaluating
choice theory ,pressure from private sector existing institutions and including citizens
and globalization has in fact made public for service delivery.
administration to seek efficiency,customer
satisfaction,profitability etc In the light of above arguments we can
at present time main thrust is to make conclude that the base of administration is
administration customer oriented,consumer management and not law.
friendly, efficient and effective.
2
35 Do you think there is a sort of
Public administration being the executive paradox between e-governance
arm of the governments philosophy and and good governance. Explain fully.
ideology, is indeed closer to management (CSE 2012/200 marks)
than law.
1
The classical thinkers emphasized on
politico-administration dichotomy. They Good governance as a concept tends to end
tried to develop the discipline as a value free the conventional formalism of public
science to manage governments policies. administration in the favor of bestowing
Administrators were given a set of primacy to citizen welfare than rigid
principles, like Fayols fourteen principle or procedures.
PODSCORB, from purely management
point of view so that the administrators E-governance with its well defined and
could easily organize, co-ordinate and seemingly rigid procedural module gives us
manage under the light of policy decisions an impression that the administrative
given to them by their political bosses. The formalism is re-imposed, being paradoxical
principle of anonymity and neutrality stems to the basic tenant of good governance.
from these basic seeds of management in
the discipline. Good governance envisages collective
problem solving with blurring the lines
Later CPA developed in order to understand between polity,administration & citizen. E-
the administration environment of the third governance clearly assigns the role of
service provider and beneficiaries thus not the case with e-governance as it is
demarcating the lines between polity and technical ,efficiency oriented and value
citizens. The e-governance with its ICT free.equity is cornerstone of good
platform chiefly focuses on administration- governance but by delivering services by the
citizen interface thus creating an impression use of e-governance common citizens are
of politico-administration dichotomy. Thus made to be passive bearer of services packed
e-governance seems to define boundaries in bureaucratic box with authoritative
than blurring them. stamp on it,e-governance makes it one way
affairs with very less care for common mans
However examining the situation closely perspective.
reveals that there is an inherent flexibility in e-governance needs highly skilled man
ICT platforms for they can modify power,technological intensive infrastructure
themselves in least possible time with least and in most cases it works on hub-spoke
possible effort. Easy availability of model where hub becomes ivory tower and
information, a benefit of e-governance, is spokes just obey diktats from it,this gives
the biggest contributor to bring change in birth to centralisation of functioning on
laws and procedure. Thus administrative other hand good governance works with the
formalism in fact reduced by e-governance. help of local community engagement and
participation ngos and various local groups
Moreover e-governance can synergies the are stakeholders in good-governance.
action of government, civil society and
citizens by establishing an effective good-governance is pushed by multi aid
networking of social institutions. Thus agencies which have backing of multi
policy information, views and feed-backs national companies while as such pressure
could be easily exchanged and incorporated is not behind e-governance.
in the planning stage itself thus providing a e-governance restores bureaucratic
huge savings in time and labor. tendencies in organisation as it makes
technological work and knowledge
Thus we see that there is no paradox mystifying and secret on other hand good-
between e-governance and good governance governance is more open freindly and
in fact the former is an instrument to bring transparent affair
later.
36 Coalition politics of contemporary
time is,at times, at war with the ideas
of planning commission. Comment.
2 (200 Words)
Arthashastra therefore is rightly called a inherent opaqueness left ample scope for
realistic document that provides a insight corruption & nepotism. Thirdly, with
into the system of those times. Kautilya has limited accountability in parliament after
explained role of king, various the appointment & zero participation of
administrative levels, revenue politics in appointment the higher judiciary
administration, foreign relations, military was practically accountable to no one.
structure and the importance of satisfaction
and welfare of the people. Thus we see that there was a need to change
Arthashastra explains how the system the system of appointment. For this a
actually functions in practice and has not national judicial appointment commission
described a desirable ideal type. has been proposed. It will consist of
representation from the government, chief
opposition party, eminent civil society
members and the judiciary. Thus the new
panel aims to encompass all the
stakeholders in appointment exercise. It
38 Independence of judiciary is provides a balanced power distribution
sacrosanct but seeking a broader where neither the government or legislature
collegium based judicial appointment not the judiciary is in commanding position.
needs serious exploration. Give your The representation of civil society will
views. (300 Words) ensure PIL friendly judges in judicial
appointments.
A fixed tenure would ensure Good In his decision making construct, Simon
Governance. It would also end harrasment amongst other things has called for
of honest officers and fix accountability for divorcing values from the factual aspects of
action. For, oral orders need not be obeyed decisions. However, as NPA proponents
unless followed by a written order. The most forcefully underscored, values, albeit
change would be most reflected in state objectively premised, should be an integral
governments which in recent cases like that part of administrative decisions.
of Mr. Khemka was alleged to transfer
officers arbitrarily. There can be little doubt Simon in his bid to make decision making
that this change was much-needed but the rational sought that preferences, biases etc.
way it has come is problematic. (values) which decide the ends of decision
making should be avoided. This logical
The SC has essentially given a directive in positivism of Simon was akin to the
the PIL which should have come from the neutrality theorised by Weber. However,
executive or the legislature. More such value neutrality of only feasible in an
problematic is the precedent it can set for egalitarian setup. In societies with
every major grievance that has not been inequities, administration needs to be value
settled politically would be settled in the laden so as to mainstream the marginalised
court. The fact that there is little political sections of the populace. For eg.: the TPDS
consensus and it would be implemented by in India seeks to positively discriminate
the political executive after framing a law on against the BPL and the antyodaya
the issue- renders the directive futile. It may population given their socio-economic
end up similar to the directives on police depravity.
reforms by the SC. Moreover, in practice it
would not be a major transformation as long Simons concept of administrative man and
as there is political resistance and collusion bounded rationality nevertheless had ample
by the bureaucracy. light on how decisions are actually taken in
an administration. Infact, Simons theories
Fixed tenure for bureaucrats is welcome but can be used to instil the right attitudes in
there are larger and deeper issues which administrators through training which will
have been subdued beneath the directive. Its ensure that his bounded construct is in line
success would ultimately depend on the with the administrative requirements.
political class and cooperation by the Hence, Simons theories are very much
bureaucracy. relevant for the growth of public
administration as an activity as well as a
discipline.
2
Diceys understanding of Rule of law was
Innovative policy making, keeping the conceived in thought framework that
welfare of all the stakeholders in mind is a compared the legal system that existed in
very tough task indeed. But, a tougher job Britain with that of French.
would be to implement it efficiently and
effectively. Corruption, leakages, He saw the two as distinctly different, with
incompetency seeps in, thus the whole point the Britain system being exemplary of rule
of the policy is lost. of law that rests on the principles of i)
After tardy implementation, a more difficult equality before law ii) No arbitrariness and
task would be its monitoring, evaluation and iii) Laws being sourced in the customs and
suggesting changes. Monitoring huge pan- conventions of the society.
India governmental schemes is a
humongous task and requires special On the other hand, the French system had a
coordination, leadership and large amount separate legal procedure for ordinary
of resources. A well intended but over citizens and a separate one for the state and
ambitious optimism while policy its official. This was assessed as being
formulation takes its toll during monitoring discriminatory in nature by Dicey and he
and on-ground implementation. Best termed it as administrative law.
example to cite is the PDS system.
Monitoring through regular visits of However, Diceys understanding was not
thousands of ration shops for corruption matured enough. He did not realize that
checking is very tough indeed. Evaluating rather than seeing Rule of law and
such schemes which have insufficient and administrative law via separate lenses, one
unreliable data is another common failure. should actually see them as two sides of the
Thus, the laxity in such important phases same coin.
renders even the best welfarist policies
infructuous. The two are mutually re-enforcing.
These loopholes should be filled in by using
ICT for e-Governance, online tracking of The rule of law provides the broad value
subsidies, direct benefits transfer policies edifice from which the administrative law
etc. These new technological measures help determines its value goals.
in improving transparency, accountability The administrative law, in turn, uses the
and makes monitoring and evaluation much discretion provided to handle the daily
easier. Thus, the objectives of the policy can exigencies and bring about a state of rule of
be realized successfully with some law.
institutional and procedural mandatory
changes in the system. The fact that it is hard to find a country
(including Britain) where the two do not
Douglas McGregor postulated his theory X We can already see such change happening
and theory Y based on the mental attitudes in the IT sector for example. Google, one of
of managers. the frontier in such change gives 20% of
time to its employee to work on the task that
Theory X applies to managers, who are of they desire, thus giving them the autonomy
the opinion that the worker is lazy, does not and freedom to explore their creative side.
want to take responsibility and therefore The organization is flat, and encourages free
needs to be disciplined and led in a strict flow of communication. Rather than making
fashion via rigid rules and regulations. strict rules, it allows for more self control.
On the other hand, Managers belonging to This is not to say that managers belonging
theory Y are of the opinion that man by to theory X would completely loose their
nature wants to work, take responsibility relevance. In dealing with immature
and grow by himself. Thus a managers job subordinates, theory X would still work.
is to create conditions that are conducive for
such growth and provide a supporting and However, the growing trend would be to
enabling environment that allows the move towards the ambit of theory Y as the
employee to realize their full potential. number of organization employing
immature personnel would slowly but surely
According to McGregor, managers affiliated decline.
with theory Y are more successful, then
their theory X counterparts. Also, he was of
the view that moving forwards this trend
would only strengthen. 44 Weberian model of bureaucracy
lacks empirical validity when applied
With every passing year, technology to modern democratic
advances, more things are getting administration. Examine. (2003/200
automated, the complexity and dynamics in words)
the organization is increasing. This in turn
In such a case, Barnards theory strives for However, his work had its own limitations
maximum social acceptance. However, his and was more suitable to the largely value-
concept belittles the superior-subordinate free private organisations. Thus, public
relationship. Besides, it may become administration academic community did
difficult to run bureaucracy if the not gain much from fact-value dichotomy.
subordinate refuses to comply, as per his
conception. But, for a profession which requires
specialization, perhaps nothing could have
Despite such issues, Barnards conception been more substantial than hard fact based
catches the essence of authority. For, decision-making. It grew as decisions could
compliance followed by inaction on orders become more scientific and objective
reducing the space for intuition, experience The current automation and use of AI in
etc. The bounded rationality concept made decision making too follows from Simons
administrative decisions look more realistic. call for programmed decisions.
Even then, over-reliance on facts and However, he has been criticized for
positivism had little space in public introducing politics-administration
administration. They were more suited to dichotomy via the back door in the form of
private organizations. fact-value dichotomy. His focus on
centralization and his view of better
Therefore, while Simons work generated a decision coming out at the top of hierarchy
new wave of thinking in academic and go against the current trends of
practitioners circles alike, its implications decentralized and participative decision
were limited for Public administration. making.
However, this view is not well founded. Taylor had graduated from being a shop
floor level worker to a top level manager.
Bureaucracy exists as an instrument of the Being exposed to various inefficiencies
state to further the cause laid out by the govt existent at the shop floor level in those times
and implement its policies. As such, the his primary focus was on overcoming them.
very origin of bureaucracy is rooted in the
politics and aspirations of the society. In his pursuit of enhancing efficiency,
Taylor took a very limited view of the
But yes, one can argue on the degree of workers. His primary focus was on division
autonomy and independence that a of work, its standardisation and building
bureaucracy should enjoy. In fact, Weber incentives so as to enhance productivity.
himself conceded that bureaucracy has an
inbuilt tendency to turn from instrumental The primary reason for such orientation of
to institutional, and should be headed by an Taylor can be traced to him being a
elected representative to check this. practitioner. His principles were borne from
his practical experiences. However, his
Further, in a democracy, the peoples will practical sense did touch the human
runs supreme. And hence, it is impertinent psychology marginally through his piece
on bureaucracy to respect that will and rate and mental revolution concepts. The
evolve its goals and standards in accordance piece rate system underlines the human
with the same. tendency to compare the input-output ratio
that resembles the equity theory of
While true, that in many govts there has motivation of Stacy Adams. The mental
been unnecessary interference of politics in revolution was also aimed to resolve the
even day to day working of bureaucracy, but psychological antagonism between the
this should not be made an excuse to call for employees and the subordinates which
a complete separation of the two. manifested itself in the form of zero sum
game.
Instead, we should better institutionalize
the relationship between bureaucracy and Such cursory treatment of socio-
politics and frame a set of guidelines that psychological attributes was also the result
balances autonomy and accountability, and of the non-appearance of the behavioural
realizes the popular dream within the legal sciences at those time. However, it must be
framework. noted that despite the passage of more than
a century, Taylorism still remains relevant
and may be seen through the current
emphasis on the efficiency in any discourse
of public administration-from NPM to good
governance.
48 Taylors scientific management
ignored social and psychological 2
factors. Comment. (2007/200
words) Taylors S.M.T is undoubtedly a great
movement and solved various industrial
1 problems,increased workers efficiency,
With the increasing trend of Thus, we can say that as the burden in
decentralisation and people empowerment, development functions reduced and
local self governments are gradually taking increased regulatory functions, collector
role has changed largely to regualator and Two new functions implementing
facilitator. Chemical Weapons Convention, and
Performance Management have been added
51 The Cabinet Secretarys is a very to secretariat. His role is prominent.
general staff function, not a line
function in relation to the ministries.
His business is to help not to oversee.
Comment. ( 300 Words)
52 With respect to Globalization and its
administrative challenges, explain
state capacity deficit and its
With rise in complexity of governance and implications. (200 words)
advent if several ministries, the role of
cabinet secretary has become prominent.
His role can be described as following :
Globalization implies greater inter linkage
Providing Secretarial assistance to Cabinet between the economies of various nation
This includes setting agenda for meetings, leading to a freer and open trade.
communicating different ministries, writing
minutes of the meeting and circulating it to However, it is alleged that the newly
all stakeholders, oversee implementation of independent states are at present not in a
cabinet decisions by concerned ministries, position to handle the various challenged
administers GOI rules of business and that globalization brings and it is resulting
transactions etc. in a form of neo-imperialism with the
developed states reaping all the benefits.
Coordination He acts as the link between
different ministries, assists in ecision For example, the TRIPS agreement is said to
making, resolve conflicts, evolve consensus. lead to a redistribution of wealth from the
developing to the developed states.
Advisory Role cases involving legislation
including issuing of ordinances, The unbalanced polity, in certain cases, has
negotiations with foreign countries, prevented the new born states to evolve the
proposals for setting public committee of necessary regulatory framework, before
enquiry and considering reports of such globalization could come in.
enquiry.
Globalization is also seen as challenging the
He does not have any supervisory function sovereignty of the state, where at times the
over any ministry/department. But he bilateral agreement can come in way of
manages the crisis situations. certain welfare measures that the govt
He acts as buffer in cases of clash between wants to take.
ministers and bureaucrats, and advices civil
servants. He heads Committee of secretaries The lack of state capacity also leads to
on administration and Chief Secretarys acceptance of unfavourable good
Committee, and Civil Service Boards. governance agenda, that is alleged as being
Costs include not just the monetary costs of While the seventh schedule of the
land, labour and capital; rather they also constitution enumerates the functions and
involve intangible costs like social, cultural delineates the responsibilities of the centre
and environmental inputs that go into a and state respectively, the exigencies and
policy. complexities of administering a huge and
diversified nation has evolved a structure of
Similarly the benefits too need to be its own.
benchmarked on several dimensions like The huge dependence of the state on the
equity, efficiency, relevance, building of centre for meeting the financial needs, the
social and human capital. proliferation of various centrally sponsored
schemes, the conditionality attached with
For example, PSUs were built with the twin the release of funds etc; have all led to a
goals of economic upliftment, as well as school of thought emerging that sees the
social purpose. However, during their audit, central departments as impinging on the
only the monetary side was considered. states administration.
This led to not only an impartial analysis of For example, the release of fund in case of
With every governmental action being Both work towards policy formulation and
recorded, it has become easier for people to implementation. Even with the strictest
find files to justify a certain action. But, this practice of political neutrality, the
should be coupled with transparency so that ideological imprints of the bureaucrat is
all files are accessible to all people. This has hard to avoid. It is more often and deeper in
been possible with the implementation of developing societies where political class is
the RTI Act. not mature and Unbalanced Polities may
exist.
The introduction of Citizens charters has
ensured the govt would stick to its Besides, even if the bureaucrat avoids
objectives and empowered the citizens to ideological biases in policy formulation, its
ask questions regarding its effectiveness. implementation would bear his imprints.
With the advent of ICT, e-Governance has He has to decide on a host of issues on a
brought govt closer to the people and has day-to-day basis. No person can be
helped gain citizens opinions in psychologically neutral and therefore
formulating policies too. Social audits are neutrality is not possible while disposing
true critics of governmental schemes also. daily issues. It is more so while
implementing large welfare schemes.
Thus, with new innovations, accountability
has widened its dimensions, thus creating a However, the concept of neutrality is
better society. important for preventing the bureaucracy
from becoming politicised. This is achieved
by imbibing the bureaucracy with the
constitutional values, which could guide
56 The concept of Civil Service him irrespective of the political party in
neutrality is outdated and does not power.
augur well for a developing
society. Comment.(200 Words) Therefore, with the peculiar demands of the
developing societies, the concept of
1 neutrality has surely become outdated, but
not completely irrelevant.
The Weberian concept of neutrality was first
applied in England which was a consensus 2
based society with little divergence on
fundamentals. With the rise of developing Civil Service Neutrality (CSN) rests on 3
nations and their wide ideological spectrum, principles:
the concept has lost its relevance. 1) The publics trust that politician and
bureaucrat would work for their benefit.
In societies with political ideologies existing 2) The politicians belief that her directions
from extreme left to extreme right, would be followed
expecting both the minister and the civil 3) A bureaucrats faith that a political
servant to share the same ideology would be regime change would not question the
a fallacy. action done in previous regime.
A developing society is very dynamic and many sub-systems like HR, Production,
complex. In order to drive it and uplift the Delivery etc., which are inter-dependent and
socio-economic status of the citizens, mutually influencing. The organization
cooperation and careful coordination becomes a complete distinct entity which
between the political executive and interacts with its environment and also with
bureaucrat is a sine qua non. For this to its sub-parts. So, systems approach is very
happen, CSN is a must. much valid for organizational analysis.
Barnard, adopting this approach, said that
However, CSN does not mean that a an organization is a system of consciously
bureaucrat should stop giving free and fair coordinated personal activities of atleast
advice. Infact, an informed and two persons. He said that it would function
comprehensive decision making process through an equilibrium of contributions and
warrants that the bureaucrat be involved in satisfaction of the people. He advocated that
policy-politics; while at the same time authority came from bottom up and gave
staying away from party politics. importance to communication and
relationship. Therefore, there is an
Also, the bureaucrats first duty and interaction in its sub-systems i.e. people, in
obligation is towards the constitutional this case.
values and CSN should not be used as an David Easton, on the other hand, applied
excuse to ignore them and follow the systems approach to political science. He
political directions blindly. defined it as an authoritative allocation of
values for the society. He used it for policy
In the era of unstable politics with varied making process. He advocated a five step
ideologies and coalition politics, the concept systemic process input, conversion,
of CSN has taken an even more important output, feedback and environment. Thus,
avatar and needs to be internalized firmly. David Easton introduced systems approach
in policy making and political science.
Whereas, Barnard used it to define an
organization and its working.
Therefore, Systems approach is relevant
57 The Systems approach is relevant even today in analyzing many fields of study
even today for organizational and thus can be applied in many cases.
analysis. Discuss how Barnard and
David Easton adopted this approach 58 The administrator needs autonomy
in their respective areas of study. and discretion in much the same way
(CSE 2011/300 Words) as the politician needs control and
intervention. Discuss. (2004/ 200
words)
The bureaucrats see the political executives these tools have proved their utility?
as amateurs not able to understand the (250 words)
technicalities of administration. There
interference is seen as unnecessary and
impinging on the autonomy of bureaucracy. Evaluation of the Indian govt can be studied
from two perspectives. One that is done by
The politician on the other hand feel that external and internal agencies like Planning
the bureaucrat do not understand the needs commission, IMF, World Bank, WTO, the
of the societies and are more techno-centric credit rating agencies etc (macro
rather than citizen-centric. The expect the evaluation). And second, that is done by the
bureaucracy to be committed and toe the Indian citizens via the process of elections
line without any resistance. every 5 years (micro evaluation).
This friction at times results in excessive The macro evaluation is based on indexes
interference by the politician in even day to like the Human development index, the
day matters, use of transfers to discipline multi dimensional poverty index, the gender
the bureaucrats, and in some cases a very inequality index, the sovereign rating of the
unhealthy nexus between the politician and govt, the ease of doing busilness etc. These
bureaucrat where they engage in a patron- tools benchmarks the performance of the
client sort of quid pro quo relationship. country and help the
international&domestic agencies and
This, obviously, aint a very healthy trend. investors in deciding their strategies. The
The politician via the peoples mandate strategy could be towards framing a policy
represent the aspiration of the society and aimed towards giving aid, or could be used
bring in the dominant values to the policy to decide the investment model.
building platform. The bureaucrat on the The objectivity of this evaluation helps in
other hand are supposed to complement puting things in proper perspective and
this via their technical expertise and paints a reasonably realistic picture of the
crystalize the values into empirical realities performance of the govt on the growth and
through an efficient and effective framing the development front.
and execution of policies.
The micro evaluation on the other hand has
The two need to work as a team, and respect a more emotional aspect to it. It is done
each others autonomy and discretion. via a code that is multi dimensional and
involves primordial identities, the
The need, as mentioned in the 2nd ARC, is perception of development, the ecology etc.
to frame a model code of conduct that This evaluation is very particularistic and to
governs the relationship between the two some extent illogical (in Bernards
most important structures of the terminology).
administration. The recent ruling of SC also However, this evaluation is the one that is
points in the same direction. more effective. It puts pressure on the govt
as it is the one that decides its fate. Thus at
times, the evaluating criteria leads to
59 How is the performance of the Indian policies that are more popular than rational.
government evaluated? Do you think The role of identity in the evaluating
A leader is supposed to give a holistic vision who have a separate existence of their own.
for the organization and communicate this By sticking to individual needs, a leader
effectively to the team, so that they can sparks a desire to work and achieves
internalize it and are motivated to aim for meaningful cooperation. This dimensions of
the goal. The basic job of leader is to the cooperation was unravelled by thinkers like
zone of influence of the worker and align Barnard, Follett etc of post-scientific
them with the organizationals goal. management era.
Thus, while a managers job is tactical to Such cooperation to secure compliance can
formulate the path that allows the only be achieved if the orders carry
organization to reach its goal and devise the legitimacy with them. With the backing of a
day to day operation and tasks for the good leader, a charismatic authority is
employee; the leader goes a step ahead and added to the order even as it carries
aims to infuse the necessary spirit of esprit- Formal authority.
de-corps to pump up the morale and give a
sense of ownership and accomplishment to Therefore, this charisma with the formal
the worker even in their regular routine job. authority which derives from the partly
irrational nature of man, is the influential
It has been shown that productivity is a increment to the order.
function of both tools and techniques (i.e
the formal structure) and Morale &
motivation (i.e the informal part) of a
worker. A leader, basically focuses on the 62 In the era of neo-liberalism there is
socio-psycological aspect of the workers by an emphasis on a strong state and a
weaving for them a realistic dream and vibrant market. Ironically this
showing them a vision. phenomena which is contemporary
could be dealt by a classical theorist
Thus, a leaders contribution is an such as Gullicks view on the nature of
increment over the managers work and the state and the role of the
together it can yield an efficient and administration. Discuss (250 words)
motivated team.
2
Neoliberalism refers to economic reform
With advancements in socio-economic life policies such as eliminating price controls,
in the past century and amid growing deregulating capital markets and lowering
organizational complexity, mere mechanical trade barriers, and reducing state influence
ordering does not ensure effective on the economy especially by privatization.
compliance. This is ensured by sound Proponents of Neoliberalism consider this
leadership. as panacea of all problems of inefficiency,
lack of competence, corruption that prevails
As the functional theory of leadership puts among the public sector.
it, leadership has to balance task needs
along with the team and individual needs. However neoliberalism has its own
For, organization is manned by individuals problem, specially for developing countries
where lack of technological advancement Indian bureaucracy like low level of morale
compared to developed countries and their & motivation can be solved with the
powerful MNCs, moving them toward behavioural thought. The job enrichment,
neocolonialism. the involvement of employee in the
performance appraisal, the involvement in
This can only be tackled by a strong state job design will boost the employee morale
with effective regulatory policies, wider and motivation. Similarly reward for good
participation in decision making which help performance will also do positive. The
in safeguard local interest. recommendation of 2nd arc for increasing
motivation like job enrichment, conducive
Gulick in his recent writings emphasizes the work environment, the constitution of a
need for a new approach to the fundamental national award and the selection for foreign
organization of the state, introducing assignment are on this line. The
greater decentralization in place of present introduction of PRP via 6th pay commission
centralized, hierarchical, military recommendation is also important.
structure.The main function of the state Similarly the leadership development using
should be human welfare, survival and behavioural thought and positioning right
improvement to meet the challenges of people at right place will go a long way in
every changing environment. But achieving GG in India. The domain
unfortunately, the structure of the modern allotment and leadership development in
state is specifically designed for war. As a mid and higher management are part of
result, the structure of the modern state is this. Involvement of people in decision
distinctly military. It is authoritative, with making is also important in GG.
all authority, concentrated at the top, and all The hierarchy ridden Indian administration
the work, but not the authority, assigned to in not conducive to the Good Governance
subordinates. the organic and flatter structure, more
frequent communication both within and
This need to be changed. Formation of outside organisation will led to the better
SEBI, TRAI, NGT are in same direction. administration.
In nutshell it can be said that till now the
reforms have been concentrated more on
structural and process reform so cannot led
63 How can the behavioural school of to desired result. When it will focus on the
thought be made instrumental in behavioural change then only the reform
achieving Good Governance in will be successful and good governance will
India? (250 words) be achieved.
Finally, you have mentioned the budgetary JPC, PAC , Estimates commitee all go
processes currently followed in India, not through. These committees contain
the budgetary system. It is outcome members of political parties , however, their
budgeting system that is currently followed. discussions take place in closed doors.
It is basically a makeover of the
performance budgeting system. Here, the Legislative oversight ensures the
socio-economic outcome of a budget is accountability of the executive to highest
evaluated instead of measuring the outlays institution of the land.
as compared to the input(money).)
> however, increasing disruption, walkouts activities done by the people than the people
by various political parties have reduced the themselves. They gave importance to their
amount of time spent on debating. Budget humane feelings, thoughts and beliefs and
2013, RS passed the budget with proper strived to increase their motivation levels.
Questioning.
Thus, while the classical theorists saw
individuals for their physical competence in
an organization the humanists saw their
actions and activities as the basis of
organizations.