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Good governance

analysis

The Challenge of Good Governance in


India: Need for Innovative Approaches
Balmiki Prasad Singh

a ndit fashionable term and is being used

P J awaharlal
Nehru, the first Prime
Minister of India, in
his famous Tryst with
Destiny speech of 15 th August
1947 succinctly put the task before
in a variety of ways and that covers a
large number of organizations both
in public and private domains.
For our purposes, however,
we are confining governance
people’s representatives and the only to public domain. We are
services in the following words; concerned here with that form
“….. to fight and end poverty and of governance which serves the
ignorance and disease; to build citizens by safeguarding territorial
up a prosperous, democratic and integrity of the State and securing
progressive nation, and to create individual security, rule of law and
The need is to social, economic and political the delivery of services ranging
institutions which will ensure from education, health to livelihood
go for ‘million justice and fullness of life to every and food security.
negotiations’ that man and woman.” These works are Context
still in progress. A deeper look at
would ensure that these tasks would clearly establish No theory of governance would
that these goals are entirely within be intelligible unless it is seen
government, market the realm of governance. in the context of its time. In the
beginning of the 21st century, it has
and civil society Meaning
become evident that those who want
There is no accepted definition minimal government are having an
work together for of governance. There is divergence upper hand against the advocates of
the poor of opinion about the meaning the paternalist welfare state.
of governance between the
An efficient, effective and
conservatives and the liberals,
democratic government is the best
between socialists and the
guarantor of social justice as well
communists.
as an orderly society. Similarly,
In recent years the word there is also emphasis on the fact
governance has become a very that the administrative system has

The author is governor of sikkim and a distinguished scholar, thinker and public servant. He has been Ambassador and
Executive Director, World Bank (1999-2002).

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to be country specific and area Republic were those of nationalism, ministers began with demands for
specific taking in view not only the democracy, secularism, non- allocation of scarce resources in
institutions of governance and its alignment and mixed economy. favour of ruling elites and powerful
legal and regulatory mechanisms interest groups. The ‘neutrality’
The meaning of nationalism
but also its market, its civil society of the civil service came under
today relates more to further
and cultural values of the people. stress with ministerial instability
strengthening of a trillion dollar
The principal response of the state, since 1960s in the states. The
gross domestic product economy
therefore, would be to facilitate, to fragmentation of the authority at
and less to cohesion among states
enable, and to coordinate. Neither centre characterised by coalition
or integration of princely order
the market nor the civil society governments since the late 1980s
can perform this role as effectively that Sardar Patel so magnificently
has only deepened and extended
as the government and thus they accomplished.
this process.
cannot become substitutes for the Another historic decision was
government. But election after election
taken to make India a secular state.
common people are asserting their
India is not excluded from Religion always had a major place
voice, changing their representatives
this global debate or transition in our private lives. Politicisation
in a manner that has ensured change
from socialist order to capitalist of religious, ethnic and caste ties
in government in the states and also
growth models. Fortunately, the have reached unprecedented levels.
at the Centre. This phenomenon
Indian State does not have the Today communal and sectarian
supported by the civil society
monopoly of the public sphere. approaches are more prominent in
groups, the media and an active
The civil society is increasingly our polity and also in public policy
judiciary has ushered in demands for
more concerned with public sphere at national and state levels.
accountability of the executive.
issues and government intervention For the last sixty years, our
is considered necessary to provide Democracy has really moved
ideological frame of reference was
welfare schemes to cover social beyond periodic elections towards
determined by public choice. It
safety needs, upgrade health-care to ‘good’ governance.
is another matter that it was not
protect children, and help provide always real. Since 1991 we have Good Governance
opportunities for women and the slowly moved towards the capitalist
minorities. Citizens all the world over look
path.
up to the nation-state and its organs
India’s political leadership, Democracy is at the heart of for high quality performance. It is
policy makers and business brains governance in India. However, in its necessary that citizens are allowed
are actuated by a strong desire to working, democracy has revealed to participate freely, openly and
make the country an economic several inadequacies. The chain fully in the political process. Good
super-power in the 21st Century. of accountability from the civil governance is associated with
The imperatives of democracy, service to legislature and political accountable political leadership,
however, are forcing Indian political authority is weak; follow-through enlightened policy-making and
leadership to look deeper into the at higher levels of administration a civil service imbued with a
causes of poverty, inequality and is poor; and limited oversight by professional ethos. The presence
suffering of the common man. Parliamentary committees is part of a strong civil society including
National Values of the problem. Criminalisation of a free press and independent
politics and increasing role of caste judiciary are pre-conditions for
The concept of governance was and religion in electoral politics are good governance.
decisively shaped by the freedom major concerns.
movement led by Mahatma Gandhi What is ‘good’ governance in
and the aspirations of founding In the initial years of the the Indian context? The central
fathers of the Constitution. The Republic, the executive functioned challenge before good governance
values in the Indian context at the with considerable autonomy. The relates to social development. In his
time of the inauguration of the hold of politicians and specially famous ‘tryst with destiny’ speech

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on 14 August 1947, Jawaharlal access to justice. At the same time of legality will be set aside if
Nehru articulated this challenge as ad hoc measures are required to the aggrieved person brings an
‘the ending of poverty and ignorance provide immediate assistance to the appropriate petition in the competent
and disease and inequality of needy citizens. court.
opportunities’. Good governance
Rule of Law A necessary corollary of this
must aim at expansion in social
phenomenon is called ‘judicial
opportunities and removal of The concept of good governance
activism’. A large number of
poverty. In short, good governance, is undoubtedly linked with the
Public Interest Litigations (PILs)
as I perceive it, means securing citizens’ right of life, liberty and
are filed in High Courts and the
justice, empowerment, employment pursuit of happiness. This could
Supreme Court against the apathy
and efficient delivery of services. be secured in a democracy only
of the executive. This has served us
through the rule of law.
Securing Justice admirably but it has also highlighted
The rule of law is expressed the need for circumspection and
There are several inter-related
through the axiom that no one is self-restraint on the part of the
aspects of securing justice including
above the law. One has to clearly judges in performance of this
security of life and property, access
understand that the rule ‘of’ law task.
to justice, and rule of law.
is different from the rule ‘by’ law.
Another matter of significance
Threats to Peace Under the rule ‘by’ law, law is
in the context of good governance
an instrument of the government
The most important public relates to the fact that there are
and the government is above the
good is the ensurance of security virtues of ‘judicial creativity’ but
law while under the rule ‘of’ law
especially security of life and this phenomenon must not stifle
no one is above the law not even
property. The Indian nation- ‘executive creativity’ particularly of
the government. It is under this
state is aware of complexities officials working at grassroots level
framework that rule of law not only
of the situation and the need is for they are in day-to-day contact
guarantees the liberty of the citizens
to show greater determination with citizens and interact with them
but it also limits the arbitrariness
and be relentless in support to its in myriad ways.
of the government and thereby it
instruments of law and forces of
makes government more articulate Empowerment
democracy and social cohesion
in decision-making. The rule of
to defeat the elements of terror, An empowering approach to
law as Dicey postulated is equality
insurgency and naxalite violence. poverty reduction needs to be
before law. This is secured through
based on the conviction that poor
Access to Justice formal and procedural justice which
people have to be both the object
makes independent judiciary a very
Access to justice is based upon of development programmes and
vital instrument of governance.
the basic principle that people principal agency for development.
should be able to rely upon the In our constitutional system,
Our experience shows that
correct application of law. In every person is entitled to equality
when poor people are associated
actual practice there are several before law and equal protection
with public programmes, they
countervailing factors. Some under the law. No person can be
have consistently demonstrated
citizens do not know their rights deprived of his life or personal
their intelligence and competence
and cannot afford legal aid to liberty except according to the
in using public funds wisely and
advocate on their behalf. The procedure established by law. Thus
effectively.
most severe challenge relates to the state is bound to protect the life
complexity of adjudication as legal and liberty of every human being. Our Constitution is committed
proceedings are lengthy and costly The courts have the final authority to two different set of principles
and the judiciary lacks personnel to test any administrative action that have a decisive bearing on
and logistics to deal with these on the standard of legality. The equality. First, is the principle
matters. Systematic solutions are, administrative or executive action of equal opportunities to all
therefore, needed for strengthening that does not meet the standard and the second, the principle of

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redress of educational and social In the scheme of affirmative of implementation of Bharat
backwardness. The question is, action that the Constitution provides, Nirman schemes and several other
not only of the extent to which the State has been authorized to programmes. Similarly, it would
reservation in Government make special provision not only be essential to encourage private
employment can really change for the advancement of socially sector partnership and support
things for the better, but how it and educationally backward classes movement of self-help groups and
could be used, in order to benefit of citizens, for the Scheduled micro-financing institutions.
the socially, educationally and Castes and the Scheduled Tribes
Employment & Regional
economically backward ones. but also for women and children.
Diversity
Significant measures have been
In providing protectionist
taken in this regard during the last We are at a level of economic
regulations in government
sixty years. One such step relates development where India’s southern
employment, no special care
to reservation of seats for women and western states have enormously
was taken for the poor students
in local bodies. developed in economic and
since the Constitution only
educational terms while the northern
recognized “educational and Today India has 3.3 million
and eastern states are lagging
social backwardness” and not elected representatives in Panchayats
behind. The level of frustration
economic backwardness as a norm in nearly half a million villages out
on account of this disparity is
to be applied in formulation of of whom over one million are becoming evident in the spread
preferential policies in government women. Direct elections have also of naxalism and insurgency. It is
employment. brought into the village national life true that the nation-state is deeply
The Supreme Court in a landmark and consciousness about strengths concerned about this phenomenon
Judgment (Indira Sawhney & of democracy and the need for but it is only through the quality of
Others Vs. Union of India and democratic behaviour in terms of governance in northern and eastern
Others) delivered on 16.11.1992, the Constitution of India. The print states combined with high level of
while upholding the reservation of and electronic media in particular investment that regional disparity
27 percent of vacancies in the civil have strengthened this process. could be bridged. Generation of
posts and services in the Government Employment employment among the youth in
of India in favour of other backward rural areas in northern and eastern
classes (OBCs), provided for Generation of gainful States could be the catalyst.
exclusion of socially advanced employment for the youth is the
most challenging task facing India’s Delivery of Services
persons/sections among them
commonly known as “the creamy political economy. The principal feature of the
layer”. The Supreme Court further The need is to prepare the youth scheme of effective delivery of
directed the Government of India with such education that would services needs to be seen in the
to specify socio-economic criteria help them acquire vocational skills context of the fact that demands
for exclusion of “the creamy layer” and mastery over new technology, have to flow from the bottom up
from the OBCs. Subsequently, the including internet. This would and not the top down.
children of persons holding eminent make the youth employable in the The three institutions which
positions in Government and also job-market and also help those who have played remarkable roles in
of rich farming families were want to work on their own. improving public service delivery
made ineligible from reservation in
In addition, there is an in India are: (i) the judiciary; (ii) the
services. Recently, the Government
imperative requirement to pay media; and (iii) the civil society.
of India has stipulated that sons
and daughters of persons having special attention to generation The independent character of
gross annual income of Rs. 2.5 of employment opportunities in the judiciary that the constitutional
lakhs per annum and above would agriculture, expand area of coverage architecture has carefully provided
be excluded from reservation of of rural employment guarantee for has been of immense help.
services. schemes, and accelerate the pace The judiciary has intervened

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meaningfully to correct failures in Public signaling of support by the any action that they take. Access
service delivery by the executive. state leadership always helps civil to information, participation,
Public Interest Litigation (PIL) servants reach the poor people by innovation and accountability are
has emerged as a powerful tool in ignoring political interferences that needed to build an environment for
the hands of individuals as well as are aimed at securing individuals capacity building.
nongovernmental organizations or group interests of comparatively
Other Major Challenges to Good
(NGOs). better off people in the society.
Governance
The media, both electronic and The message is clear that when
At the obvious risk of
print, have emerged as a source properly empowered by political
generalization, I would like to
of pressure for change. It has leadership, a Project Director
refer to criminalization of politics
brought to the fore aspirations of or a District Magistrate can be
and corruption as major challenges
the common people, which in turn transformed into an effective
has exerted enormous pressure on to good governance.
instrument not only for innovation
public officials to deliver goods. in service delivery but also for its Criminalisation of Politics
quality and delivery on time.
The emergence of a large number The criminalisation of the
of non-governmental organizations Capacity Building political process and the unholy
in different fields ranging from nexus between politicians, civil
environment to culture to education Capacity building at all levels of
servants, and business houses
has become instrumental in bringing an organization is widely perceived
are having a baneful influence
forward the concerns of the public as the most important approach
on public policy formulation and
with a degree of regularity. to achieve quality of services and
governance. Political class as such
customer’s satisfaction.
Administrative Responses is losing respect.
I n a f e d e r a l d e m o c r a c y,
The Indian administrative It is true that public is not a mute
decentralization of power is viewed
scene is marked by few successful spectator to this phenomenon nor is
as necessary to empower people in
innovations and practices in public the media. The process of judicial
rural and urban areas to improve
service delivery and a large number accountability has succeeded in
their lot. The empowerment of
of pathetic performances. sending several legislators and
the local levels of administration
ministers to jail. But new methods
would foster confidence and
The general weakness have also been devised to fiddle
of accountability mechanisms enable more individuals even
away with the processes of law.
is an impediment to improving outside the bureaucracy to come
Criminals facing prosecution get
services across the board. The forward to handle community
out on bail and even go scot-free. It
lack of transparency and secrecy needs and enhance public good
is necessary to debar criminals from
that have been associated with effectively without hesitancy or the
contesting elections. It is imperative,
the administrative system from need of approval by higher level
therefore, to amend Section 8 of the
colonial times, besides generating authorities.
Representation of the People’s Act
corruption, has also led to injustice The most crucial element in 1951 to disqualify a person against
and favouritism. capacity building is leadership. Good whom the competent judicial
My own experience has shown leadership aimed at improvement of authority has framed charges that
that when the political leadership organizational culture is integral to relate to grave and heinous offences
granted key civil servants direct capacity building. Capacity building and corruption.
access, it was possible to resolve demands staff to behave responsibly
Corruption
issues that might have got and produce desired and agreed
complicated due to factional interest upon results. It means a collegiate The high level of corruption in
of political leaders at the grass- effort in which an individual or India has been widely perceived
root levels or through conflicting an organization could be made as a major obstacle in improving
circulars of the State Government. accountable and responsible for the quality of governance. While

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human greed is obviously a driver experiences and change in regional interest in preserving the status
of corruption, it is the structural and global environment. India quo. This comes in the way of
incentives and poor enforcement shifted from the commanding government becoming the effective
system to punish the corrupt that heights of the public sector agent of change and guarantor of
have contributed to the rising curve economy policy and slowly opted social justice.
of graft in India. for integration of markets and
Market is an integral part of
moved on the path of capitalism
A conscious programme for social order but the truth is that
beginning from 1991. It is true
strengthening of public awareness principles of market cannot be
that capitalism is not the accepted
and also empowering the existing allowed to govern society and
anti-corruption agencies would creed of the Indian nation-state. In
polity. Accordingly, no democratic
be required. The statutory right to an era of coalition governments,
government can leave market
information has been one of the the national government has had
uncontrolled and free from
most significant reforms in public to use ingenuous methods to push
regulations.
administration. economic reforms to usher in rapid
economic growth. This is also true The poor are poor of course
Overview of foreign policy arena. For our because of historical inequities but
Religion and culture play an purpose, it suffices to say that the also on account of failure of the
important role in social cohesion. concept of good governance though State to empower them adequately
The religious attitude of tolerance in vogue all the world over, the to get their entitlements. Democratic
and peace and cultural values of Indian product has its own special governance demands that the State
pluralism are conducive to good features and flavor. can not for long serve the demands
governance. And yet there is no of the rich and organized sectors of
It is being widely appreciated
casual relationship between religion the society and ignore the dalits, the
that good governance is dependant
and democracy. For democracy does minorities and the women because
not merely upon good policy
not belong to any faith. Equally, no they are unorganized and poor.
advice but more importantly
particular faith is synonymous with on the processes and incentives A multi-sectoral approach to
democracy. Indian democracy is to design and implement good governance that serves the cause
a product of freedom movement policies themselves. Scholars as of growth as well as equity alone
which gave primacy to values of well as administrators agree that can help in achieving the goal of
pluralism and equal treatment to participation of civil society in good governance. It is precisely
people of different faiths and ethnic decision-making, public sector here that NGOs, self-help groups,
backgrounds. The constitution capacity building and rule of law womens’ groups, legal assistance
guarantees, the judiciary upholds it are essential for quality and timely organizations and several other
and the leadership believes in this delivery of services. civil society instruments can play
value system. an influential role. Just as the
The concept and practice of
India’s democracy is at the government regulates the market
good governance in a country
centre of governance architecture. from committing misuses that are
demands that there should be
It creates opportunities, sustains detrimental to society as a whole,
constructive mechanisms and
leadership and generates hope. the role of the civil society is to
procedures that will enable the
The major shifts in India’s national ensure that government is not only
three principal actors – government,
value system made impact both on accountable and responsive to the
market and civil society – to play
the nitty gritty of administration as citizens but it also performs its
in concert and to supplement each
well as the intellectual build up of essential role as the guarantor of
other’s capability. The working of
the civil service, the police and the social justice.
all governments at the Centre and
judiciary. in the States has clearly revealed Fortunately, one clearly sees
The shift in national values the existence of powerful interest the determination of national
corresponded with new democratic groups who have a strong vested and several state governments to

YOJANA January 2013 9


provide a safety net at the bottom governance has become crucial. And yet rapid economic growth
of economic pyramid. The middle Civil groups like NGO’s, women’s is essential to meet aspirations of
class is a major beneficiary of new groups, trade unions, cooperatives, the Indian youth. Placed in these
economic initiatives in the post- guilds, faith organizations are all circumstances, the innovators have
permit, licence, quota raj. The need essential to buildings of inclusive to devise ways and means that
to awaken social consciousness of growth. Without the involvement secures both fast growth and an
captains of industry too is being of the people, without their voices, approach that combines Gandhian
increasingly addressed. The need to without their participation and ethics with democratic temper.
accelerate the pace of these changes
representation, a programme can As regards the Services, my
is obvious.
only be implemented mechanically. main worry is that the premier
Concluding Remarks Today, we need innovators in two services in the country namely;
areas in particular: women and the Indian Administrative Service
A major shift from or even
collapse of core values of freedom livelihood programmes. (IAS) and the Indian Police Service
movement are making adverse (IPS) which play a crucial role in
Wo m e n a r e k e y t o g o o d
impact on institutions of the republic the system of governance including
governance. Their increasing
and functioning of government. in the district administration are fast
representation in democratic
losing trust of the common people.
We are entering into an era of institutions have provided stability
It is not only for the government
capitalist innovation. It leaves a lot to Indian polity. Women can but for the services as well to look
of people out and the market laws bring constructive, creative and into these aspects of the matter as
even threaten to dominate natural sustainable solutions to the table. in the absence of trust between
environment. But as luck would Women participation in economic the civil service and the common
have it, fear of losing control of the programmes needs to be augmented people nothing substantial can be
circumstances and routines of one’s for in women we get expendable accomplished.
daily life and growing inequity is providers, educators, caretakers
bringing the State back. Fear of and leaders. Fortunately, innovations are
terrorism too has contributed to taking place in the government, in
the view for strengthening of the Second relates to livelihood. the market and in the civil society.
nation-state. Livelihood does not only mean The nature and content of good
factory jobs. It should relate governance would undergo changes
Although a return of ‘licence-
to social economy and local in tune with rising expectations
permit’ era is ruled out for ever as
we are getting increasingly linked to resources as well. It should also and fresh demands of the people.
the global market, good governance mean upgrading of existing and Democratic governance would
that people need in order to improve traditional skills that people have expect and secure from its leadership
their lives depends, in a larger possessed from time immemorial to be alive to such aspirations and
measure, on government activities in agriculture, in animal husbandry, to continually tune institutions of
and approaches. in fishing, in textiles and so on. polity to be effective instruments
Investment in upgradation of such of citizens’ welfare.
The quality of democracy
skills would lead to harmonious One is aware that ‘million
and the commitment and caliber
of public servants both in the relationships with nature. mutinies’ are taking place almost
executive and in the judiciary In view of deep-rooted social and on a daily basis in the country.
The need is to go for ‘million
would determine the outcome of the economic inequities of centuries,
country’s performance in key areas negotiations’ that would ensure
India can not blindly follow
– empowerment, employment and that government, market and civil
capitalist model of growth that
effective delivery of services. society work together for the
puts excessive reliance on market
poor.  q
In the post Gandhi-Nehru era, forces. For such a model would fail
the involvement of civil society in to provide stability to Indian polity. (E-mail: bpsias@gmail.com)

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