43

Number 0fl'n.v 43 1 Pay &-teiid.to multiply between Pay Commissions. Thc First
scn1e.r CPC had recommended about 30 standard scales and a b u t 150 scales in all .4t
the time of the Second CPC the number of scales exceeded 500.

43 2 The Second CHC rccommended a total number of 140 scales in

all At rhc tune when the Third GPC was constituted the number of pay scalcs had
again crossed the 500 mark. Thd Third CPC reduced the nurpber of scales to 80
Whcn the Follrth CPC started functioning. the number of pay scales had again risen
to 153 The Fourth CPC rn their rcconuncndationsreduced these scales to 36 But
3s of t d a ? there are 5 1 standard scalcs in csistencc in the Government of iiidia

Rali~iii:/i.w:gPii? 43.3 An aaempt has been madc to radonalise the existing 5 I standard
scit1t.s
scalcs of pay before formulating k i r corrcsponding revised scalcs of pay.

MlNlMUM AND MAXlMClM SALARY

.\lit, lnrlinr - 4-3.4 In the prcccding chaptcrs w e have dealt with the qucstim of
ntn.rr:t:t,vnr rctlir J
dctcrmination of the two cardinal points viz., the minimum pay of tlic lowest
not 10. h.. nrIlllr,,'ll
liinctioiii-q in Govt. and thc highcsi pay of the Secret& LO Govt. of India. Aftcr
considcrable discussion we arrived at the-figureof RS.2440as the minimum basic
pay and Rs. 26000 as thc salary 61 thc Secrctary. Thus we have retained the
tninimum-maximum ratio of 1 : 10.7 which had been fixed by the Fourth CPC
it is our feeling that if this ratio cannot be increased, it should not be allowed
t o get reduced either. That is Ihe reason why we have advocated a 100%,
neutralisation of cost of living at lhe higher levels. The figurcs of maximum and
minimum sduics gve an arithnlctigal rclationshrp of approsirnatcly 3.25 bctwccii

449
piierfocror the new basic pay and the unrevised basic pay. Normally, the application of such
a broad arithmetical ratio could have yielded all the scales that we wanted, but we
were compelled to makc a nurnber of other changes which involved either the
merger of scales or rahonalisation of the pre-revised scalcs or a change in the span
ofthc rcviscd scalcs, Thcre were other considcrations too: which wc havc tried to
explain in the succecding paragraphs.

43.5 W e have merged a number of scales, because the existing

scates were too close to each other, or because we decided to do away with
some scales altogether. The logic of the mcrgcr in caeh casc is explained below

1. Rs.950-1400 These were merged becausc thc

Rs.950-1500 first two scales \vcrc idcntical
RS 1 150- I SO0 but for a differcncc in span and
the third was an unusual scalc
which started at a highcr stage
but ended at Rs. 1500.

2. Rs.975-1540 These two scales wcrc also

Rs.975-1660 identical, but for a dirfcrcncc in span.

3. Rs. 1200-1800 The latter two scelcs arc

Rs.1200-2040 identical but for a diffcrcncc
Rs.1320-2040 in span. Rs. 1200-1800 was a
scale for skilled I1 catcgon of artisans, while
Rs. 1320-2040 was thc scale for skilled I category
artisans. We decided to merge these categories, so
that the artisans could progress directly fio m
Rs. 950-1500 to Rs.1320-2040on the analogy of
LDCs being promoted as UDCs. This merger has
thus taken- away one of the chief grievances
of artisans who always felt discriminated vIs a vis
their ministerial counterparts.

4. Rs.1350-2200 These two scalcs wcrc too closc

Rs.1400-2300 to each other.

5. Rs. 1400-2600 These are identical scalcs but

Rs.1600-2660 for difference in span. It
was felt $at then: wcrc too many promotional scales
for Group 'C' cmployccs and rctention of such
scales.gave littlc rclicf to thcsc cmployees
even on promotion

6.Rs.2000-3200 Thcsc arc Identical scalcs but

Rs.2000-3500 for dfference in span In many officcs. pcrsons w r c
being promotcd froin Rs.2000-3200

450
 (Group 'C' scale) to Rs 2000-3500 (Group 'B' scale)
This \\as an illusor? promotion.

Thc difference bctwxn the two

scales is very marginal and
there uould not be any
material diffcrcncc duc to their
mcrscr

X RS 2200-4000 The second scale was a very

Rs.2300-2800 short-duration scale of 5 years'
span and did not serve any purpose

0 Rs 3000-3625 The first scale was for a very

RS 3000-4500 small c m g o n of employees of
RS 3000-5000 Dcpartmcnt of Atomic Energy and
othcr departments. The latter
two scales were identical scales
with a difference in span only.
The last scale was meant for scientific senwcs
We have tried to integrate the scientific services
into the gcneral fraternity of Group 'A'
services. by converting some odd scales
into the standard Group 'A' scales.

1 0 . R ~3700-4450
. The first scale was unusually
Rs. 3700-5000 short in dubtion and applied
to v c n fc\\ categories.

i I Rs.4100-j300 The first scale was the

Rs.4500-5700 selection grade for unorganiscd Group ' A ' S C ~ I C C S
and Indian Forest Service and the second \\.as the
NFSG for organised Group ' A ' senices
l3> iiicrSinS the two scales. we ha\ e si\en the
benefit of the same scale to the unorganised sen ices
Kr IFS

12 Rs.5 Thc tirst \\as an unusually

Rs.5 short-duration scale for some
RS.5 scicwitic scr\ ices and isolated postsv The scconii
\\;is for DIGS of Police The third \\as again for
soiiic scientific sen ices. We have combined thc
thrcc as a nicnsiirc of rationalisation

1.; Ks iooo-0700
Ks iooo-7300

451
 14. Rs.76OOl-fixed There was no rcason for keeping
Rs.7600-8000 a fixed pay of Rs 7600, when all the other scales
between Rs 7300 and Rs 8000 had been comwtcd
into regular scalcs

I
MERGEK OF SCALES AND ACP I
43 6 In thc ncw dispensation nhcrc \\c arc attempting to guarantee
financial upgradations to all empiojccs. i t was considcrcd important that there
should bc substantial financial benefits to thc cmplo!ces at the time of ACP
upgradation This objective would not ha! c bccn achic\ cd. cspcciall\ in the case
of Group B and C employees if the scales had bccn alloned to remain close to each
other This is onl\*onc of the major rcasons for nicrgcr of scales

TREATMENT OF BLUE COLLAR A N D WHITE COLLAR

EMPLOYEES

43 7 There has been a long-standing perception that the white collar

employees rnamly consisting of the mmstcnal staff hm e becn able to manage more
attractive scalcs of pay with smaller numbcr of stagcs for promotion. In thc
subordinate offices, the LDC in Rs 950- 1500 Lvould bc promoted as UDC in
b1200-2030 and then to the level of Assistant in thc scalc of Rs 1400-2600 On
rhs: other hand, the blue collar workers in subordinate offices moved from the
skilled categor). of Rs. 950- 1500 to highl! skilled I1 (Rs. 1200-1800), then to
hi&.ly skilled 1 (Rs 1320-2040) and then to Mastercraftsman (Rs 1400-2300)

43.8 In order to alleviate this sense of grievance, we have, as a first

measure, decided to merge the grades of Highly skilled I and I1 into one scale
O f Rs.1320-2040.

43.9 We have also tried to improve the promotion prospects of artisans

in defence cstablishments by suggesting a more favourable inter- grade ratio for
than. An inter-grade ratio has also been recommended for technical supervisors,
with the same objective in mind.

43 10 A general unprovement of thc pa! scales of technical supervisors

has also bccn suggestcd on the basis of thcir cntr. qualification of diploma in
different disciplines of engineering All of thcm uould thus be upgraded from
Rs 1400-2300 to Rs 1600-2660 in prcscnt tcmis

IMPROVEMENTS PROPOSED AT CERTAIN LEVELS

Group 2)' scales 43 1 1 In the proposed re: Iqed scalcs of pa!. certain rtnproi ements havc
been cffcctcd at some Icvcls Earlier. thc diffcrcncc i n pa! bctucen the minima of
thc three group 'Dscales ifas at the ratc of Rs 2%- cach In thc rc\ iscc! scalcs. on
thc analog of thc prc-re\ iscd minima. thc diffcrcnccs bctnccn thcsc Group 'D'
scalcs should h c bccn at thc ratc of Rs 80/- or so Ho\\c\cr. the diffcrcncc
contcmplatcd i n thc proposed re! iscd pa! is Rs 1 101- and Rs I OO/- rcspcctivcl!

452
 43 12 In the prc-rcn.tscdpay scalcs k c wcrc only two grades for group
D staff. I c Rs 7 5 0 - 9 4 0 d Rs 775-1 150 But in the contemplrted Assured
Career Progression scheme, group 'D' staff have been given n four-grade
structure \ i d , Rs 2440-3200, Rs. 2550-3540, Rs. 2650-4000 and Rs
2750-4300 We have also dropped the pejorative des%nathnr of **khalrsi"
and "unskilled worker" and are instud ~ t i o ~the n ~ in the sale
i crtisan
of pty of Rs,750-940by the more grrccfut appellationof "Shrrmik"

43.13 In thc proposed scalcs, Lhc span of all thc Group 'D'scalcs has
bccn uxrascd In thc faur scalcs mcntioncd abovc, the spam has been increased
by 4 years, 3 ycnrs, 4 yern and 10 yenrs respectively. This has bccn
conscwiy donc to nducc thc stagnation prcsentiy being f d by Group 'D' staff.
Thc ~ ~ pA.C.Pi s&mc a coupled
~ ~with Ihc incrcasc in thc span of Group
'D scales will certainly help in reducing the s t a ~ t amongst
i ~ Gnwp 'D'
cmployws
.\fattic enby posts 43 14 Pay scales ol' posts requiring mruitmcnt qualificath OF
Matriculation,1.T.1. Certificaic etc. have been rationalized and they are proposcd
to be placed as far as possible in the scak of Rs. 950 -1500which is being
replaced by the scak of Rs. 3 ~ 5 0 - 7 0 ~ 5 ~ .
Direct etta-y 43 15 Presently, incumbents of a large number of posts requifing
grade* qualifications of ordihaty Graduation or a three year Diploma come an
graduaes rtc.
engincenng, fine art etc. are in different scales; I.$., Rs. 1200-2040,
- -
Rs. 1400-2300, Rs.1400 2600,Rs. 1600 2660 and Rs. 1640-2900.In order to
bring about i ~ v ~it is tproposed , to induct entrants to the posts requiring
~ ~thnc year ~d i p l m wurse
i ctc. as~ m i n ~ u m, entq q u ~ i f iin~thtt ~
scale of Rs.1400-2300,Rs.1600-2660 and Rs.1640-2800.Most of the Jr.
Enjpneers, Jr. ScicntdIic Assistmts, Tecbni#l AsYistantd,tIfive&tirve61igatorsetc. who
are pmently distributed is tkese differmt d c s - w i l l bc W i t e d by ttus measure
of rationalisation. However, there may still be some exceptional c8sts whcre thrs
improvement has not been cffkcted. This has bceoldueqtov&ious &tors likejob
content. skill quirtmc;ntS, inter sc ~~v~~~

DiFec1 enby 43 16 'Ihc WIGS of Rs.200~-3200 and RS.2OOO-3SOQ ptoposcd to

gradefw be merged into Rs.2OOO-3500.This scale has been idcatifigd as dircct cntry grade
Engineering
graduates,post-
for degree holders in Engineering and law, Post graduatqs in a@ other subjects,
graduates a s . Charta#i Accacpltants, Cost and Works Acunmtas etc.,' Howtva, $heremay still
etc. bc cases where posts quiring any of the above qualifications & w estill been
continued in scales like RS.1600-2660or RS.1'640-2900. his is d u t~o tht fact
that apart from recruitment qualifications, dhcr factors like job tontent, skill
requirancnts, inter* horizontal and vertical relativities etc. have also been taken
into consideration in the &termination of pay scakq for various pas@. In -in
cases upgadation to the scale of RS.2OOO-3500would result in a quantum jump
oser 2 oc 3 lntermcdiatt scales, which has been generally avoided, keeping in view
the necd for not unduly disturbing e x i ~ ~ r e l a t i v i t i ~ .
Pay at Group :4 43.17 in thc wake of thc recart spurt in the pay packages of private and
entry level public sector exccutives, thc cntry into Central Govt. at Group 'A' levcl has
bcwmc least attractive for bright young pcoplc. With a vie* to rcvasing this trcnd
and to attract the bcst talent into Govt., the pay scalc at the m i n g d a g of Group

453
 A' scniccs has bccn hikcd up In thc normal coursc. thc starting pay at Jr Timc
Scalc would horc bocn around Rs 70007-. Instcad. it has bccn raiscd to Rs
nootv-.

Ilct74wi4vIl W I % 43 18 Thc incrcmcnt in thc proposcd rcvtscd scalc rangcs bctwccn

iwn.v I .W!$ to 3.44%with rcfcrcncc to thc minimum of the scalcs and from I .42% to
3.32% with rcfcrencc to thc m c a of thc scalcs. Thc incrcmcnt of Rs.40 at thc
lo\scsf point of Rs.2440-40-320Oworks out to 1.64%of thc minimum of thc scalc
at Rs.244W- and 1.42%of thc mcgn of thc samc sc& at Rs.2820/-. Thc incrcmcnt
of RS.275 in thc scak: of RS.80OO-275-13500 works out to 3.44% of thc minimum
or USd c RS. 8000.

Increment it#% 43.19 In the pmwdpay scales, thc pcrccntagc of 1st incremcnt with
Fburlk rofmnceto minimum of the scale r i g 4 from 1.55 to 3.66 and with rcfcrencc
('PC Sralrs
to the mean of the scale the percentage of 1st incremcnt rangcd bctwccn 1.25 to
3.17. The percentage of thc 1st increment with rcfcrcncc to thc minimum pay in
the Third CPC recommendationsranged bctwvccn I .25 to 8 33.

Rtsulcs of 43I20 An analysis of the increment smcturc in thc proposed scalcs

analyscs mlrrds that the pmentqp of increment with rcfercnce to thc minimum of the scalc
hru marginally gone up in the Group 'D'scales vis a \is that in the pre-revised
sale. Tkerc is a reduction in the increment percentage in the higher scales with
ref.tpbncc to their counterpart rates in the pre-revised scale of pay.

Mld\bSMN MATRIX SALARY KMEDULE

Pu/Onnanc@ 43.21 It has bcar l a g felt that salary progression should be dependent
rela'ed~a~ on individusl p~rfonnwceso that positive competition among personnel is
genuatd iMfE the perfbmance of employa is evaluated according to their levels
of whicvcmcnt. This is the idea behind the scheme of Performance Related Pay
(PRP)that has baen p r o d @ by several counlties. We feel that time is not yet
ripe for the fdl-ficdgedadoption of the PRP scheme. In this context it may be
wOtthwhile to exmine rirC ftasbllity of adopting with suitable changes, the scheme
of Matrix Salary schadult, which the Commission noticed during its visit to
Maluysia.

Feantru of 43.22 The scheme of Matrix Salary Schodyle (MSS) has been in force
MSS in hJtrlaysia since 1992. The Matrix Salary Schedule has the following features-

(1) Wary sttps(f) are arranged horizontally (TI,T2,T3,T4... ) on

salary level (P)

(ii) Each Fadc in thc MSS consists of 3 lcvcls (Pl,P2,P3..... )

(iii) Salary steps (TI,T2,T3....) arrangcd on thc 3 lcvcls (PI,P2,P3)

454
 arc bascd on \.aping rates of incnment. The ratc of P3 is higher
than Icvcl P2 and the rate at level P2 is‘highcrthan P 1.

GradeU,
T1 T2 T3 TJ TS T6 T7 T8 .. T21
PI 1357 1423 1489 1555 1621 1687 1753 1819.. #M9
P2 1426 1495 1564 1633 1771 1%40 1909.. 399
P3 1498 1570 1642. in4 im re%,_. 1930. 2002,.. 3438

1. -
Static or no propmim W k r e tl& person remains at PIT3
(Level P I and step T3) if the
’fap is not satisfactoay.

iii. Vtrtr’caHg - whera ttrt islr is vertical C.Q. P1T3 to

P2T3. (there is incnsW in kd)if the pt’fi6iMuu~cis good.

iv. Diagonally - What the pr’agrcssion is diagonal i.c. from PIT3

to P2TS.X the perfamrance is exccIlcnt.

The chart below mav illustrate

PIT3-PlT3 - Static - N M S&t4sRctar?y-Noincrcmcnt

PIT3-PiT4 - Horizont8~mtisf8ctory-Oneincrcmcnt

PIT3-PZT3 - Vertical - Cod-One increment of

higher value in P2 level

-
PIT3 P2T4 -
Diagonal Excellent-Two increments
l anothcr vettically
one horitontaliy aud

455 :
 PERFORMANCE RELATED INCREMENT (PRI)

PRI 43.24 Dut to various administrative and technica1 diflicultics and the
constraints in br9kin8 up-pbt pay scalcs into different levels, it may not be
p i b k to idopt the qstmdMalnyam Matrix Sdnry Schcdult (M.S.S.) as d r
-
in our sct up. But this principle can be incorporated in our system by slightly
modirying it to sui! our envimnment Thk can be donc &rough the
Performance Rdattd Increment (PRI) Scheme, by the grant of an extra
incrrment in addition to tbe normal increment in recognition of exceptionally
mdoriorrt pcrfonnurct But the @t ofadditional increment may be restricted
t ~ p e m m s ~ 5%oLtdal a e Cadre strength ofthe organisationcach year
"0rganiSatio;l"hent rcfcrs to Muristry/Dcparrment proper, attachedor subordinate
oKicc ctc which exist as an ldentiliable separate unit. Grant of additional
increment may not rtqwrt dre rcommendrton of the DPC. The Competent
Authonly -be Gmpawacd to gfsnt.the additional incnmcnt.

Dmield 43.25 -k pcrsans whosc performance is unsatisfactory

lmrremenl or bd9w mey be deaicc the grant of increment. The comptttnt
AutkoRly nlt?'.bmQlgpowaabtowithhbld aiurual normal incmn&t wrthout going
t , l q ~ ~ & fmd$y.of urisirting departmend p r o a d y p against the offcial
This \ d d mvolve &madment of the CCS (tonduet) Rules which has been
suggestad m t krelevant chapter. This should again be restrictedto not exceeding
5% of* rQlalcrdrt strcpdth of thcorgaNsatKla.

EFFICIENCY BAR I
&catlpamd 43.27 -E Bar is intcndd ChCcL t k mtinucd drawal of
uWXCmCntSm the case of proved incficienc~The Islington Commission insisted
on thc tune s+ systtm tyin~ coupled \nth 'Efficiency Bar'. The First CPC
retained Effici& Bar perally.' So did the second CPC when it retained
Efficiency Bar the p u n d of discnrninating between &f&ctory and
unsatisfador).workers. The Third CPCjustified Etrrcrcocy Bar to ensum quality
of \vaic. The F d CFC rdaincd it in Group B, C and D scaks only Howwcr.
they abolishcd E.B. in Group 'A' scales c..ccpt for thc low@ nrng in that group.
I c 2200-75-'z800-EB-l00&0. With effcct from 1.1.1993, Government
abolished Efllcienc).]Bar in respect of Group 'D'empkyxs also

I-'oriws.wws 43.28 Views ftflccled in thc memoranda were mostly in favour of

discarding Eficimcy Bar altogelher. National Council ( S a Side), J.C.M
dcmded its discontinuanceon the gound of misusc snd dday in asscssmcnt by
 thc DPCs Most of the major crnplo! cr Ministrics/Dcpartnicnts fa\ ourcd its
abolition Thc Spccial Reg ieu Group (SRG)sct up m the Dcpanincnt of Pcrsonnel
to rcviav c~istingmlcs and proccdurcs also rccommendcd abolition of Efficiency
Bar and dclction of FR 25
k,r
/<t~,l\f~ti 43 29 Sincc it IS proposcd to introducc thc Pcrforniancc Rclated
ithri/i/roii
Increment (PRI) Scheme. it may not be necessary to continuewith the system
of Efficiency Bar. We recommend its abolition.

I PROPOSEDSCALES 1
43 30 The dctals of the csistmg scales, and the proposed revised scales
arc given in Anncse -43 1

43.3 1 It ma! bc clarified that while discussingthe vanou$ pay scales, the
Canmission came to the conclusion that there was need for another payscale
between Rs 2000-3500/2375-3500/2375-3750 on the one haiid and Rs.2200-4000
or Rs.3000-4500on the other. As such, we coined a pre-revised payscale of
Rs.2500-4000 as a Group 'Bpayscale, to act as an intermediate stage. As we had
already decided to raise the revised payscale corresponding to Rs.2200-4000to
Rs 8000-13500 (instead of Rs.7000etc. as it should have become if the broad
multiplier of 3.25 were used) there was a gap of Rs.1000. It should be clearly
understood that the pre-revised scale of Rs.2500-4000 (as it corresponds to n
revised scale of Rs 7500-12000) is a lower scale than Rs.2200-4OOO (as it
corresponds to a revised scale of Rs.8000-13500).

43.32 It may be mentioned that the above payscales have been

formulated on the assumption that all other allowances admissible to the
employees such as Dcamess Allowance, House Rent Allo\vance, City
Compensatory Allo\vance. Attendant Alloviance, Transport-Allowance etc: are
granted to them net of Income Tax as recommended by us in Chapter 167.

FIXATION FORMULA

43 33 The fomiula for fisation of pay in thc rcviscd scales. along with
illustrations is discussed in a latcr Chapter.

FINANCIAL I M PL ICATI ONS

43 34 Thc net financial implications on account of implementation of

proposed scales of pay in respect of Central Government employees who are
covered by our terms of refcrencc work out to Rs 2255 52 crores, thc break-up of
which is as follo\\s -

457
 Category Number of Net Financial
Employees implication.
(in lakhs) (Rs.in Crores)

1. 2. 3.

Civilian Employees of 40 42 1595.52

Ccntral Govt.(including
Union Tcrritories.)

Arnicd Forces Personncl. 1 2.32 660 00

Grand Total 52.74 2255.52

Tlrrrd I H 43.35 Since the third instalment of Interim Relief, which was
granted with effect from April, 1995, is to be subsumed within this, the net
ficancial implication will be further reduced to that extent.

458
 ANNEXE-43.1
PROPOSED SCALES OF P A l ’
-
SL. EXISTING GRADES REVISED STANDARD SPAN IN
NO. STANDARD SCALES SCALES OF PA)’ YEARS

1. 750- I 2-870-14-940 s-I 2440-40-3200 I9

2. 775-12-871-1 4-1 025 s-2 2550-45-3540 22
3. 800- 15-1010-20-1 1SO s-3 2650-50-4000 27
4. 825-15-900-20-1200 s-4 2750-55-4400 30
5. 950-20-1150-25-1400 s-5 3050-70-4590 22
950-20-1 150-25-1500
1150-25-1500
6. 975-25-1 150-30-1540 S-6 3200-85-4900 20
975-25-1 150-30-1660
7. 1200-30-1440-30- I800 s-7 4000-100-6000 20
1200-30-1560-40-2040
1320-30-1560-40-2040
8. 1350-30-1440-40-1800-50-2200 S-8 4500-125-7000 20
1400-40-1800-50-2300
9. 1400-40-1600-50-2300-60-2600 S-9 5000- 1SO-8000 20
1600-50-2300-60-2660
10. 1640-60-2600-75-2900 s-10 5500- 1 75-9000 20
111. 2000-60-2120 s-11 6500-200-6900 2
1z. 2000-60-2300-75-32 00 s-I2 6500-200-10500 20
2000-60-2300-75-3200-100-3500
1.3. 2375-75-3200-100-3500 S-13 7000-225-11500 20
2375-75-3200-100-3500-1 255-3750

2500-4000 (proposed new S-14 7500-250-12000 18

pre-revised scale)
14. 2200-75-2800-100-4000 S-15 8000-275-13500 20
2300-100-2800
15. 26301- FIXED S-16 9000!- fixed
16. 2630-75-2780 S-17 9000-275-9550 2
17. 31 50-100-3350 S-18 10325-325-10975 2
18. 3000-125-3625 S-19 10000-3255-15200 16
3000-100-3500-125-4500
3000-100-3500-i 2s-5000
19. 3200-100-3700-125-4700 s-20 10650-325-15850 16

459
SL. EXISTING GRADES REVISED STANDARD SPAN IN
NO. STANDARD SCALES SCALES OF PAY YEARS
OF PAY
(Rs.) (Rs.1

20. 3700- 150-4450 s-21 12000-37516500 12

3700-125-4700-150-SO00
2 1. 3950- 125-4700-150-5000 s-22 12750-375-16500 11)

22. 3700-125-4950-150-5700 S-23 I2000-37,S-18000 16

23. 4100-125-4850-150-5300 S-24 14300-400-18300 10
4500-150-5700
24. 4800- 150-5700 S-25 15100-400-1 830.0 8
25. 5 1'00-150-5700 S-26 16400-450-20000 8
5100-150-6150
5100-150-5700-200-6300
26. 5100-150-6300-200-6700 S-27 16400-450-20900 10
2 7. 4500- 150-5700-200-7300 S-28 14300-450-22400 18
28. 5900-200-67_00 S-29 18400-500-22400 08
5900-200-7300
29. 7300-100-7600 S-30 22400-525-24500 4

30. 7300-200-7500-250-8000 S-31 22400-600-26000 6

3 1. 7600/- fixed S-32 24050-650-26000 3
7600-100-8000
32. 8000 /- FIXED s-33 26000/-FIXED -
33. 9000 /- FIXED s-34 3oooO/- FIXED

*Note: It may be clarified that while discussing the various pay scales, the Commission came to
the conclusion that there was need for another payscale betiveen Rs.2000-3500/
2375-3500/2375-3750 on the one hand and Rs.2200-4000 or Rs.3000-4500 on the
other. AS such, we coined a pre-revised payscale of Rs.2500-4000 as a Group 'B'
payscale, to act as an intermediate sta e. As we had already dccidcd to raise the revised
8
payscalecorresponding to Rs.2200-4 00 to Rs.8000- 13500 (instead of Rs.7000 etc. as
I t should have becomc if thc broad multiplier of 3.25 \vex used). there was a gap of
Rs.1000. It should be clcarl!. understood that the prc-rcviscd scale of Rs.2500-4000(as
it &maponds to a revised scalc of Rs.7500- 12000) is a lowr scale than Rs.2200-4000
(as it corrcsponds to a r c \ ~ s c dscale of Rs.8000-13jOO).

460
 PRESENT CLASSIFICATION

Cl-rjicotion 4 44.1 Civil Services and posts under the Central Govcmxncnt are at present
civil posts
classifid under four groups as follows-

SI.No. Description Group

1. A central civil post carrying a pay A

or a scale of pay with a maximum of
not less than Rs.4000.

2; A central civil post carrying a pay B

or a scale of pay with a maximum of
not less than Rs 2900 but less than 4000/-

3. A central civil post c q i n g a pay C

o r a scale ofpay withamaximum
m e r Rs.1 150 but less than Rs.2900/-.

4. A central civil post c q i n g a pay D

or a scale of pay the masimum of
which is Rs.1 150 or less.

44.2 Prior to Third CPC, instead of ‘Groups’ these were designated as

’Classes’,I, II,lII and IV.

Ccrm1n 44.3 Though a majority of tha posts in the Govt. are classified an tht
~.tceprro?ls above lines, certain deliberate departures have h e n made in certain cases. For
exapple, Assistaots and Grade ‘C‘Stenographers of Central Secretariat, who are
in the scale of Rs.1640-2900, arc classified as Grdup ‘B,wvhercas a largc number

46 1
 of other posts in the samc scale are classified as Group 'C'. Some posts in the pay
scale of Rs.2000-3200 and 2375-3500in certain Offices/ Departments have been
classified as Group 'C'.

44 4 Department of Personnel and Training have clanfied that though

:hcrc were certain exceptions to the rulc. like the casr: of .4s4stents of C~ntrz!
Sccrctariat, the effort was to ensure that posts T i n g similar functions were grim
the same classification. There were situations in which the functions of a post
might not adquately match the high pay scale attachcd to it and therefore, tkough
thcy were eligible for higher classification. they were classified at a lower lewd

VIEWS OF PREVIOUS PAY COMMISSONS

I.icw.~ofFlr.tr 44 5 On the question of 'Classification of Services', the First CPC

CPc cxamined whether there was need or otherwise for separate class 1 and Class I1
scn'iccs or altematwely the two groups could be merged into one gazetted service
After detailed examination, the Commission concluded that it was desirable to
retain the two classes. They also recommendrd change in the nomenclature of
scnliccs then described as 'Subordinate' and 'Inferior' into Class 111 and Class IV
scn-ices rcspectively

Liews of Second 44-6 The Second CPC also discussed this issue and came to the
CPC conclusion that the exlsting classification sen ed no practical purpose which could
not be served without it and on the other hand. it had an unhealthy psychological
cffcct The Commission recommended that the classification should be given up
and the amendments that would be necessary in respect of the Central Civil Service
(Classification, Control and Appeal) Rules 1957 and of certain other rules and
orders should be carped out. In making this recommendation it took note of the
practice in other coqntries including those with a large and complex civil service,
where it had not been found necessary to super-impose upon their civil service
grades and occupational groups a broad classification as exists in this country

44 7 The Government, however, did not accept this recommendation

since it was found that the existmg classification was convenient for personnel
management A proposal to replace the existing nomenclature of Class 1. Class 11.
Class 111 and Class IV by Group 'A', Group 'B'Group'C' and Group'D was also
considered on the ground that the word 'Class' might hurt the susceptibilities of
somc sections of the employees This proposal was not accepted since it was fclt
that a mere change in the name was of no practical value

I iews o/T/rrrd 44 8 The l h r d CPC expressed the 1 iew that classification based on an
CPC assumcd equivalence of the work content in different levels of the various
occupational Groups and, hence of the pay ranges. \\as necessary for personncl
administration. The system of classification \\as fairly well known and the
cmployces,hadb e accustomed to it It hadthe advantage that orders could bc
issued or the existing ordcrs amended. b! ref&ing to the particular classcs
co\.crcd There was no lack of precision in this course in terms of administrati! c
coincnicncc. but much verbiage. othcniisc ncccssac in having to dcfinc thc
catcgorics or occupational groups covcrcd. I\ as thcrcb! obviated

462
 44 0 The Third CPC, however, replaced 'Classes' by the expression
'Groups' Thus Classcs I. 11. III and IV were re-designated as Groups 'A', 'B','C'
and ' D

44 10 The Fourth CPC too examined the matter. They held the view that
such classification enabled the Government to csamine and decide matters of
common intercst to the Group or Groups concerned. It played a vital role in
disciplinan matters also. They, therefore, recommended the continuance of the
system of classification of services.

Fiews of DOPT 44 1 1 In order to have a proper appreciation of this question, we sought

the advice of the Department of Personnel and Training. They have opined that
classification of posts as Group A, B, C & D mainly served the purpose of
disciplinary rules so as to regulate the appointing, reviewing and appellate
authorih It IS precisely for this reason that the same was incorporated under the
CCS(CCA) Rules, 1965 The classification had also been made use of to regulate
orders relating to Group Insurance, age of retirement etc.

I INTERNATIONAL EXPERIENCE I

Practice in other 44.12 This issue was also examined in the light of the systems prevalent
counm'es in other countries.

44 13 In the United Kingdom the civil service is divided into a large

number of classes, the main components of which are the administrative class, the
executive class, the clerical class and the messengerial class. There are other
classes such as the Work Groups of Professionals, Economists'and Statisticians,
Scientific Officers and Medical Officers. The other Commonwealth countries,
escept Canada and Australia, generally have the same structure. The civil service
of West Germany follows a practice of classifying the employe& into four classes
of senice. namely the higher, the elevated, the middle, and the simple. The
division is based on occupational differences, methods of recruitment and the pay
range admissible to cach service. In the Uhited States the whole service is divided
into hundreds of occupational groups known as "series", comprising individual
posts at various levels. The latter are placed in one or other of 18 grades common
to the Avhoie senice. There is no 'further classification In Canada and Australia
the groupings are similar to those in the USA, though there is a greater variety of
grades and pay scales

OUR RECOMMENDATIONS

44 14 Having esamined the issue from different perspectives, we have

come to the definite conclusion that the existing classification serves no
practical purpose. The time has come to give a decent burial to the present
system and to make it a true representative of futuristic working
environment in the Government

44.15 Thcre is need to inculcate a feeling among civil servants that they
all belong to an integrated administrative machinery. Any system of classification

463
 or nomenclature, which is likely to'hamper the growth of such a feeling, in
howsoeva small measure it may be, should go, unless it serves a definite practical
end which cannot be achieved adequately othcrwisc. Most of the other countries,
including those with a large and complex Civil Service Organisation, have not
found it necessary to have a classification system like ours

Recommendation 44.16 A study on "Restructuring of thc Government Offices" was

of Tala entrusted to the Tata Consultancy Services by us. They have recommended that the
Consliltancy
Services
hierarchcal levels in the organisational structure should be reduced to seven so a;
to ensure .that there are no unnecessary levels for reporting purposes md to keep
the organisation as flat as possible. Thc levels proposed by them for an ideal
Government office are -

1. Chief Executive
..
II. !hior Executive
iii. Middle Executive
iv. Junior Executive
V. Supervisory
vi. Assistant
vii. Supportlattendrnt

44.17 There is a philosophical distinction between the Group or Class

system which prevails at present in the Government and the functional
classification as suggested by the TCS. The functional classification is not based
merely on status, as in a feudal society: but on the functional needs of a
mar.agement system.

44.18 We would, therefore, favour a shift io a new classification, but

with certain modifications in the TCS model. Executives may be divided into
three subdivisims - Top Executives,Senior Executives and Executives. Assistants
may be renamed as Supporting Staff,while attendants may be called Auxiliary
S M . The suggested names define their functions as also impart a certain dignity
to their office.

PROPOSED FUNCI'IONAL CLASSIFICATION

44.19 The existing grades in the Government of India are proposed

to be grouped under the following levels:-

S.NO. LEVELS GRADES IN THE PRE-

REVISED SCALES OF PAY
1) Auxiliary 750-940
Staff 775- I025
800- 1 150

464
 S.NO. LEVELS GRADE IN THE PRE-
REVISEnSCALES OF PAY
ii) Supporting 825 - 1200
Staff 950- 1400
950- 1500
1150-1500
975- 1540
975- 1660
1200- 1800
1200-2040
1320-2040
1350-2200
1400-2300
1400-2600
1600-2660
1640-2900

iii) Supervisory 2000-2 120

Staff 2000-3 200
2000-3500
2375-3500
2375-3 750
*2500-4000

iv) Executives 2200-4000

2300-2800
3000-4500
3000-5000
3200-4700
300-5000
3950-5000
4 100-j300
4500-5 700
4800-5700

v) Sr. Esccutives 5 1OO-j70O

5 100-6 150
5 100-6300
5 100-6700
4500-7: 00
5900-6700
5 900-73 00

v i) Top Executives 7300-7600

76004fixed)
7300-8000
7600-8000
8900
9000
*See para 43.3 1

465
44.20 With the proposed reorgarusationof vmous grades into 'Ic\cls', the
existing system of classification of services into Groups *A', 'B', 'C' and 'D'
can be done away with. For thc purposc of disciplinan nilcs Govcrnnicnt can
declare the Appointmg. Revicwng 'and Appcllatc Authoritics. \\.ith rcfcrencc to thc
lcvels of the posts

DISCONTINUANCE OF GAZETTED STATUS

44 21 Thc othcr distinctions \\hich has becn irthcritcd from the colonial
past and is unique to u s is that bctucen gazttcd and non-gamtcd officials
Imtiall!., gazetted officcrs urcd to bc fctr in numbcr and so important as to find a
mention in thc Official Gamte. c i c q time they ncrc appointcd. promoted.
transferred and so on Today. thc phrasc 'grrzettcd' I S morc of an anachronism
This practicc mahcs the present day official Gazettes unncccssarily \ olminous
and, In turn. rcsults i n a gcncral apath! of cn i i s c n m t s tonards the Gazettes
Gazetted status has not\ bccn reduced to one morc elcmciit in thc caste hierarchy
of the Civil Senicc In practical terms. all it means that a particular official can
attest copies 01docunicnts. issuc character certificates. attcst passport forms ctc

44.22 We may, therefore, abolish this distinction too and lay down the
law that all executives and supervisory personnel would have the powers of
at:estation etc. currently vested in the gazetted officers.
 1 INTRODUCTION I
.Llinisirict' 45.1 The Secretariats of the Ministries and Departments of the
Departmenis Government of India together constitute the headquarters organisation. The
Allocation of Business Rules framed under the Constitution determine the hpe of
work to be transacted in each Ministry and Department. With the expansion of the
activities of Government in various fields, therz has been a tremendous increase in
the volume of business transacted in the headquarters organisation which is also
called the Central Secretariat. Govcmment's accountability to Parliament, creation-
of a large number of public scctor undertakings in various ficlds: intensc scrutiny
exercised by Standing Committees of Parliament of the funaioning of various
Ministries and Departments. ctc. are some of the factors \vhich havc led to
increased secretariat work. To cope with the increased workload. the number of
Ministries and departments has gone up to 8 I from 7 I in 1986,j1 in 1973.25 in
1957 and 18 in 1947.
sc. rt*l'lr;tll 45.2 Each Ministn./Dcpartment has a Secretariat whosc main role is to
hclp the Government in thc tasks of policy formulation, preparation of programmes
in order to translatc thcsc policics into coordinated action and cnsuring effective
csccution of Govcmmcnt's policies through periodic review. The Sccrctariat also
helps thc Minister to dischargc his accountabilit:: to Parliament. including the
\.arious Parliamcntan Committccs The detailed csecution of Govcmment's
policics. specially in thc ficld is lcl't to agencies outside thc Sccrctariat which may
bc attached or subordinatc offices of the Ministries or quasi-Co\wnment
institutions or autonomous public sector undertakings, but is always subject to
supcn.ision by lhc Sccrctariat

I l i ~ ~ r n r t l r r t tW
rl I- 45 j In the hicrarchical set-up of n Ministry, bclou thc Minister.
. I .1.
Sccrctaq is the aanunstrawe hcx! 01 the Ministry \vho has bccn dcscribcd by thc
Adniinistratii c Rcfornis Coniniissioii as thc principal adviser of the Ministcr on
policy nialtcrs and his chief agent for cnsuring the iniplcnicntation of policics and
 programmes. -Inthe larger Ministries, where the volume of work so requires, a
rccognisable area of work is entrusted to a separate department under the charge
of a Sccrctary or Additional Secretan.. The business allocated to a
Ministry/Departmcnt is gcncrally divided into Wings, Divisions, Branches and
Scctions.undcrthe chargc of a Joint Secretan., Dcput). Sccrctaq, Under Secretary
and Section Officer respectively Takine thr net! of Director and D e p ?
Sccrctaq as being at the same level, the structure of the Central Secretariat is
cornposcd of ninc gradcs from Secretary/Spccial Secretary to Lower Division
Clcrk.

Senicer ivaniiing J j.4 The administrative posts in the Secretariat arc manned by officers
die pos LC from All India Scrviccs. Group 'A' Central Services on dcputat:on and by members
of Central Sccretariat Senice (CSS). The C S S Officers provide continuip in the
uork of thc Secrctariat. Secretariat pasts in thc Ministrics of Estemal Aifairs, Law
and Justice/ Department of Cornpan!, Affairs and Ministry of Railways are
gcnerally held by officers of Indian Foreign Senice: Ccnlral Legal Senrice arid
Railway Services respectively.

CENTRAL STAFFING SCHEME

Central srafing 45,j The Central Staffing Scheme for manning senior administrative
scheme
posts in the Secretariat, i.e. posts of and above the rank of Deputy Secretary, was
nojified b!- the Central Government on 17.10.1957. The Scheme has been
reviewed and amended from time to time and the consolidated version has been
notified by the Department of Personnel and Training vide O.M. No.36(32)-E0/88
(SM-I) dated 15.7.1992. The scope of the Central Staffing Scheme is bound by the
following parameters:-

(I) All posts of the rank of Under Secretary and above in the
Government of Inha, e x c l h g such posts of Under Secrertary and
Deputy Seaetary as are filled by CSS officers, are filled on tenure
deputauon fiom the All India Services and the participating Group
* A' Services of the Central Government

(11) In so far as the officers hrn the Central Secretariat Services (CSS)
are concerned, a specified number of posts at the levels of Under
Secrete. and Depuh Secretary are treated as part of their Cadre,
and posts over and above these are fillcd under the Central Staffing
Scheme

(iii) In terms of the provisions of article 3 12 of the Constitution, the

Indian Administrative Service, the Indian Police Service and the
Indian Forest Service are All India Senices common to the Union
and the States. Ever)! Sate cadre of each of these Services provides
for a ccntral deputation quota. which in turn requires additional
rwuiunent to be made to these Seniccst to provide for trained and '
csperienced members of these scniccs to serve on posts in the
Central Government. Accordin'gl!.. utilisation of the central
deputation quota of different Statc Cadres is an important factor
goierning the scale at n-hichoficcrs arc borrowd from the various
State cadres ofthesc All India Sa-vices. Howrim, no post so filled

468
 by a member of any All India Service on tenure deputation can bc
deemed to bc a cadre post of that Service.
Teiiurec of 45 6 The normal tenure of deputation for posts coveredby the Central
posrritg Staffing Scheme is 3 years. 4 years, and 5 years for posts at the levels of Under
Sccretaxy. Deputy Secretary and Director/Joint Secretary respectively. In case a
Jomt Secretary is promoted as Additional Secretary, he is given a tenure of 3 years
from the date of appointment as Additional Secretary subject to a minimum of 5
1 ears and maximum of 7 years of combined tenure as Joint Secretaq4Additional

Secretaq. In other cases, the normal tenure for Additional secretary is four years
and for the Secretary, there is no fixed tenure. The eligibility criterion Was also
been prescnbed for selection of officers for manning posts in the Secretariat on
tenure deputation from All India Services and various Central Services.

SSB,’CER 45 7 htially, the Central Establishment Board was set up for operating
the Scheme and to advise the Ministxy of Home Affairs (MHA) in the matter of
selection of oficers for tenure deputation at the Centre. In 1970, in place of the
earlier board, two boards, namely, the Senior Selection Board (SSB) and the
Central Establishment Board (CEB) were constituted to advise the Department of
Personnel and Traming for staffing admmstrative posts of and above the rank of
Under Secretary to the Government of India.

CSBKEB 45.8 Accordmg to the Central Staffmg Scheme notified on 15.7.1992,

for stalling posts of the rank of Deputy Secretary, Director and Joint Secretary or
equivalent, the Appointments Committee of the Cabinet shall be assisted and
advised by the Civil Services Board (CSB) and the Central Establishment Board
(CEB). The CSB consists of Cabinet Secretary as the Chairman, Secretary
(Personnel) and one Secretary to the Government of India (to be appointed for a
year at a tune) as Members, Establishment Officer as Member-Secretary and
Secretary of the administrative MinistryAkpartment as co-opted member. The
CEB consists of Secretary (Personnel) as the Chairman, three Secretaries to the
Government of India as Members (by rotation, for a period ofhne calendar year)
and the Establishment Officer as a Member-Secretary.
kirncIroir. 45.9 The CSB makes recommendations for appointment to posts of
Deputy Secretary. Director, Joint Secretary and other equivalent posts. The CEB
is responsible for recommending selection for appointment to all posts of and
above the rank of Under Secretq but below the level of Joint Secretary. However,
appointment of members of Indian Foreign Service to posts included in the Foreign
Service cadre are made on the recommendations of Foreign Service Board.
Similarly, appointmentto posts under the control of Ministry of Railways are made
on thc advice of the Railway Board. Appointment to posts under the control of
Ministry of Defence, other than civil posts, are made on the advice of Seivices
Selection Board. In respect of appointments to posts in the Ministry of External
Affairs, Ministry of Raihvays and Ministry of Defence, the Civil Services Board
and the Central Establishment Board do not advise the Appointments Committee
of the Cabinet.

Inahclron from 4 j. l o The position regarding induction of officers of All India Services,
d@ererrt services Central Secretariat Service and c k r Central Services at the level of Cepiit:.
Sccretq and above in the Central Secretariat in 1972, 1984 and 1995 is indicated
in the Table below

469
 Table as on Mmmh I, 1995

1972'+ 1984' 1995** 1972* 19M* 1995.. 1972' 1984. l93P

Sccntafy 30 36 71 IS 25 21 0 0 0

Additional 20 27 72 11 38 I2 i I 0
S&retar?.

Director 81 106 180 39 88 110 88 38 49

Total 325 378 751 221 272 308 208 228 207

* 1972 and 1984 figures based on fourth CPC Report

+* 1995 figuresderived by subtracting from the total posts hcld by officrs

of different services as reported by Department of Personnel and
Training the posts held by officers of All India Senices and Central
Secretariat Service.
*** The difference in the number of posts shown in Anncxe 45.2 at the end
of this chapter and in the above table is bccause of inclusion in this Table
the posts hcld by officers of Indian Police Service and Indian Forest
Service.

Earmarking of 45.1 1 With regard to tile Central Staffling Scheme, suggestions have
posu been received i h n Oficers of the various Group 'A' Central Senices and the CSS
that they should be allowed greater participation in the Secretanat by earmarking
a specified number of posts for each service.
Prrsentposition 45.12 The position is that prior to 1947. a majority of thc superior posts
under the Central Governlent \\we specifically rescncd for Officers of thc Indian
Civil Senice, and even after independence, thc Central Government continued to
depend mainly on ICS and IAS Officers for manning the positions in the
Secretariat. In the case of the All India Services, the rules provide for a Ccntral
deputation quota to be utilised for deputing oficers to the Ccntrc. In their cases,
it is constitutionally mandaton to provide for such a quota, as they have becn
created by Article 3 12 of the Constitution in the national intcrcst as services
common to the Union and the States. The concept of all India Services is to
provde for an cschangc of cxpenence behvcen thc Central and Staic Govcmmcnts.
.Yo cltmtgejrom 45. I 3 The situation has changcd somewhat ovcr thc \cars and mcmbcrs
proc-c..l~~re
of of the Group A' Ccntral Scniccs arc also bcing inductcd into thc Sccrctariat in
rtpprirnlniutrl
 appreciable numbcrs. Thc idca is to make use of their experience and knowledge
at the policy malung lmcls in the Government. Considering that their services are
already being utilized. we are not in favour of earmarking posts at different
levels in the Secretariat for any particular Service. Further, the existing
procedure for selection and appointment of senior officers for manning posts
in the Central Government from various Services should cohtinue.

CENTRAL SECRETARIAT SERVICE

Hirtorical 45 14 The Central Secretanat Service (CSS) is one of the earliest

hack~ound
orgatused services. The origin of the service can be traced to the yew 1919when
the Imperiql Secretariat Service came mto being as an offshoot of the Lewllyn
Smith Committee which had been set up on the eve of introduction of Montague
Chelmsford Reforms. The Committee envisaged the Secretanat Organisation in
the nature of a pyramid, the apex of which was the Secrctary and the base of the
body consisted of Assistant Secretanes. In March, 1946 a Committee set up under
the Charma& p of Su hchard Tottenham diagnosed the situation then obtaining
in the Secretariat as one charactensed by "too few officers of the right lund and too
many clerks of the wrong lund". He suggested that llto improve quality and reduce
quantity, each Under Secretary's Branch should contain two sections and each
section should consist of one Superintendent and three Assistants. Each
Superintendent should have a smaller charge, but would be expected to do much
more original work. He would not just supervise the work of a number of
Assistants". In brief, Tottenham cecommtnded a new service of officers to replace
the Superintendents and Assistant Secretaries.
.\.lOG Committee 45. 1j The Machmery of Government (MOG) Committee (September,
1968) under the Chairmanship of Mr. E.C. Coates recommended that the case
noting Assistants should also be replaced by an officer class. The Committee
contemplated a service consistingof histant Pnncipals and Principals (the former
being mainly a training appointment for the latter) in place-of Assistants and
Supervisors, the posts of Under Secretary being filled by selection from ,therank
of Principal esccpt to the estent that such posts were to be filled from the All India
A b s t r a t i v e Service. it was urged in support of the proposal that Government
business had become so complex as to be beyond the capacity of Assistants and
Superintendents. The G o v e k e n t examined the proposals and came to the
conclusion that in practice they would provide no more than a costlier duplication
of the existing Secretariat Organisation.

ljsetigiw's Report. 45. 16 The Central Secretariat Service (Reorganisation and

I949 Reinforemcnt) Schcmc submitted by Sir R.A. Gopalaswamy IyengaT was evolved
in 1949 after a good deal of deliberation at the highest level. The scheme gave
concrete shape to thc Scnicc whichwas designed to consist of:

-
Grade Desienation and scale of Pay -
Class

Grade I Under Secretary Class 1

R~.800-50-1150

Gradc II Superintcndcnt Class I

Rs.530-30-800

47 1
 -
Grade Desienation and scale of Pay -
Class

Grade I11 Assistant Superintendent Class 11

Rs.275/325-25500

Grade IV. Assistant Class 11

Rs.160-450
Changesover 4j 17 The designations of Assistant Secretar). and Assistant incharge
lime ceased to exist Grades I1 and I11 were merged ,on the recommendations of the
Second CPC In 1962, the CSS was decentralised upto the level of Section Officer
with a view to providing greater flexibilih to its structure and ensuring effective
control over the staff by the Ministry/Department concerned Thus, under the
decentralisationscheme, promotions, confirmations etc . upto the level of Section
Officer are made cadre-wise by the respective cadre controlling authorities

Eflect ofZoning 45 18 Consequent upon the enforcement of this decentralisation scheme.

Scheme certain disparities developed in the promotion prospects of CSS Officers in
different MinistriedDepartments To minimise such disparities, the Zoning
Scheme was introduced under which regular and long-term promotions are made
by the local Cadre Controlling Authonties from amongst the officers who are
within the range of senionty specified by the Department of Personnel and Training
(DP&T) from time to time If a person wthin the Zone is not available for
prhotion m a cadre. the vacancy is to be reported to the DP&T for being filled by
persons from other cadres who could not be promoted in their o w cadres for want
of vacancies
Grades in CSS 45.19 The CSS has at present four grades and the number of posts held
by CSS Oficers in each grade as on 1.7.1994 are as follows.-

Grade Classification Pay Scale No.of

posts

(a) Selection Group 3700-5000 137

Grade *A'
(Dy.Secretary)

(b) Grade I Grollp 3000-4500 488

(Under Secretary) 'A'

( c> Section Officer Group 2000-3500 2,190

Grade 'B'

(4 Assistant Grade Group 1640-2900 4,789

'R'

H&P R1c:t.s 45 20 Rccrutment arid promotion to I arious grades are governed by the
CSS Rules. 1962, supplemental by the CSS (Promotion to Grade 1 and Selection
Grade) Regulations. 1964 The present mode of recruitment to \ arious gradcs is
spclt O u t belo\\ -

472
 a) Assistant Grade Ranutmcnt to this grade is made to the extent
of 50 per ccnt by duect recruitment through an open competitive
examination and 50 per cent by promotion from among UDCs
\\ith a minimum of 5 years' service in that grade

b) Section Officers: (I) 20 per cent of the substantive vacancies in

this gradc ate filled though the Civil Services Esamination, held
annually by the Union Public Service Commission, (ii) 40 per
cent through the Limited Departmental Competitive Examination
held for Assistants in which Stenographers Grade ',C' of Central
Secretanat Stenographers' Service are also allowed to participate,
(iii) 40 per cent by promotion from amongst Assistants w ~ t ha
minimum of 8 years of approved service

c) Under Secretary: Promotions to this grade are 100 per cent from
out of Section Officers on the basis of selection, the eligibility
condition being 8 years' approved service as Section
Officer/Group 'A' of CSSS.

d) Deputy Secretary: promotiOn to this grade is made from amongst

Under Secretaries having 5 years' service on the basis of
seniority-cum-selection.

1 3 ~posh
9 of Css 45.2 1 Under the Central Staffing Scheme, the posts of Under Secretary
and above in the Central Secretariat are filled by drawng persons from different
Services without any definite quota having been prescribed for any Service The
posts of Under Secretary and Deputy Secretary, held by CSS Officers, are treated
as 'duty posts'. While the 'tenure rule' is applied to All India Services and Group
'A' Central Services. there is no tenure rule laid down for CSS Officers In view
of the nature of duties and responsibilities assigned to the levels of Under
SecretaqdDeputy Secretary and above, it has been considered necessary to have
officersof dfferent setvices to man these posts Details of thenumber of posts at
the levels of ilnder Secretary and Deputy Secretary held by various services from
1980 to 1995 are contamed in Annexes 45 1 and 45 2 respectively

Demands 45.22 AsSociations of CSS Officers have represented that: (a) Section
0.fficers should be placed in the existing pay scale of RS.2200-4000 with Group
'A' status, (b) the CSS should be constituted as a Group 'A' service with pre-
determined number of posts at various levels, (c) Assistants should be placed in the
pay scale of Rs.2000-3200,(d) all posts of Under Secretary, Deputy S e c r e t e and
certain .percentages of posts at .the level of Director and Joint Secretary may be
reserved for the CSS. (e) disparity in promotion prospects of various services
included in the Central Staffing Scheme should be removed and time-bound
promotions ensured, (f) a Limited Departmental competitive Examination may be
intrduced for promotion of Section Officers to the grade of Under Secrete, (g)
promotion quota from Upper Division Clerks to Assistants should be.raised from
50% to 75% and direct recruitment to Assistants grade may be suspended for 3
years, (h) the eligibilih period for promotion to the grade of Section Officer may
be reduced from 8 to 5 years, (i) the cadres of Upper Division Clerks, Assistants
and Section Officers should be restructured in the ratio of 40:40:20. (-1) the cadre
at the level of Section Officer should becentralised so as to remove disparity in the
matter of promotion of assistants in various Ministries and to avoid loss of

473
 scniority on traiisfcr from onc hlinistn. to anothcr uiidcr thc Zoning Schcnic, (k)
special pa!. should bc grantcd whcn postcd as Undcr Sccrctav. &put!, Sccrctanf
a i d Dimtor, (,I) Scction Ofliccrs should bc rcdcsignatcd as Assistant Sccrctaq to
thc Cio\.crniiicntof India, (ni) CSS should bc allo\vcd rcprcscntation on thc Ccntral
Establishnicnt Board. (n) thcrc should bc a conipulsop, training proSrnninic on thc
,it~log! or urgankcd scrviccs and ;1 tised quota in various forcip traiiling
programnics. (0)dircct rccruitmcnt at the Icvcl of Scction Officer should bc
discontinucd. (p) thc practicc of \vithholding of incrcrncnt of dircct rccruit
Assistants duc to non-passing oft!yc\\nting :cst may bc discontinucd. (9) scniorit!.
of lntc ciitrruits may bc protcctcd by cnsiiring that \vhcn juniors arc considcrcd for
pi oniotion on complction of cligibilit!. scn'icc. scniors should also bc considcrcd.
i r ) dcputation quota for CSS Officcrs should bc r a i d from 10% to 204,j. i s ) [tic
scnicc conditions of CSS oficcrs should bc rcgulatcd by an Act of Pariianicnt. (1)
ttic mlc pro\.iding for conipulson transfa on proniotion should bc rcpcaatcd. (u)the
placcnicnt af CSS Officcrs should be niandato? on cmpanclniciit. (Y) thc
diffcrcntial in thc pcriod of cligibilit!. bctwcn dircct rccruit and proniotcc
.4ssistants for appcaring in Scction Officcrs' gradc csarnination ma!' bc removed.
\\v) Assistant Gradc csaniination should bc hcld by the Union Public Scr\,icc
Commission on the old pattcrn as thc objcctive t!pc tcst docs not incct thc
functional requirement of thc post. (s)n spccific rccommcndation should bc niadc
for a highcr ,start on promotion as Scction Officcr/Privatc Sccrciaq. to a\ a d
litigation. (>.)CSS Officcrs should bc scnt compulsorily on deputation to Statc
Go\~ernmcntsfor at lcast thrcc !cars to ha\x first hand cspericncc aboilt thc
slracturc of go\.emancc. pcoplc's problcms ctc. Thcy should be postcd as Sub
Divisional OfIiccr/Assistant Collcctor. Dwclopmcnt Officer ctc., (1L lo%, of
\.acancies in All India and Ccntral Seniccs should bc rcscrvcd for being lillcd
tlirough a Limited Dcpartmcntal Cornpctitive Esamination and Dircct Kccrult
Scctioii Offccrs should bc made eligible for promotion to thc Indian
P.dministrativc Senicc against a quota to bc prescribed for the purpose.

Our 45.23 We have considercd the suggestions and demands made by the
rccontntrtida/roir.c associations and our recommendations arc as undcr:

(a) These demands M C X considered by the Third and

Rr Fourth CPC as \tell as by the Bandopadhyay Committec
(b) The Bandopadhyay Committee (Novcmber, 1992) came to thc
conclusion that thc idca of elcvation of Section Officcrs to Group
'A' status nas untcnablc. unviable and functionall!
unsupportablc In rcgard to constitution of CSS as a Group ' A '
scri ICC. thc Coniniittcc had obscnzd that functional
specialisation at iiidicr Ic\ CIS \\as the raison d'etrc for Group A '
sen ices like lncornc Tax, Audit and Accounts ctc . nhcrcas thc
CSS playcd onl! a rolc supportive of thc senior adniinistratnc
le\cl in thc policy making functions of thc Ccntral Sccrctariat
bcsidcs running its cstablishmcnt and administration
Pcrforniancc of this rolc and assumption succcssfull! of thc
responsbilitics assigncd to thc mcmbcrs of thc scn icc justificd
thcir flcsibilit! and abilit! to risc abo1.c thc limitations of thcir
con\ cntional roic bur did not changc thc distinct naturc 01' thc
corc functions traditionall! assigncd to thc scrs icc Keeping in
view the fact that the observations of the Bandopadhyay
?:ommittee a r t b a w l on rational considerations. we are not
 inclined to recommend placement of the Section Officers in
the existing pay scale of Rs.22CKl-4OOO with Group 'A' status
or constitution of the CSS as a Group 'A' Service.

c) Considcring the educational qualification, methods of

recruitment, nature of duties and responsibilities, availability of
avenues for career progression ctc.. wc do not find any
justification for placement of Assistants in thc existing pay scale
of Rs 2000-3200 and recommend the maintenance of the
status quo
.\'o rescrvqtion oJ (d) Kceping in view the fact that at prcsent an overwhelming
posts for any majority of posts at the level of Under secretary and 36% of
se,wtce
posts at the level of Deputy Secretary are being held by the CSS
Officcrs as also thc functional necessity of induction of other
Scrviccs into the Central Secretariat. we do not recommend
reservation of posts for any particular service.

(c) Since CSS is not a Group 'A' Central Service, the promotion
avcnues available to Group 'A' Services cannot be extended to its
members. Once CSS Oflicers become Under Secretaries, they
can aspire for further progression through the imperatives of
Central- Stafing Scheme. The Assured Career Progression
Scheme recommended by us will provide some relief to the
members of the service.
:Yo LDCE$or (f) Introduction of a Limited Departmental Competitive
US Examination (LDCE) for promotion to the grade of Under
Secretary will reduce the availabilih of posts under promotion
quota and will adversely affect the promotion prospects of
promotee officers. Kecping in view the time being taken for
promotion from Section Ofiicer to Under SecGtary. which ranges
bctwen 14 and 16ycars, we are not in favour of introduction
of an LDCE for promotion to the grade of Under Secretary.

(2) With a view to maintaining thc qualiv and efficiency of the

Secretariat Service, we do not recommend raising the
promotion quota from 50% to 75% or to ban direct
recruitment to the posts of Assistants even temporarily.

(ti) The eligibility pcriod for promotion from Assislant to Section

Officcrs' gradc has bcen prcscribcd kecping in view certain
rclcvant factors such as sufficiency .of esperience in the feedcr
grade to shoulder highcr rcsponsibility on promotion, number of
posts in the promotion gradc. actual time taken for promotion ctc.
\L'c have bccn informed that against the residency pcriod of 8
\ears, thc actual timc takcn for promotion is 12 ycars
(approsimatcfy).No useful purpose would bc scnied by rcducing
thc digibility period to 5 ycars Accordingly, we do not
recommend any change in the existing provision

475
Restructuring (1) Upper Division Clerks belong to the Central Secretariat Clerical
cadres Service while Askstants and Section Officers belong to Central
Secrctariai Service. Restructuring cadres cutting across seniccs
is not possible. We a*, therefore, unable to recommend
acceptance of the suggestion.

0) Hat ing duc regard to the fact that the Department of Pcrsonncl
and Training is already fixing the zone for promotion and
handling work relating to recruitment at the level of Section
Officer. preparation of a common seniority list of Section
Officers for promotion to the grade of Under Secrctary, we
recommend that the CSS cadre may be centralised and
computerised so that the existing disparities in the promotion
prospects of CSS Officers in different Ministries are
removed and the seniority of those who move out because of
non-availability of vacancies in their own cadre to other
cadres is also protected.

(k) Thc officers of All M a and other Central Sen iccs arc posted to
thc Ccntral Secretanat on tenure basis and the\, are not paid
dcputation allowance The special pay grantcd to such officers
is in lieu of deputation allowance In the case of CSS Officers,
besides Lhcir being no dislocation, their posting IS treated as a
cadrc appomtmcnt. In view of these distinguishahlc features, we
do not recommend the grant of special pay to CSS Officers
on their appointment as US, DS and Director

SOs to be (1) Functions/duties attached to a post is one of the basic

:Issi.vtanf considerations which goes into the nomenclature of a post. The
Secretaries
designatlon Assistant Secretary would be a misnomer in the case
of Section Officers as the appeltation Secretary connotes some
authority to take decisions, authentication of orders on behalf of
President. whereas no such powers are ensisaged for them in the
present scheme of things. We are, therefore, unable to
recommend the restoration o f designation of Assistant
Secretary to the Section Officers which was abolished with
the introduction of re-organisation and re-inforcement
scheme for the CSS in the year 1948

Hepresc~tirafioti (m) The Ccntral Establishment Board (CEB) is a Committee 01

OH rt33 Secretaries and there being no CSS Officer at the level of
Secreta~.orA&tional Secretary,we are unable to recommend
the representation of the GSS on the CEB

(n) With a view to ensuring &$the CSS Officers arc no1 found
wanting in the discharge 6f%qw duties for lack of knowledge of
the Iatcst dmelopments taking piace around the world, we would
recommend that they should be given suitable exposure to
foreign training programmes. They may also be made
eligible for the training programmes organised by the
Training Division of Department of Personnel and Training

476
 for various services and officers appointed to the Central
Secretariat.

(01 Thc Central Secretanat has undergone radical and qualitative

changes and the tasks performed b!, it have become more
complex, vaned and fwrction- specific Members of CSS have
rmcalcd thcv potentiditm for bemg able to perfom much larger
and complex tasks and have acquitted themselves as creditably
as members of @her3c~vices It would, therefore, be desuable to
induct fresh blood at the level of Section Officer and we
accordingly tecomlecnd that direct recruitment in the grade
of Section Officer may continue, as at present
.i!holition of (p) We have been infixmed that at present, the second and
&pewriIing test
subsequent iKxanarls are wthheld for a penod of 5 years or tdl
an Assistant passes the typewriting test or attains the age of 45
years, whicheva is earlier The withhcld increments are restored
on reaching the 7th incremental stage With the introduction of
computers and their increasing usage by the Central
Mimstri-a, we are of the view that an Assistant may
be given an option to attain proficiency either in typewriting or
in computers and may be required to undergo such training and
pass such tests as may be prescnbed by the Department of
Personnel and Training for release of increments. We do not
find any justification either for abolition of the typewriting
test or for reducing the minimum speed of 30 words per
minute or the number of increments which may be withheld
for not qualifying in the typewriting test and recommend
accordingly.
Seniors and We recommend that the general guidelines issued by the
Juniors
(4)
Department of Personnel and Training which provide for
consideration of seniors when juniors are considered for
promotion on completion of etigibility service, provided the
shortfall in svvicedseniors is not more than one year, may
be followed in the case of CSS Officers also
Iwcrease in (r) As any increase in tkquota from the existing 10% will have thc
de$u,rution quora
effect of increasingtbe strength of the c,adre, which is contrary to
our gencral approach to reduce the size of the government
machinery, we do not recommend any increase in the
deputation quota and would like the status quo to be
m a in t ai ned.
A C I a/ Pnrliament (s) The CSS Rules have been framed under the proviso to Article
309 of the Constitution and have been in force since 1962. The
other oyganised senices similar to CSS are also governed by the
mlcs issued under proviso to Article 309 of the Constitution. NO
problems have been experienced by thc Government in the
absence d a n Act of Parliament. We accordingly recommend
the maintenance of the status quo.

477
Tratisferr policy (1) It appears to us that the cxisting provision has been made in the
rulcs to providc grater exposure to CSS Ofliccrs so that they can
chschargc their assigned duties effectn cly Movement from one
M tnisqe to a n o h x provides opportunitics for interaction and
criablcs acquisition of kno\vledgc on iiiattcrs \\ hich are drnlt w t h
b!, thc ncw Ministry With a vie\\ to cnsuring that thc \ a r i d
cspcricnce acquired by the CSS officcrs IS available to all thc
MiiustricdDeparbnents, we recommend that a comprehensive
transfer policy may be framed for transfer of CSS Officers
from one Ministry to another. Such transfers should,
however, not be linked with promotion as the compulsory
shift a t the time of promotion further delays the already
delayed promotion. CSS officers up to the level of Under
Secretary may be considered for transfer from one Ministry
to another after 10 years of service in a particular
Ministry/Lkpartment

(u) The Go\.cmmcnt has reccntl!. decided that not lcss than 25% of
posts of Dcputy Secretiu) in cach Minis@./Dcpartmcnt should be
filled by CSS Officers and appointment to such posts should be
madc mandator?; i.e.,on assignment basis by thc Establishment
Officer with the approval of Civil Scniccs Board. It has also
bccii dccidcd by thc Govcmment that CSS officcrs included in
thc Dircctors suitability list may be considcrcd for mandator?.
posting after their names are circulatcd for one ?car with effect
from thc datc of approval of the list b!. thc Appointments
Committce of Cabinct (ACC) or on rcceipt of ACC approval to
the subsequciit suitabilit!, list. \vhichc\ er is latcr. A suitablc
provision has also been madc in rcspoct of officers who could not
be appointed as Joint Secretary during circulation of their names.
Thqt \\-ill also be considered for mandatory posting if they have
bcen empanelled for 3 years or more or they have got only two
years' service for superannuation. In view of the remedial
mcllsures taken by the Government, we d o not propose t o make
any further recommendation in this regard.

(1.) W e recommend that the disparity in regard t o years of

service after which direct recruit and prornotee Assistants
can appear in the Limited Departmental Competitive
Examination may be removed.

(tv) We havc been informed that the Assistant's Gradc Examination

is conductcd in two stages The first stagc IS an objcctlve t>pc
test. \\hereas in the second stagc, featurcs of a descriptive
csamination have been retained We, therefore, do not
recommend any change in the existing pattern of
examination conducted by the Staff Selection Commission

(s) Thc Go\cmmcnt has infonncd us that in thc abscncc of a spccific

rccommcndatlon from thc Fourth CPC. thc bcncfit of fixation of
pa! at trio incrcmcntal stages highcr than thc iiiininiuin pay of
thc-pa! scalc on promotion of Assistant and Stcnographcr Gradc
 'C'to the grade of Scction Officer/Private Secretary was
withdrawn and subsequently restored in implementation of an
award of Board of Arbitration. Keeping in view the above
facts, we recommend that the existing practice should
continue.

(y) Wc arc of the t icn that thc ettectiveness 01 ~ 3 oIiiccrs

3 can DC
definitcly improved If t h q are given field postings in the states
where thcy \\odd get an opportunity for learning on the job
This w i l l bc an improvement over the scheme of field training
We, therefore, recommend that training posts should be
earmarked in the States for CSS officers and the Department
of Personnel and Training should evolve a scheme of field
training involving independent postings to various posts in
States for a period of three years.

(1.) We do not find an!. merit in the suggestion to reserve 10% of

vacancies in the All India and other Central Senices to be filled
through a Limited Departmental Competitix Examination.
Similarly, there is no merit in the suggestion that the Direct
Recruit Sccti.on Officers should be made cligible for promotion
to thc Indian .&h&nistiative Service as the promotion of cficials
to thc Indian .\dministrative Sen;icc Cadrc against a quota
rcscmcd for thc purposc is madc from among thosc bclonging to
tlie fccder State Civil Service and Direct Recruit Section Officers
do not bclong to any feeder State Civil Service. We, do not
therefore, recommend acceptance of the demands.

O h c r dcniurids 1j,24 Thc d i e r suggestions made relate to (I) stopping participation of

Stcnogaphcrs Giadc 'C' in thc Scction Officers' Grade Exanination a i d
discontinuance of lateral entry of Private Secretaries to the grade of Under
Sccrctay, (ii) tiniely rcleasc of select lists/pancls for promotion of CSS officers at
the levcl of Under Secretary, Dcpuh Secrctq, Director etc: and clcarancc of thc
backlog, (iii) upgradation of posts of Desk Officer to the Icvel of Under Sccretary
on account of thcu performing the statuton' duty of authentication of Got*cmmcnt
Orders and shouldering higher responsibilities.

45.25 We have gi\w our careful consideration to the suggestions which

are discussed belotv:

LNIL,~NI i ~ of n (1) We haw taken note of series of rneasurcs taken b? the

(:sSs IIflO CSS Govcmmcnt to improve the promotion prospccts of Central
Sccretariat Stenographers' Service oflicers such as (a)
participation in the Section Officers' gradc e\amination.(b)
raismg of 1e1el of stenogaphc assistance to Directors at the level
of Pn\ atc S c c r c t q instcad of Stenographer Grade C'lcading to
upgradation of se\eral posts to the level of Privatc Sccrctaq .(c)
rcstructuring of csdrc in thc ratio of 40 40 20. (d) merger of
Gradcs ' A ' and 5'.(c) suspension of direct rccruitnicnt to Grade
'C' against 1 acancics of select list of I993 m d 1994- rcsultant
1 acaiicics bung fillcd through scniorit? and dcpnrtmental
c\,uiiination quota in the ratio o i SO 50. (0 introduction of gradc
 of PPS which is equivalent to Under Secretary, etc As a result
of the. remedial measures taken by t,hc Govcnunent. the avcrage
timc taken for promouon to Gradc ' C' has come don n from 17 to
13 >cars. from Grade 'C' to thc grade of PS from 13 ycars to 10
years and from PS to PPS grade, the average timc taken is 13
years As against the above promotion prospects ot C5bS
officers, the averagc time taken for promotion from UDC to
Assistant is 10 years. from Assistant to SO I 2 years and from
Section Officer to Under Secretav 16 ycars Having duc rcgard
to the fact that diere IS acute stagnation in the CSS at the levcl of
SO and US for promotion to the grade of C5 and DS as also thc
Improbedpromohon prospects of C S S S officers in their own linc,
we feel that a review of the existing provisions in terms of
which CSSS officers are allowed lateral entry into CSS is
overdue M c r analysing the situation in thc propcr pcrspective,
\ve hale made suitable recommendations on this issuc under the
heading Ccntral Secrctariat Stenographcrs' Sen icc

(ii) We would recommend that delays of more than three months

in the issue of panels, reckoned from the date on which panel
is expected to be released every year, should be avoided. We
would furthe? urge upon the Government t o make the
position up to date in a time-bound manner by bringing out
the panels of previous years.

(iii) Keeping rn i ~ c ntlic advantages arising out of desk pattern of

funchorung ix agriinsi the conventional section. we recommend
that the Desk Officer pattern be expanded to a greater
extent, by converting as many sections as possible. To begin
with, 25% of the sanctioned posts of Section officer may be
converted into Desk Officer and placed in the newly created
pay scale of Rs.2500-40o0. With a view to ensuring
successful functioning of the Desk Officer system, we
recommend that a desk should be manned by two officers
who could either be two Desk Officers, one Desk Officer and
one Under Secretary or two Under Secretaries, who should
be provided with independent Stenographers and a common
desk attache at the level of Assistant. Other supporting staff,
as considered necessary, may also be provided. At a later
stage, when the Executive Assistant system comes into force,
two Executive Assistants for each Desk would probably
suffice.

45 26 It ws brought to our noticc that Section Officers \vcrc reluctant

to accept a posting HS Desk Officcr bccause of the meagre amount of special pay
of Rs 150 which was pa! able on appointment as Desk Officer (DO) \\ ith thc result
that posts of DO rcmaincd unfillcd To owrcornc this problcni and to attrxt
competent SOs to man thc posts of DO. n c hate recomnicndcd a ncu pa\ scalc of
Rs 2500-4000 which. n c f d . is commcnsuratcwth the nature of dutics performed

4x0
and responsibilities shouldered by DOs. We also received a number of
representations from associations representing CSS officers registering their
protest agiunst the proposed mtrcduction of an intermediary pav scale between SO
and US and espressmg apprehensionsabout their promotion prospects to &e grade
of US and above We would like to clarify that the fears expressed by CSS officers
arc b a d on their lack of appiaation of the erTo~isinade b) b e Commission to
reheve stagnation aff.lictmg their cadre. According to the memorandum submitted
by CSS Dtrect Recruit Assistants' Association, it takes approximately 12-13 years
for an Assistant to become a Section Offker. We have also taken note of the fact
that SOs mcluded in the Select List of 1980 have been promoted as US towards the
end of 1996 It IS thus clear that a direct recruit Assistant remains in the pay scale
of SO for 27-28 years of hs senwe. unless be becomes SO earlier through LDCE
~f whch
l casc he remains in thc pa! scale of SO upto 2 1 or 22 years of his scrvicc

45 27 Taking notc of the fact that SOs take about I6 years to become
USs, we thought of providing somc relief to this important lcvel of functionaries
We have recommended in para 45 25(iii) above conversion of 25% of posts of SO
into DO in the pay scale of Rs 2500-4000. SOs being at thc cutting edgc in the
Central Secretariat and keeping in view then career aspirations, we further
recommend that SOs in the CSS, AFHQ Civil Service, Railway Board
Secretariat Service and IFS(B) shall be eligible for second financial
upgradation in the pay scale of Rs.2500-4000 under the Assured Career
Progression Scheme on completiori of 5 years' service in the grade of SO as
a special dispensation. We also recommend that there shall be no residency
period in the pay scale of Rs.2500-4000for their eligibility for promotion to
the grade of Under Secretary on functional basis. For functional promotion to
the grade of US, the s c n x c rendered as SO or combined servicc as SO and DO
shall be reckoned as at prcscnt As regards progression of CSS officcrs to the level
of Deputy Secretary, the information contained in Annexe 45.2 reveals that on an
average 36% of the posts of DS have been held by CSS Officers during the last 16
years. Keepmg this trend in view, we do not see any justification in CSS Officers
entertaining the fear that they would not be given their due sharc of posts at the
level of DS and abovc

45.28 A dispassionate comparison of the position given in the preceding

two paragraphs would reveal that as against the existing position of an Assistant
entering the grade of SO in the 12th or 13th year of his service, hc would now be
in the next pay scale of Rs.2500-4000 in the 14th year under thc special
dispensation accorded to CSS Officers in consideraticm of the important role played
by them in the Central Secretariat. This by no means can be described as reduction
-intheir promotion avenues as we have not suggested any changes whatsoever in the
existing conditions regulating the grant of promotion on functional considcration.

REFERENCE MADE BY DOP&T AND OTHERS

45 29 The Departdent of Personnel and Tranmg have rcfcrred to us for

our considcration the dcrnands raised in the JCM fora relating to rc\ ision of pa\
scale of (a) Grade 11 of CSCS (LDCs). (b) Assistants of CSS and Private
Secretancs of CSSS Bcforc a formal disagreement could bc rccordcd pavingthc
way for referring thc abo\ c dcniands to the Board of Arbitration. thc Fifth CPC'

4x I
 was constitutcd and as pcr decision of thc Government such issues raised in thc
3CM fora on which formal dsagrcement had not been recorded, haw becn rcfcrred
to the Commission. Somc of the Section Officcrs had also filed a pctition before
Principal Eknch of thc CAT sceking removal of the anomalies which had arisen in
the pay scale of Scction Officers conscqucnt on rcvision of the pay scale of
Asclstant 4 contempt petition w s z!:c fi!d by the petitioner SOs tcfarc t!c
CAT wtuch was finally dropped on informing thc court by the Govenunent that it
had decidcd to place thc mattcr before the Fifth CPC. Thcse petitioners have also
urgcd upon us to rcmove the anomaly b\*rciwng thc pay scalc of Section Officcrs

.Yo ope,hg of 45.30 Thc Commission would invite thc attcntion of the Governmcnt to
pasf cases its dcmi-official communication No. 50/4/94PC(Coord) dated 17.1.1996
addrcsscdto all the Sccrctaries and Hcads of Dcpanmcnts clarifying that thc Fifth
CPC had no intention of re-opening past cases or in making any
recommendation with respect to rectification of anomalies with retrospective
effect and that all our rccommcndations will h a \ x prospcctivc cffcct from our
rcconmicndcd datc only. The Administrati\k blinistnes \vcrc rcqucstcd to settle the
past cascs at thcir lcvcl and clarify to thc conccmcd judicial authoritics thc
restriction on thc scope of jurisdiction of thc Commission \vhcnc\!cr such matters
c a m up for l~caring.!n this view of the matter. it ivould not be dcsirablc for us t.
m&c any recornmcndations for removal of anonialits u.hich have occurred in thc
past and p n t new pay scales retrospectively. Such matters may be decided by the
Governmait itscl f.

CENTRAL SECRETARIAT STENOGRAPHERS' SERVICE

Htslorrcal 45 3 i The Central Secretariat Stcnographcrs' Scnice ( C S S S ) IS one of

back~ound the three Central Secretariat Services. The Scnwc was constitutcd in 1951 to man
thc posts of Stenographer in the Central Secrctariat and attached offices. The cadre
structure of tlie service has undergone changes as a result of the recommendations
of thc Pay Conunissions and other cadrc rc\ ic\t bodies

Redrganisation, 45.32 The CSSS was reorganised \vith cffcct from 1st August. 1969.
1 Y6Y Thc rules as amended on unplementation of the recommendations of the Third Pay
Commission provided for four grades of Stcnographcrs iii the Central Secrctariat
namciy 'A'?*B'$'C'and 'D.The total strcngth of thc scnicc was about 5,800. In
1962, thc C S S S was dccentralisedwith a vicw to providing grcatcr flcsibitity to its
stmcturc and cnsuring effective control owr thc stdf by the MinistrylDcpartment
concerned. Under the decentralisation schcmc, promotions, confirmation, ctc. arc
made cadrc-wiseby the respective cadre controlling authoritics. Consequcnt upon
thc cnforccmcnt of the decentralisation schcmc. ccrtain disparities had devclopcd
in thc promotion prospccts of CSSS officcrs in diffcrcnt Ministrics/Departmcnts.
To minimisc such disparities, the zoning schcmc ivas introduccd under which
regular ,and long-term promotions arc madc b!. thc local cadrc controlling
authorities from amongst the officcrs who arc within thc rangc of seniority
specificd by thc Dcpartmcnt of Pcrsonncl and TrnininS froin timc to timc. If a
pcrson within, tlic zonc is not availablc for promotion in ;Icadrc, thc vacancy is to
bc reported to thc DOPT for bcing !illcd b!. pcrsons from othcr cadrcs \she could
not gct promotions in thcir own cadrc for n m t of t'ncancrcs.

4x2
Merger of 45.33 Gradcs "A' and 'B' of thc CSSS wcrc merged on the
Grudesif'Gr '*' reco@ations of the Fourth CPC. With a view to providing further satisfactory
promotion avenues fix the mcmbcrs of thc CSSS,the posts of Private Secretary to
Sccretaries to Government of lndia and cquivalcnt officers were upgraded and
placcd in the pay scale of Rs.3000-4500.

.?i.~tIlG 45.34 Fur improving the promotion prospects 01 Stenographers in

improvements CSSS,posts in grades 'D','C'and 'A'&*B(merged) were pooled together and their
strengh \\.as refixed in Novembcr. 1993 in the ratio of 40:40:20 in each grade of
thc scrvicc. The existing norms laying d o w the cntitlement of officcrs to
stenographic assistance conscqucntly stood relased to the extent required. The
restructuring of Ihc service rcsultcd in upgradation of about 355 posts from Grade
' Dlo Gradc 'C' and 28 I posts from Gradc 'C'to Grade 'A' & 'B'(mcrgcd).
I'rcre,tl psiriori 4 j .3j Recruitment and promotion to sarious grades arc govemcd b!. thc
CSSS Rulcs, 1969, supplementcd by Lhc Ccntral Sccrctariat Stenographers' Scnicc
(Privatc Secretary Grade) Rules. 1989 for promotion to the gradc of Principal
Private Secretary. The position regarding numbcr of grades in the CSSS, thcir
classification, number of posts in each gradc and the esisting pay scales is
indicated in the following Table:-

Table as on 1 .I1994

Grade Classifi- No. of Pay Scale

cation posts (b.1

Principal Private Group A 93 3000-4500

Secretary

Private Secretary Group B I567 2000-3500

(Gazetted)

Stcnographer Gr.'C' Group B 2704 1640-2900

("on-Gazetted)

Stenographer Gr.'D Group C 2689 1200-2040

Demands 45.36 Associations representing Stcnographers the Central, Secretariat

Stenographers' Service (CSSS),Railway Board Stenographers' Service (RBSS).
Armcd Forces Hcad Quartcrs Stcnographcrs' Service (AFHQSS), and liidian
Forcign Scnice (Grade *B) Stcnographcrs' Scn.ice (IFS(B)SS) in their writtcn and
oral submissions before the Commission coniplaincd of acute stagnation in thcir
rcspcctive semiccs and madc scscral suggcstions for improvemcnl of their
promotions prospects. Thc main suggcstions made are that: (a) they should bc
given at lcast three time-bound promotions on completion of 9>18 and 27 \cars of
sckicc on the andog?'of such promotions Iinsing bccn introduced by many ol'111i
Statc Govcnunents such as Kajasthau. Giijarat, West Bengal etc:. (b) Principal
Private Scrrctaries (PPSs) should bc promolcd to thc gradc of Dcputy Sccrctar?.
 and above, (c) Additional Secretaries should bc providcd stenographic assistance
at the level of PPS instead of PS, (d) the entitlement of officers to their personal
staff should be chanced, (e) lateral cntry' of Stenographcrs to the Central
Sccrctariat Service at thc level of Section Officer, k s k Offccr, Under Secretary,
Dcputy Secretary ctc. shoutd be allowcd, (f) Promotion quota in the gradc of
Privatc Secrctary may bc raiscd from 50 to 75%; unfilled vacancies of Private
Sccrctary pertaining 10exarmnation quota should be divcrtcd to promotion quota
by Jinendng the CSSS Rules, (9) the ratio for recruitmcnt to Stenographer Grade
'C' should be changcd to 2 5 2 5 5 0 for direct recruitment, dcpartniental examination
and seniority quotas rcspxtivcly, (h) thc post of Principal Privatc Sccrctary should
bc fillcd on scnioritycum-fitnessbasis to avoid supersession of Privatc Sccretarics,
(i) 50% of thc vacancics in thc grade of PPS may bc filled on tlic basis of a
departmental examination to be introduccd for the purpose, and (1) the posts of
Private SecretqIAdditional Privatc Sccretary to Ministers, Menibcrs of Planning
Commission ctc. may bc included in thc CSSS.

Oitr 45.37 Wc havc given our most sympathetic consideration to the scvcral
rL.co,ttnrorjciriorrs siiggestions madc on behalf of Stcnographcrs by their rcspcctive associations and
have analyscd their promotion prospects with refcrencc.to thcii counterparts in
offices outsidc thc Sccrctariat and other comparable scrviccs. We have been
informed by thc Govcmmcnt of a series of nicasurcs takcn for improvemcnt of
promotion prospcits of Stenographers at different lc\.cls. Thcsc nicasures havc
been listed elsc\vhcre in this Chapter under the heading "Ccntral Secretariat
Senice". Our analysis reveals that Stenographers in the Sccrctariat arc at a more
ad7anlageous position, as far as time taken for promotion from onc grade to
another is conccmed, when compared to their counterpans i n thc subordinate
offices and almost at the samc position with other comparablc scmices in the
Secretariat. W l c we rccognise the need that each servicc should have rcasonablc
opportunities for career progression, at the same time we x e of the firm \iew that
the promotion prospects of a particular service cannot be improvcd at the expense
of another service. We have also noted the observations of the Third CPC that the
experience gained by good Private Secretaries should continue to be utilised in the
line in which such espcriencchad been gained instead of the senior and esperienced
CSSS officers branching out into a somewhat different line at this level. Pursuing
the policy and principles enunciated by our predecessors to provide adequate
opportunities for career progression in their own linc, wc make the following
recommendationsto further improve the promotion prospects of Stenographers at
different levels in thc Secretariat:

PPS to Additional (I) At present there are only 93 posts of Principal Private Secretary
Secretaries
as against 1367 posts of Privatc secretary and the average time
taken for promotion from Private Secretan. to Principal Private
Secrctary is around 13 years. We recommend that o f k e r s
holding posts of Additional Secretary or equivalent rank
may be provided stenographic assistance at the level of
Principal Private Secretary. As per information furnished
by the Department of Personnel and Training, this would
need upgradation of 65 posts of Private Secretary to the level
of Principal Private Secretary in the CSSS. We recommend
upgradation of 65 posts of Private Secretary to the level of
Principal Private Secretary. This would r a m thc total number
of posts of PPS io 158.

484
Senior PS (ii) Availability of 158 promotion posts of PPS against 1302 posts
in the feeder gade of Private Secretary appears to be inadequate.
With a view to ensuring that Private Secretaries have airnost thc
same promotion avenues as are available to members of other
comparable senices, we recommend that 25% of posts of
Private Secretary riiay be placed in the pay scaie of
Rs.2500-4000.Such of the Private Secretaries who are
placed in this pay scale should be known 'as Senior Private
Secretaries,

Senior I'PS (in) At prescnt Principal Private Secretaries do not have any
promotion avenues. With a view to ensuring their continued
availability to the senior functionarics and meeting their carecr
aspirations, we recommend that of the 158 posts of Principal
Private Secretary, 58 posts (approximately 37% of Principal
Private Secretaries) may be placed/operated in the pay scale
of Rs.370@5000. Such of those Principal Private Secretaries
as are placed in this grade may be designated as Senior
Principal Private Secretaries and their placement in this
grade should be made strictly on the basis of selection.

IAteral entry to (IY) With the acceptanceof our above recommendatmns coupled with
css Assured Career Progression Scheme which would be equally
applicable to CSSS Officers, their promotion prospects would
u-nprove considerably in their own line. This calls for a review of
the e>clstmgpracbce of lateral entry of CSSS officers to the level
of Section Officer and Under Secretary We have noted that after
1986,promotions to the grade of Under Secretary are being made
on ad hoc basis because of seniority dispute between dlrect
recruit and promotee Section Officers and as a result thereof no
Pnvate Secretary has been promoted as L'nder Secretary. It has
also been reported by the Government that as on 1.7.94,only 17
Private Secretaries were working as Under Secretaries. On the
other hand, CSS Section Offices are also faqng acute stagnation
and the actual time taken for promotion to the grade of Under
Secretary has men to 16 years as against the provision of 8 years
m the recruitment rules. Keeplng in view the Insignificant number
of Pnvate Secretaries who are working as Under Secretaries and
the stagnabon afflicting CSS, we recommend that lateral entry
of Private Secretaries to the grade of Under Secretary
should be discontinued. As regards entry of Stenographers
Grade 'C' at the level of Section Officer. recognising that merit
should be encouraged, we recommend that only those Grade
'C' Stenographers who are graduates should'be allowed to
participate in the departmental examination for the Section
Officer's grade Once a Stenographer becomes a Section
Officer on the basis of LDCE, he can avail himself of the
promotion prospects available to CSS Officers As the CSSS
officcrs vould have promotion opportunitics up to the pay scale
of Rs 3700-5000. we recommend that for direct recruitment

485
 at the level of Stenographer Grade 'C, the educational
quatification should be raised to graduation.
Second RCP (v) In regard to sewnd financial upgradation under the Assured
Career Progression Scheme, the CSSS Officers shall be entitled
to thc same concessions as es:cndcd lo CSS offccrs iir pala
45.27 as a special dispensation.

Furher (vi) The upgradation of posts as a result of our abovc

upgradation recommendations would be a one-time measure and we
recommend that further upgradations in future shouldbe
made in consultation with Internal Finance.
Applicatioii to 4 5 38 Since the Railway Board Stcnographers' Service, Arnicd Forces
Other serv'ces
Head Quarters Stenographers' Service and Indian Foreign Service (Grade * B')
Stcnographers' Service are structured on the lines of Central Sccrctariat
Stenographers' Service, we recommend that the benefits of our
recommendations made in sub paras (i) to (vi) above should be extended to
members of these services.
Entitlement to 45 39 As regards entitlement of officcrs to their personal staff, it is a
stafl common knowledgethat the number of personal staff working with senior officers
of and abow the rank of Joint Secretan is gcncrally more than their entitlement
Such additional staffarc divat#i from othcr offccrs whose work naturally suffers
With a view to fonnalising the existing practice and providing reasonable personal
staff to senior officers of and above the rank of Joint Secretary, their existing
entitlement would require modification. The upward revision of entitlement should
not lead to creation of new posts but it may be managed by redeployment of the
existing manpower which is found to bc(surp1us on implementation of the
recommendations of the canmission on optimising the size of the government
machinq. The purpcwc of wising the entitlement of senior officers is to provide
transparency in the system and to relieve the administration of the problem of
manipulation. We recommendthat the entitlement of officers to personal staff
may be revised as under:-
-
Post Present Proposed
entitlement entitlement

Secretary PPS-1 PPS- 1

PA -1 PA -1
Steno Gr.'D' -1
or LDC

Additional Ps-1 Same as above

Secretary PA- 1

Joint Secretary PS-1 PS-1

Steno Gr.'D' - 1
' orLDC

486
Variations 45.40 We would like to clarify that the scale of entitlement of officers
possible to their personal staff as recommended by us in the preceding paragraph is not
expectedto be the same for each and every oficcr holding the above posts but the
actual deploymm w u i u vary according to the normal workload and functional
requirements of the job which should prefwably be assessed from time to time.
PromofeesPs' 45.41 With a view to providing equal opportunities to both the
examinees
promotees and examinees and maintaining the stature of service and quality of
stenographicassistance at the level of Private Secretary who are posted with senior
functionaries, we do not recommend any chhnge in the existing ratio of 5050
for promotion and departmental examination quota at the level of Private
Secretary. Si&larly, we are not in favour of diverting the unfilled vacancies
of Private Secretaries pertaining to examination quota to the promotion
quota, as such a step would distort the structure of the service thereby
affecting its quality.
Setitorin, quota 45.42 The proposal of the associations implies raising the seniority
quota from the esisting 25% to 50% and reduction in the direct recruitment quota
fiom 50% to 25%. Having regard to the fact that stenographers Grade 'C' would
now be able to &pre for promotion avenues up to the pay scale of Rs37O0-5000,
we are not inclined to agree to the suggestion and would recommend for
maintaining the status quo
Promotion 45.43 Having regard to the fact that Principal Private Secretaries are
:hrougli seleclion attached with hghest functionariesin the Minisbries, it is only appropriate that only
those officers who can provide effective assistance to the top executives in the
transaction of Government business are promoted as PPS. We, therefore,
recommend that the existing practice of promotion through selection should
continue.
LDCE at PPS 45.44 Introduction of a Limited Dcpaxtmcntal Competitive Examination
kvel for Private Secretaries, for promotion to the grade of Principal Private Secretary,
would increase the waiting period for promotion to the grade of Principal Private
Secretary. In view of limited number of posts at the level of Principal Private
Secretary, we do not recommend the introduction of a departmental
examination at this level.
P.S.10Ministers 45.45 With a view to providing flexibility to Ministers and Mcmbers of
the Planning Commission to appoint a Private SecretaqdAdditional Private
Secretary of their mvn choice, we are not inclined to recommend any change in
the existing practice.
O h r demands 45.46 The other demands made by the associations representing
Stenographers arc that. (a) the nomenclature of thc Central Secretariat
Stenographers' Service should be changed to Central Sccretariat Executive
Secretaries Sewicc and the ncw nomenclature should bc applicablc to similarly
structured services, (b) thc esisting designations should bc changed to Principal
Executive Officer/Principal Executive Secretary. Esccutrvc OTficcrEsecutive
S m q ,Esecutivc Assistant and Junior Executive Assistant i n placc of existing
Principal Privatc Sccrctag . Private Secretary, Stcnographcr Gradc 'C'and 'D

487
 respectively, (c}different ACR forms should be prescribed for the four grades, (d)
Central Secretariat Stenographers' Service offices shuuld be nominated to various
administrative training courses at par wth personnel in equivalent grades, (e)
special allowance at the rate of Rs.300,Rs.400,Rs.500and Rs.600 per month
should be sanctioned to Stenographers Grade 'D,*C','A' and ' B (merged) and
Principal Private Secretary respectively for attendmg ofice beyond normal working
hours and on Saturdays, Sundays and other gazetted holidays, (0 Private
Secretaries should be granted special pay of Rs.400 per month on the same basis
on lvhich it is paid in the Prime Minister's OfficdCabinet Secretariat, (9)
Stenographers who work on ComputersPersonal Computers and other modern
gadgets should be granted special pay; and (h) different charter of duties should
bc prescribed for the four grades of CSSS

45 47 We have considered thc suggestions which are discussed below

Kame of senwe (a) We have been infomid by Government that this suggestion u as
considered by a Committcc of the departmental council of
Department of Personnel and Trairung which found no functional
justification for changing the nomenclature of the senwx
Accordingly, we do not recommend any change in the
existing nomenclature of the service

Besignations (b) Wifh a view to ensunns that the designations of stenographers at

different levels are such that they have a nexus with the nature of
work expectdperformed and do not lead to confusion. we
recommend the following designations for stenographers at
different levels:-

Existing Proposed

New grade Senior Principal Private

proposed Secretary (Senior PPS)

Principal Private Principal Private Secretary

Secretary (PPS)

New grade Senior Private Secretary

proposed (Senior PS)

Private Secretary Private Secretary (PS)

Stenographer Personal Assistant (PA)

Grade 'C'

Stenographer Stenographer
Grade ' D'

( c) The Government has informed that thc ACR forms of diffcrcnt

.4CR Forms
grades in the CSSS ha\c been rcvised on 19.10 1993 aftcr

488
 dscussion with the staff side. In this view of the matter, we do
not propose to make any further recommendation on the
subject .
Duties (d) With a vicw to enabling thc CSSS Officers to perform
multifmous duties, we. recommend that their training cowses
should be specifically tailored to multi-skilling with
considerable emphasis on the operation of comfluters.

OTA (c) While the non gazctted officers are granted overtime allowance
for performing duties bcyond office hours, others are
compensatcd b) way of honorarium and reimbursement of
conveyancc chargcs. In view of this, we do not find any
justification to recommend grant of extra duty allowance.
Special Prv, (f) Spccial pay has bccn grantcd to the Privatc Secretaries in thc
Prime Ministcr's Office/Cabinet Secretariat in consideration of
these officcs occup!ing a unique position, which is not thc case
with other offices. In this view of the matter and having regard
to the financial implications involved in the acceptance of the
suggestion. we do not recommend grant of specizl pay to the
Private Secretaries.

(g) Having regard to the fact that modem gadgets such as

Computers. Pcrsonal Computers, Fax Machines, Photo Copiers
have facilitated the job of Stenographers b a great extcnt and
cause less fatigue as compared to working on conventional
machines, we do not find any justification for grant of special
pay for working on modern gadgets.
Duties to be (h) With the restructuring of CSSS in the ratio of 40:40:20, the
included existing norms laying down the entitlement of officers to
stenographc assistance have already been relaxed which implies
that Stenographers Grades 'D,'(2, 'A' and 'B' (merged) can be
deployed with my officer irresmtive of his entitlement. The
Assured Career Progression Scheme, recommended by us
elsewhere, envisages operation of posts on floating basis i.e. the
same person. unless he has been promoted to the next post on
functional basis, shall be placed in the next scale of pay on
completion of a specified period of service subject to his being
found fit by the Departmental Promotion Committee. The
Stenographer so dcployed with an officer can be of any grade and
he may be the only person to assist the officer. With a vicw to
ensuring that the services of Stenographers are available
effectively and full flexibility is provided to make use of thcir
services in the best possible manner, we recommend that the
following duties may be included in the Office Memorandum
of Department o f Personnel and Training dated 12.4.1988 -

(i) Supervision of staff wherever admissible in the

personal section of the officer to ensure punctuality,
courteousness, neatness and discipline.
 (ii) Proper maintenance, upkeep and custody of all house
keeping items and equipment like computers,
photocopiers, typewriters, telephone instruments,
FAX machines etc. in the personal sectiodwith the
officer.

(iii) Maintenance of confidentiality of papers routed

through the personal section.

We recommend that the scope of duties may be widened further by suitably

incorporating the sentence "TOassist the officer in the manner desired by
him/her". We also recommend that, as far as possible, members of CSSS
should be posted with officers who are entitled to them wherever the scale of
assistance has been prescribed.

CENTRAL SECRETARIAT CLERICAL SERVICE

Ilistoricnl 45.48 Thc Central Smetariat Clerical S c n x c (CSCS) is one of thc

hockgrorord three organiscd Scniccs included in the Central Sccrctariat Scniccs Schcme. Thc
Service \wsconstitutcd dong nith the CSS during thc !car 195 1 but its Rulcs wcrc
framed later and canic into force on November 1,1962. 'The CSCS has only two
- gradcs, namcl!. thc upper division grade and the ldwcr division gradc. Thc strength

offie two gradcs 3s on 1.7.1994and the scales pncscribcd for cach arc as follows:-

Gradc Scale of Pav -No of posts

Gradc I RS.1200-2040 5$38I

(Upper Division Clerks)

Grade I1 Rs.950-1500 5,615

(Lo\ver Division Clerks)

45.49 Recruitment to the CSCS at the lcvd of Gradc II used to be made

through an All India Cornpdhve Examination in rcspcct of 90% of the vacancies
with the provision for fillmg the remaining vacancics on thc basis of a compctitivc
exammabon lirmtcd to sutable Class IV personncl nho ncrc F\latriculatcsand had
more than 5 !.cars scn ICC

45.50 Vacancies in Grade I of the CSCS uscd to bc filled generally by

promotion of L o w r Division Clerks in Grade 11 subjcct to rcjcction of thc unlit.
The provision for filling jO?hof the vacancics in Gradc I through a Departmental
Examination limitcd to thc LDCs was not invokcd till Dccembcr 1969 whcn thc
first esamination \sas hcld.
/ticreuse in 45.51 The CSCS Rules werc amcndcd in 1990 to pro\.idc for filling 5%
prriitiolioii yuok?
of thc vacancics carmarked for Group 'D' crnplo~~cos through a qualifying
csamination and thc rcmatning 5% on scniorit~~-curn-fi~iicss basis. A dcmand of
thc Staff Side in, thc Dcpartmcntal Council (JCM) for rcducins thc qualifying
scryicc for appearing in the esamination from 5 to 3 \.cars and increasing thc
promotion quota from lo./, lo 20% was rcferrcd to thc Coniinittcc of Ministers It
 recommended that the quota may be raised from 10 to 15% subject to certain
conditions. Since the conditions were not acceptable to the Staff Side, the status
quo was maintained. Subsequently, howevcr, thc Staff Side agecd to the
recommendations of the group of Ministers in April 1991. Orders raising the
promotion quota wcre issued in August 1992.

Restructuring o$ 45.52 The cadre of CSCS was restructured in the ratio of 60.40 I e 60
CSCS LDCs and 40 UDCs in 1978-79. This ratio was fiuthcr revised to 50 50 \v c f
April, 1994

Method o$ 45.53 At present recruitment to 85% of thc \.acancies in the grade of

recruitment of LDC is niade through an all India competitive ssarnination. The remaining
L K S
vawncics arc filled through a Limited Departmental Qualifying Examination to the
extent of l(Y!h a:;d on seniority-cum-fitness basis tti thc cstcnt of 5% from among
educationally quaiificd Group D' employees.

45 54 Vacancies in thc grade of lJppcr Di\ ision Clerks arc filled 75%
by promotion on sciiiorit?-clim-fitness basis froni nmong L,DCs with 8 years
servicc and 25% by Limited Departmental C o m p c t i ~ r ~Examination
c in which
LDCs with 5 !cars sewicc arc eligible to appcar

45.55 Tlic inam dcmands niade by i.hc associations representing

members of Ccntral Sccrctariat Clerical Senicc arc (a) that thc UDCs should be
placcd in l.hc pay scak of Rs.1400-26oOon the ground that conscqucnt on revision
of pay scalc of Assistants, the gap betwcen the pay scalcs of UDCs and Assistants
has increascd. (b) that the posts of UDC should bc nicrgcd ivith.thosc of Assistants
bccausc thcrc is no differencc between the work donc by Assistants arid UDCs in
the Ccntrnl Sccrctnriat, (c) that an Assistant tirade Lirnited Departrnental
Conipetitiic Examination may be introduced for thc UUCs for promotion to the
grade of Assistant on the analogy of LDCE for Gradc '13' Stenographers for
promoticn to gradc 'C' of CSSS, (d) that UDCs with 12 years' combincd servicc
in the gradc of L J X and UTX: may be allowed to compete in thc LDCE for Section
Officers along vith Assistants and Stenographers Gradc,' C', (c) that the condition
of 50 years up to which an LDC can appear in the dcpartmcntal cxarriination for
the UDC gradc may be removed and that (r) the eligibility condition of 5 years'
qualifying scnicc in the grade of LDC for appearing in the departmental
examination for UDC grade may be reduced to 3 ycars.

45.56 We haw considered thc suggestions and our rccommendations arc

as under-

Revision ojpqv (a) Consequent upon revision of pay scale of Assistants and
scale of U X s Stcnographcrs Gradc 'C'of CSSS, thcrc has bcen no change
cilhcr in the duties and rcsponsibilitics cntrustcd to the UDCs or
in thc mode of rccruitmcnt or prcscriplion of higher educational
qualification etc. We, therefore, do not find any justification
for revision of pay scale of UDCs to Rs.1400-2600 as this pay
scale was fixed by the Fourth CPC taking into account all the
relevant factors. We recornmend that UDCs should be given
the replacement scale only
Merger o/ U l X s (b) UDCs and Assistants belong to two distinct services. Minimum
With Assistants educational qualification for both the cadres are also not the
same. While it is graduation for direct recruitment to the cadre
of Assistants, UDC is a promotion post for LDCs for whom
minimum qualification is Matriculation or cquivalent. In VICW of
the distinguishablr featiirrs and having regard to the exking
arrangements under which UDCs are cntrusted with duties of a
lesser order as compared to the Assistants, we are unable to agree
with the contention of tbc UDCs that there is no diffcrcncc
between the work done by them and the Assistants
Accordingly, we do not recommend merger of UDCs with
Assistants.

LDCEfor ( c) In the CSSS, Rccwtment to the gadc of Stenographer Gradc ‘C’

Assistatits Grade
is made 50% by direct recruitment. 25% by seniority and 25% by
LDCE from the grade of Stcnographer Grade * D , whereas in the
Assistants grade recruitnient is made 50% by open competition
and 50% by promotion of UDCs With a view to providing an
opportunity to the mcritorious UDCs who are in the same pay
scale as Steno Grade ’ D’. we recommend that an LDCE may
be introduced and UDCs with three years’ regular service
may be allowed to compete for promotion to the grade of
Assistant. We further recommend that in future recruitment
ta the grade’of Assistant may be made 50% by open
competition, 25% by Limited Departmental Competitive
Examination to be conducted by the SSC and 25% by
promotion of UDCs

Promotion of (d) Having regard to the nature of duties and responsibilities

LQCS to so expected of a Section Officer, it is doubtful if an LDC or UDC
with a few years of sentice will be able to shoulder the duties and
responsibilities expected of a Section Officer without working in
the grade of Assistant We do not find any merit in the
suggestion and recommend rejection of the suggestion

Agefor (e) The age of entry for recruitment to the grade of LDC is 18 years
departmental
Educationally qualified Group’D’ employees are also allowcd to
examinatioti
appear in the departmental csamination for the grade of LDC
after 5 years of service Assunling the age of entry as 20 years, an
LDC at the age of 25 and a goup ‘ D employee at the age of 30+
would have sufficient number of chances to appear in the
examination before thq. attain the age of 50 years If they fail to
become UDC up to the agc of 50 years through examination. i t
is doubtful that they would succeed in an examination beyond thc
age of 50 years. We are not convinced of the need to relax the
condition of 50 years u p to which an LDC can appear in the
departmental examination and, therefore, recommend for
maintaining the status quo

(f) The definition of approizd scn’ice as givcn in thc CSCS Rulcs

has been recently rnodiIicd. according to which approved scn’icc
nil1 bc rcckonod from a notional date, namely, 1st July of thc !car

492
following the year of the examination on the basis of which they
were recruited or 1st July of the year for which LDCs were
appointed through promotion. Thus the actual length of service
after which the LDCs will become eligible for taking the
departmental examination would be less than 5 years. For
promotion quota a minimum of 8 years' service in the grade oi
LDC is required for promotion to the grade of UDC. Having
regard to the fact that the length of service required for appearing
in the departmental examination is already lower than the service
requmd for promotion on seniority basis, and that the approved
service is counted from a notional date and the requirements of
the promotion post, there is no justification to reduce the period
furthcr from 5 to 3 years and we recommend accordingly.

493
 A"EXE 45.1
(Refer Para 45.21)

POSTS OF UN D9R SECRETARY HELD BY VARIOUS SERVICES

-.
rear I.A.S. C.S.S. OTHER SERVIES TOTAL
NO Oo
/ NO. 'Yo NO. '10 NO.

1.1.80 79 11.1 481. 67.7 151 21.2 71 1

1.1.81 70 8.3 585 69.1 192 22.7 847
1.1.82 67 7.9 592 69.5 193 22.7 852
1.1.83 64 7.6 582 68.8 200 236 846
1.1.84 62 6.7 653 70.9 206, 1324 92 1
1.1.85 67 6.9 670 69.0 234 24 ! 97 1
1.1.86 65 6.1 755 71.2 241 22.7 1061
1.1.87 57 6.1 666 70.9 216 23.0 939
1.1.88 41 4.3 680 71.5 230 24.2 95 1
1.1.89 33 4.1 582 72.0 19-4 23.9 803
l.i.9C 27 3.8 489 69.5 185 26.7 704
1.1.91 7% 4.4 445 69.3 165' 26 3 642
1.1.92 .70
. 4.6 459 72.3 147 23 1 635
1.7.93 --
17 3.7 467 800 98 16.7 587
1.7.94 14 2.6 488 89.9 41 @7.6 543
1.3 95 10 2.0 468 93.4 23 04.6 50 1

AVERAGE 5.4 73.4 21 .o

Source. (1) Figures up to I . 1 1992 bascd on Report of Bandyopadhyay Committee

(November, 1992)

(2) Figures for the years 1993, 1994 and 1995 as reported by Department of
Personnel and Training.

494
 -
Annexe 45.2
(Refer Para 45.21)

POSTS OF DEPUTY SECRETARY HELD BY VARIOUS SERVICES

Year I.A.S. C.S.S. OTHER SERVIES TOTAL

NO '?/o NO. Yo No. O h NO.

1.1.80 199 37G 177 335 153 289 529

1.1.81 171 35 4 168 34 8 144 29.8 483
1.1.82 168 33 1 192 379 147 290 507
1.1.83 160 28.4 234 41 6 169 300 563
1.1.84 156 283 217 393 179 324 552
1.1.85 153 28.5 198 369 185 34 5 536
t.l.86 169 31.3 188 348 183 339 540
1.1.87 187 31.8 202 344 I99 338 588
1.1.88 186 33 I 195 347 181 322 562
1.1.89 182 37.2 184 376 123 252 489
1.1.90 179 34.6 179 24-6 160 309 5 18
1.1.91 173 33.0 109 36 2 162 30.9 525
1.1.92 171 34.5 175 35 3 150 30.2 496
1.7.93 149 362 149 362 114 277 412
1.7.9.1 135 33.2 137 33 7 135 33.2 407
1.3.95 130 31.9 144 353 134 328 408

AVERAGE 33.0 36.1 31 .O

Source: (1) Figures up to 1.1.1992based on Report of Bandyopadhyay Committee

(November, 1992)

(2) Figures for the years 1993, 1994 and 1995 as reported by Departmcnt of
Personnel and Training.

: 405
 o y
Introduction to 46.1 The subordmcteofices of different Ministries in Government of
florrSecrelurrat
India and some of the attached offices do not participate in the organised services
orgo"lsu~'o"s
of the Central Secretariat viz. CSCS, CSSS, andCSS. Thus the organisational
strucbureof ministerial posts differs from organisation to organisation, depending
ob the cadre strength and functional requirements of these organisations. This
chapter only relates to such offices.
IBCdl'DCs 46.2 There is a total of 19,481 of posts of Lower Division Clerk (LDC)
and 15,253 posts of Upper Division Clerks (UDC) in these orgarhations. LDCs
are recruited through an all India competitive examination, held by the Staff
Selection Commission. Railways and the Departments of Posts and
TelecommuniCationsare an exception, as they have devised their own methods of
recruitment. The posts of UDC are filled 100% by promotion of LDCs in most
organisations. Certain departments like the Central Board of Direct Taxes, Central
Board of Excise and Customs and Accounts Departments are however an
exception, as direct recruitment to 50% of the posts is made with a higher
qualification of graduation and the remaining 50% posts are filled by promotion.
This position is at vanance with the Central Secretariat Clerical Service, where no
dmct reauitment is madc at the UDC level, but 25 per cent of the posts are filled
through a limited departmental competitive examination held every year by the
Staff Selection Commission, in which LDCs with 5 years regular service are
eligible to appear.
S I ~ ~ ~ . S W C ~ I & 46.3 Follo~vingis the staff strength in various grades of staff above the
dernrls level of Upper Division clerks.

496
 Group Pay Scale Asstts. Head Supdt. Admini- Tatal
@.) Clerks st ra t ive
Officer

A 3000-4500 100 100

A 2200-4000 - 5,917 5,917

B 2000-35001 - 4,850 698 5,548

23 75-35003

B 2000-3200 273 273

B/C 1640-2900 - 610 610

C 2000-3200 - 3,126 3,126

C 1600-2660 6 4,935 4,94 1

C 1400-2600 795 8 108 91 1

C 1400-2300 832 2Cr,223 1,284 - 22,339

C 1350-2200 130 - 130

Total 1,627 20,367 14,913 6,988 43,895

Assiskmtd 46 4 Ministerial posts next above the level of UDCs are known by
cIcrkr different designations - Assistant, Head Clerk, Office Superintendent level 11 etc
and placed either in the pay scale of Rs. 1400-2300 or Rs.1400-2600.Different
designations and pay scales have been adopted by different departments as per their
functional requiranentS. The designations of Head Clerk and Office Superintendent
level II suggest hat they may be supervisory posts but we have been informed that
the nature of duties and responsibilities of these empioyees are generally non-
supervisory in nature and even if some supervisory duties are assigned, these are
of a very routine type.
Supermtendentv 46 j The majority of supcn~soryposts with designation as Office
Superintendent Level YOfice Superintcndcnt (4,935) are in the pay scale of
Rs. 1600-2660 qnd only a small number of thcm (6 10) are in the pay scale of Rs
t640-2900. These posts arc fillcd by promotion from amongst Head
Clcrks/Assistants with 5 years of rcgular service in the grade. These arc
supcnlisory posts at the lowest Ic\*clin subordinate offccs and they supentisc thc
\iork of Clerks and Assistants norking undcr them. An equally large number of
Supcrintcndents are also in thc pa!’ scalcs of Rs.2000-3200 (3.126 posts).
Rs 2000-3500/Rs.2375-3500 (4850 posts) Supcrintcndents can, thcrcforc. bc
diiidcd into two broad catcgorics - one in the pay scales of
 Rs.1600-2GGO&. 1640-2900 and othcr in the pay scales of Rs.2000-3200and
Rs.2000-3500/Rs.2375-3500. Superintendents in the latter categon are promotion
posts for the supcrintcndcnts in the former catcgoq;. Somc oficcs havc ministerial
posts in both the scales of Rs.2OOO-3200and Rs.2000-3500. Superintendcntsin
somc organisations arc also designated as Assistant Accounts Officer and
Accounts Gfficcr.

Adncinistratlve 46.6 Thcre is a lot of variation in designations and pay scales of

Oflcers Adrninistrativc officers in non-secretariat organisations and majority of them
(5?9l7)arc in the scalc of Rs.2200-4000, whilc their number in the pay scalc of
Rs.2000-3500/2375-3500 and Rs.2000-3200 is 698 and 273 rcspcctively.
Diffcrcnt dcpsrtmcnts have adopted diffcrcnt designations of Superintendent,
Assistant Adiuinistrativc Officer, and Adrninistrativc officer for these posts and
sornctiincs . a diffcrcnt designation is uscd for the samc pay scale in diffcrcnt
dcpartmcnts. Somc departments also havc thc posts 01' Senior Adrninistrativc
Officer and Chicf Administrative Officcr in thc pa!' scalcs of Rs.3000-4500 and
Rs.3700-5000rcspcctivcly. In some organisations, dcsignations of @. Dircctor.
Dircctor (Adnin) and Personncl Oflicer etc. arc also uscd. These posts are
gcncrslly fillcd on deputation basis due to non-availability of eligible personnel
from tlic fccdcr catcgorics in the organisation.

ISSUES RELATING TO PAY SCALES

PariQ with 46.7 Coinplcte parity has been demandcd bctwccn thc pay scales of clerical
sccretariatpaY staff in thc Ccntral Secretariat and subordinate ofliccs. In somc cases, it has been
Scales and cadre
structure
asserled that field jobs entail mre rigorous worhng conditions, whereas secretariat
staf€cnjoyIxtter amenitieswithout any accountability, and thus a claim for highcr
pay scales in the subordinateofices has been madc. A number of administrative
ministrics havc recommended parity on the ground of responsibilities, transfer
liability and interaction with public. In case of assistants of organisations like
Enforcement Directorate,CBI, Central Passport Organisation etc., various benches
of Central AdministrativeTribunal have givcn judgments granting parity with thc
pay scalc of Assistants in CSS.

46.8 There is already a complete parity in the scales of pay of LDCs

and UDCs in thc Secretariatand Non-Secretariat Organisations. The reason for
this parity is undcrstandable as the naturc of thc job of thcsc two categorics of
posts is similar in both thc set-ups. They arc requircd to pcrform routine dutics of
a clcrical naturc, including typing.

46.9 In the case of Assistants in thc Sccrctariat, thc position is cntircl!.

diffcrcnt. Assistants in the Secretariat ham al\va!*s bccn givcn a spccial status as
thcy h a w bccn holders of Group 'B posts. Thcy ha1.c ahvays had a higher pay
scalc as cotnpnrcd to Assistan&in Non-Secrctariat Organisations,cvcn though thc
diffcrcncc was limited to a higher masiiiiiini. Thcrc has bccn a significant
clcmctit(5(P!) of dircct rccruitmcnt with thc h i g h cducational qualification of
graduation in thc casc of Assistants in thc Sccrctariat. as coniparcd to thcir
countcrparts in subordinate ofices, who arc promotcd from thc post of UDCs lor
which thc prcstribcd minimum qualification is mamc only. Assistants it?
Sccrctarint perform morc complcx dutics itinsmuch as thcy arc involvcd in
analying issucs which Favc policy implications It1 coiiiprison to thcir countcrparts

498
 in subordinate offices, where the nature of work is confined to routine matters
related to establishment, personnel and general administration only. Assistants in
the secretariat also submit c a m directly to the decisionmaking levcl of Under
Secretary/Dcputy Secretary, under the scheme of lcvel jumping Taking all these
factors into consideration. we are of the definite view that the pay scale of
Assistants in the Non-Secretarict organisations should slightly be lower as
compared to the pay scale of Assistants in the Secretariat. Assistants in
subordinate offices may therefore, be placed in the pay scale of Rs.1600-2660.

Head C'lerU 46 10 The posts of Head Clerk (Rs 1400-2300) and Office
Supenv Tor Supcnntcndcnt Lcccl I1 (Rs 1400-2300/ Rs 1400-2600) also csist in ali the Non-
Secretariat organistions It IS felt that none of these posts has any supervisory
funchons u i t h the namc It will, be appropriate if the two grades are merged
with the cadre of Assistants. Their pay scales and designations will also be
modified accordingly

46.1 1 The posts of Office Superintendent Level I (Rs.1600-2660)or

Office Superintendent in the pay scale of Rs 1600-2660/Rs.1640-2900 are
supen.isor\.. posts 111 the rcal sense. Th.: incumbents of these posts supervise the
work of Assistants, Head Clerks and other clerical staff in thc Offices. They
should, therefore, bc designated uniformly as Office Superintendent and
placed in the pay scale of Rs.1640-2900

('odre o r 46.12 To sum the discussion so far, the cadre of ministerial posts in
\ Ii,irstzrrol
Non-Secretariat organisations should be organised in the following manner:-
posts

LDC - Rs.950-1500
UDC - Rs.1200-2040
Assistant - Rs.1600-2660
Office Superintendent - Rs.1,640-2900

.-fdtninistrutive 46.13 The hicrarchy above the level of Office Superintendents comprises
Oficer
Assistant Administrative Officers and Administrative Officers. A small number
of them arc in the pay scale of Rs. 2000-3200, but thc majority are in the pay
scales of Rs. 2000-3500 /.Rs.2375-3500 and Rs.2203-4000. A good number of
Superintendents arc also in the pay scale of Rs.2000-3200. Due to the general
decision to mergc thc pay scale of Rs. 2000-3200 with the pay scale of Rs.
2000-3500, the Officc Superintendents in the pay scalc of Rs. 2000-3200 and
Assistant Administrative Officcrs in the samc pay scale or in the higher pay scale
of Rs. 2000-3500 will nccd to be treated equally. The post of Administrative
Officers in these organisations may, therefore, be reorganisedl redesignated
in the following manner:-
 SI. Present Designation/ Revised Designation/
No. Pay Scale Pay Scale

1. SupdtiAsstt. Admi- Administrative

nistrative Officer Officer Gr.111
(Rs.2000-3200) (Rs.2000-3500;)
(Rs.2000-3500)

2. Administrative 4dministrative
Officer Officer Gr.11
(Rs.2375-3500) (Rs.2500-4000)

3. Administrative Administrative
Officer Officer Grade-I
(Rs.2200-4000) (Rs.2200-4000)

4. Sr.Administrative Sr.Administrative
Officer Officer
(Rs.3000-4500) (Rs.3000-4500)

I n offices having posts in both the pay scales of Rs.2OOO-3500and

Rs.2OOO-3200,the former being promotion grade for the latter, the pay scale
of higher post shall be revised to Rs.2500-4000, if the functional
considerations so dictate. Otherwise, both the grades can be merged in the
pay scale of Rs. 2000-3500.

ISSUES OTHER THAN PAY SCALES

Parity in method 46 14 In spite of complete parity in the pay scales of LDCsNDCs,

ofrecrurbnent vanaons eslst m the methods of recruitment at the level of UDC. Demands have
been made for mtroducing a fast track of promotion In a number of organisations,
departmental esaminauons are held for promotion from LDC to UDC grade. In
order to bring uniformity in different organisations and parity with CSCS, a
limited departmental competitive examination for promotion to UDCs needs
to be introduced. The examination should be based on the pattern of the
examination conducted by Staff Selection Commission for CSCS.

46.15 At the level of Assistant in the C S S , 50% of the posts are filled by
&ect recruitment and the remaining by promotion. In the case of Non-Secretariat
organisations: similar component of direct recruitment cannot be introduced as in
a large numbcr of small organisations, there are no senior level posts beyond the
scale of Rs.2000-3500. Direct recruitment at Assistant level without having
enough promotion opportunities will be detrimcntal to thc cause of efficiency and
will bccornc a major cause of frustration. As such. a11 thc posts of Assistants '

should continuc to be filled by promotion in Non-Secretariat Organisations.

However, \vith a vicw to improving efficient!,, at least 25% of the posts of
Assistant may be filled through a Limited Departmental Competitive

500
hamination and aU graduate UDCs with 5 years' regular service should be
eligible to appear m this examination, leaving 75% of the posts of Assistants to
be filled on seniority-cum-fitness basis.

46 16 A demand has been made to raise the entty qualification for

appointment to the post of LDC and LOd e b those over qualified for appointment
as LDC. The matric system of education has since been repla+ by Secondaxy
(loth standard) and Senior Secondary ( 10+2 standard) throughout the c o ~ n t t yA
Secondary pass is considered to be equivalent to matric. In the context of
improving the productivity of Government organisations, it is recommended that
initial recruitment at the level of LDCs should be made with a Senior
Secondary (lot-2)qualification. The existing incumbents of posts of LDC may
possess only matric qualification They should, however not suffer any
disadvantage in their promotion to higher grades

46 17 In subordinate ofices having no clerical grade above the level of

UDCs, special pay is granted to 10% of the UDCs at the rate of Rs.70p.m. A
demand has been made to enhance this amount and to remove the anomaly caused
UI fixation of pay, when a junior UDC in receipt of special pay is promoted and his
p3y is fixed at a higher stage than n senior. We have separately recommended, as
a general policy, that special pay should not be given unless these are.absolutely
essential. In the present case, since 10% of the UDcs an involved in complex
duties, it is recommended that 10% posts of UDC in such organisations be
upgraded to the level of Assistant. This will also remove the anomaly that arise
in fixation of pay.

46 18 The ratio between UDC and LDC has been fixed as 1 1 in case of
Central Secretariat Clerical Service No such ratio has been fixed in case of
We have been informed that generally the ratio between UDC
~~bordinate~fltices.
and LDC in case of subordinate offices is 4:6. We fccl that fixation of a rabo
betweem posts of LDC and UDC in subordinate offices may not be feasible on
functional grounds. However, in order to relieve stagnation in the cadre of LDCs
to some extent in officeshaving a large number of clerks, the administrative
ministries may take action to upgrade some posts of LDCs to UDCs based on
functional requirements. Stagnation shall be partly taken care of under the
Assured Career Progression Scheme

SPECIFIC DEMANDS OF DIFFERENT DEPARTMENTS

..
46.20 Superintendents in Song & Drama Division of M i n i s q of
Information and Broadcasting have urgcd that their pay scale should be upgraded
to Rs. 2000-3200, identical to th3t of Managers as before implementation of
Fourth CPC pay scalcs, thcy both \vex in the identical scale of Rs 550-90(! We

50I
 recommend that Superinteadents of Song & Drama Division be placed in the
revised scale recommended by us for replacement of the scale of
Rs.1640-2900
All India Radio 46.2 1 Administrative Officers of All India Radio who are in the pay
scale of Rv. 2@%-3200shalt be placed in the revised replacement scalr: of i2s.
2000-3500 as part of our general recommendations for rationalisation of pay
scales. As per our general recommendations in this Chapter, the post should also
be redesignated as Administrative Officer Grade 111. However. we have been
mformed about the Cadre Review Committee's recommendation that there should
be at least one post each of Adrmnistrative Officer and Dy. Director ( A h ) at
every station of AIR/Doordashan. A final decision on the recommendations of
the Cadre Review Committee should be expedited based on functional
requirements. Posts created. if any, should be designated as per our
recommendations

46.22 Superintendents in Central Passport Organisation who arc in the

existing pay scale of Rs 1640-2900 have urged for upgradation of their pay scales
as they are holding group B gazetted posts. We have recoymended cbolition ol
gazetted status in the relevant chapter md, therefore, recommend that these
Superintendents be given only replacement scale recommended by us for
Rs.1640-2900.
O r ptiisa lions 4623 Various organisations under the Minstrl; of Dcfence have
utider A4iiiistty 01
complained of acute stagnation in the ministerial cadres. They have suggested that
llefeflce
the ratio between supervisor and clerical staff, which at present varies from 1 :16
to 1:22, should be brought down to 1:8 so that more posts of Superintendent are
created, opening better promotional avenues. We are of the opinion that a
uniform ratio of supervisor to clerical staff cannot be recommended for all
organisations. Such a ratio can only be determined on the basis of a
comprehensivecadre review and work study of organisations
Cenrrnl Reserve 46.24 In the year 1981, all civilian ministerial posts in CRPF were
Police Force
combatised, and civilian employees were given the option to switch over to the
combatised cadre. Some of these personnel did not opt for wformed cadre which
has now resulted in their getting lower pay scales as compared to those who opted.
These employees, who are about 96 in number, have requested that they be given
one more chance to opt for the combatised cadres, as their juniors. who had then
opted for combatised cadre, are placed in hgher pay scales. We recommend that
one more chance should be given to these civilian employees to opt for
combatised cadre provided they are willing to abide by all conditions of
training and consequential responsibilities.

46.25 UDCs in CBEC and ,CBDThave the opbon to shift to the executive
side by appointment as Inspector (Rs.1640-2900) on qualif\.ing a departmental
examination or else they arc promoted to Office Superintcndcnt level I1 or Head
Clerk (Rs.1400-2300). In the latter c q e , they can aspire to go up to Office
Superintendent (Rs.2000-3200), whereas in the former casc. the!. can rise higher.
As such UDCs in thew dcpartments are reluctant to acccpt promotions in the
miIllstenal cadre. Both thc departments have stated that duc to this reason, a large
number of posts remain vacant in the ministerial cadre and have sought for
remedial meastrrcs
 46.26 In order to overcome such difficulties in inchvtdual cadres, we
recommend that an exercise in restructuring the cadre of ministerial posts in
different subordinate offices be undertaken by each Ministry, OR the basis of
general recommendations given by us in this Chapter. We have also analysed
the cadre strength in some of the subordinate offices and recommend a
revised cadre structure as given in Annexe 46.1. This is withwt prejudice to
the revisions that may be found justified after a proper cadse review.

STENOGRAPHERSOUTSIDE THE SECRETARIAT

46.27 Historically, thcre have bee0 differences in the pay scales of

stenographers outside the secretariat and their counterparts in the Central
Historical Secretariat Stenographers' Service (CSSS). The Second CPC had recommended
backpound three standard 'scales for stenographers outside the secretariat which had
proliferated to 17 at the timc of constitution of the Third CPC. The Third CPC
observed that the number of pay scales for an occupational group like
stenographers was much larger than necessary and brought down the number of
pay d e s by following a uniform approach. The then existing category of Steno-
typists was converted to stenographers subject to their qualifying in the prescribed
speedtest. It developed a nexus between stenographers at the Iowest level and the
Upper Division Clerks (UDCs). It also recommended the grant of one and two
advanciincrements for those stenographers who qualified in the proficiency test
in stenography at higher specds of 100 and 120 words per minute respectively.

Third CPC 46.28 Considenng the hfferences in the hierarchical structures and in the
type of work transacted In the secretariat and in the subordinate offices, the
Commission was not in favour of adopting a uniform pattern It felt that there
would be a greater intemal harmony if the starographers at the second level and the
Head Clerks were to be given the same scales of pay (Rs 425-700). It also
recommended a selection grade of Rs.550-750for stenographers at the second
level, for the purpose of relieving stagnation.

Fourth CPC 46.29 At the time of constitution of the Fourth CPC, there were about
41,000 stenographers in the three scales of pay of Rs.330-560 (Grade III),
Rs.425-700(Grade 11), and Rs 550-900 (Grade I). The Fourth CPC took note of
the fact that posts of stenographer were linked with the status of the officers
concancd and that the number of officers in subordinate offices being small, there
was stagnation in the cadrc of stenographers. Recognising the need for
improvement in thc promotion prospects of stenographers in officcs outside the
Secretariatand to enabletheir being attached to offtcers holding posts in the senior
administrative grade and equivalent, it recommended creation of posts in the pay
scale of Rs.2000-3200 by suitably upgrading the required number of posts of
stenographers from the lowcr grades. It recommended the replaccment scale of
Rs.1200-2040 for stenographer Grade 111 and Rs.1400-2300 for stenographers
Grade 11.

,4M'lWd <$/he 46.30 On a demand made by the staffside in the National Council of JCM
13oarri of
seeking parity in the pay scalcs of smographers in the sccrctarial and subordinate
Arbitration offices, the matter was referred to the Board of Arbitration (BOA). The BOA
while rejecting the demand for absolute parity directed that stenographers Grade
I1 in subordinate offices should be placed in the pay scale of Rs.1400-2600 w.e.f.
1.1.1986. The Award was implemented and orders were issued on 4.5.1990.

CA T decisiotJ 46.3 1 The pay scale of Assistants in the Central Secretriat Service (CSS)
and Stenographers rn the CSSS was revised by the Government on 3 1.7.1990,
effective from 1.1.1986. Some of the AssistantsKrime Assistants and
Stenographers Grade I1 working in the CBI,Directorate General ofJncome Tax
(Investigation), and Directcrate of Field Publicib. filed a number of petitions before
the Principal Bench of the Central Administrative Tribunal seeking benefit of the
orders dated 31.7 1990. Rejecting the contention of the Union of India that
Stenographers Grade I1 and Assistants in the non-saretartat offices could not be
compared w i t h Stenographers Grade ‘C’of CSSS ‘and Assistants of CSS because
of different classification, method of recruitment, nature of duties and
responsibilities and eligbdity for promotion to higher gradc, the CAT directed the
Union of India to place the petitioners in the pay scale of Rs 1640-2900. The
judgement of the CAT has been implemented.
Present 46.32 The comparative position of stenographers in the secretariat and
positron
offices outside the secretariat as it existed at the time of constitution of the Fifth
CPC is as under:-

Secretariat Non-Secretariat

a) Stenographer Grade ‘ D a) Stenographer Grade 111

(Rs.1200-2040) (Rs.1200-2040)
b) Stenographer Grade ’C’ b) Stenographer Grade I1
(Rs.1640-2900) (R.S. 1400-2300/
R.S. 1400-2600/
Rs.1640-2900)
c) Stenographers Grades c) Stenographer Grade I
‘A’ and ‘B‘(Merged) (Rs.1640-2900)
(RS.2000-3500)

d) Principal Private d) Senior Personal

Secretme Assistant
(RS. 3000-4500) (Rs,2000-3200)
e) Private Secretan,
(Rs.2000-3500)

0 Principal Pnmtc
Secretary
(Rs.3000-4500)

DrltlcIlrdc 46.33 Associations rcprescnting stenographers h a w urged before us that

there should be complcte parity bctween stenographers in non-sccrctariat offices

5 04
 and in the secretariat in matters relating to (a) pay scales, (b) designations, (c)
cadre structure, (d) promotion avenues, (e) level of stenographic assistance to
officers in technical, scientific and research organisations, etc. Suggestions have
also bem made for a higher pay scale for stenographers in the entry grade, treating
advance increments granted for acquiring proficiency in stenography at higher
speed as pay, allowing stenographers in non-secretariat offices to compete in the
Limited Departmental CumpetitiveExamination (LDCE), and grant of Special Pay
for operating computers, fax machines, etc.

Pay scales and 46.34 We have given our careful consideration to the suggestions made by
desi~a"ons Associations representing stenographers in offices outside the Secretariat in the
light of observations made by the Third CPC The Commission had observed that
as a general statement, it was correct to say that the basic nature of a stenographer's
work remained by and large the same whcther he was working with an officer in the
secretariat or with an officer in a subordinate office. The Commission was of the
considered view that the size of the stenographer's job was very much deptndent
upon the nature of work entrusted to that officer and that it would not be correct,
thereforc, to go merely by the status tn disregard of the functional requirement. By
the sexy nature of work in the secretariat, the volume of dictation and typing work
was expected to be heavier than in a subordinate office, the requirement of szcrecy
even in civil offices of the secretariat could be very stringent. Considenng the
differences in the hierarchical structures and in the type ofwork transacted in the
secretarizit and in the subordinate offices, the Commission was not in favour of
adopting a unifam pattern in respect of matters listed in the preceding paragraph
To our mud, the observations of the Third CPC are as relevant today as they were
at that point of time and we are not inclined to overlook them totally. In view of
the above mentioned distinguishable features, we do not concede the demand
for absolute parity in regard to pay scales between stenographers in offices
outside the secretariat and in the secretariat notwithstanding the fact that
some petitioner stenographers Grade I1 have got the benefit of parity in pay
scale through courts. However, pursuing the policy enunciated by the Second
CPC that disparity in the pay scale prescribed for stenographers in the secretanat
and the non-secretariat organisations should be reduced as far as possible, we are
of the view that Stenographers Grade I1 should be placed in the existing pay
scale of Rs.1600-2660 instead of Rs.1400-2300/Rs.l400-2600.The next
available g r d e of stenographers in non-secretariat offices is Rs.1640-2900 (Grade
I) We do not recommend any change in the existing pay scale of
Stenographers Grade I. Senior Personal Assistants and Private Secretaries
are at present in the pay scale of Rs.2O00-3200 and Rs.2O00-3500
respectively. Giving the Senior PAS the benefit of rationalisation of pay
scales, we recommend that both Senior PAS and Private Secretaries should
be placed in the pay scale of Rs.2000-3500 and known as Private Secretaries
Stenographersin the newly recommended grade of Rs.2500-4000should be known
as Senior Private Secretaries and those in the pay scale of Rs.3000-4500shall
continue to be known as Principal Private Secretaries.

Restructuring 01 46.35 Since stenographers in the non-secretariat offices do.not form an

Cadre organised common cadre, their promotion prospects vary from organisation to
organisation. The availability of higher grades in the cadre of stcnographcrs is
linked to the grades of officersto whom they arc attached. Such a linkage has bccn
dispensed with in the case of stcnographcrs in the secretariat with the restructuring
of their cadre in the ratio of 40:40:20. Wc arc of the view that stenographers in thc

505
 offices outside the secretariat deserve to be provided some relief and we
accordingly recommend that the eristing posts of stenographers in the pay
scales of Rs.1200-2040, Rs.1400.2300/Rs.140600 and Rs.1640-2900should
be pooled together and restructured in the ratio of 40:40:20 by individual
departments wherever feasible. For smaller offices, there could be pooling
of ports for this purpose only.

fw-odrtcrrotl of 46 36 We have noted with concern thc acute stagnation prevalent in the
tiew grodr
cadrc of stenographers 111 ofices outside the secretariat, particularly i n small offices
where there are posts only in the entry grade. The Assured Career Progression
Scheme recommended by us elsewhere would ensure at least two upgradations in
the career of a stenographcr Eve!i in big offices which are headed by officers in
the grade of Joint Secretary and Additional Secretw to the Govenunent of India.
the highest grade available to stenographers is liniitcd to
Rs.2000-3200/Rs 2000-3500 With a view to meeting the zspirations of
stenographers in such big offices, we are of the view that the level of
stenographic assistance to officers in the existing pay scale of Rs.7300 and
above may be raised by upgradation of the equivalent number of posts of
Senior Personal AssistantdPrivate Secretaries to the newly created pay scale
of Rs.2500-4OOO

Let rl O I I ~ JC~IIC 46 37 Having duc regard to the difference in the volume of dictation and
d’slrttas~~’1ic typmgwork, hmarchlcal structure. type of work transacted in secretariat and non-
asst \“I)ICC seaetanat offces, it wl1 not be worhvhle to aim for parity in respect of scale and
level of stenographic ass~slil~lcc
betweeen officers m the Central secretariat and non-
secretariat offices As regards level of stenographic assistance to officers of
techcal, scientific and research organisations, we are of the view that mere scale
of pay of such officers cannot be the criterion for provision of stenographic
assistance. The level of stenographic assistance to such officers has to be linked
with quantum of work load, to be determined by the Staff Inspection Unitllnternal
Work Study Unit. We feel that the existing guidelines relating to provis!on of
stenographic assistance to officers of technical, scientific and research
organisationsare based on rational consideration and we, therefore, recommend
that the &Sting practice of provision of stenographic assistance based on the
quantum of workload may continue.

P0.Vscole at 46.38 Keeping in vie\v the educational qualifications required for

entry grode
recruitment to the grade of Stenographer Grade 111, we are of the view that the
replacement scale of Rs.1200-2040would be an adequate remuneration for
Stenographers Grade 111 and we recornmend accordingly
Speriol ollowat~ce 46 39 While considering thc demand for treating the adimcc increments
/or granted for acquiring higher proficicncy in stenography as part of pa!. u e have
higher
proJclerlcv
noted that the advance increments are granted as an inccntne to cncouragc
cmployees to improve thclr skill and it is only appropriate that the inccnt~ie granted
ISkept as a separate clement We, however, recommend that with a view to
making the position clear to the recipients of such advance increments, the
nomenclature ‘advance increments’ may be replaced by ‘special allowance’
for acquiring higher skill in stenography

I ~ l , y i h i l i / ilo 46 40 Inclusion of Stenographers Grade 111 in the eliglbilit) list for

1.1x I competing In the Limited Departmental Compctltive €\amination \\ hlch IS open
 to-stenographers belonging to CSSS would widen the field of eligibility which
would adversely affect the promotion prospects of CSSS personnel We are of the
firm view that the promotion prospects of a particular service cannot be improved
at the expense of another service Since we have already recommended
restructuring of the cadre of stenographers, wherever feasible, in the ratio of
40 40.20, introduction of a new grade of Rs 2501)-41)00 and 4isriucd Career
Progression Scheme, we feel that the promohon prospects of stenographers outside
the secretariat would improve considerably However, with a view to improving
the quality of stenographic assistance, we recommend that to begin with, 25%
of the posts of Stenographer Grade I1 may be filled by direct recruitment of
graduates and the percentage of direct recruitment may be gradually raised
to SO%, in the next five years

Special payfor 46 41 With the introduction of modem office gadgets. the Job of
handling stenographers has been made easier and less wearisome than norking on
compulers, etc.
conventional macbes. In vleu of the fact that Government spends large sums on
acquisition of such modem gadgets for the facility of stenographers and provides
necessary traimg for their opcratlon, no special pay is justified Handling of officc
gadgets should be treated as part of the duty of the employees We do not find
any merit in the demand and recommend its rejection

Promorion 46.42 It has been urged before us that the discrimination in promotion
avenues avenues between English and Hindi Stenographers in All India Radio and
Stenographers
Doordarshan may be remo\ ed

46 43 We have considered thc demand m the hght of mformation furnished

by the nodal ministry. We have been informed that against the 2 1 posts of Hindi
Stenographer Grade 111, there arc 15 posts in Grade I1 and 4 posts of Reporter in
the pay scale of Rs 2000-35.00 These 4 posts of Reporter (Monitoring-Hindi)
have been created specificall). to provide for promotion avenues to Hindi
Stenographers Grade 111. Provision of 15 posts in Grade I1 and 4 posts of Group
'B' are consided to be more than adequate avenues of promotion for a base of 2 1
Hindi Stenographers Grade 111 With the introduction of Assured Career
Progression Scheme, the promobon prospects of Hmdi stenographers would further
improve. In this view of the matter, we are unable to recommend any further
remedial measures.

1 ISSUES PECULIAR TO INDIVIDUAL DEPARTMENTS I

Ordnance 46 44 Stenographers in subordinate offices under the Ministr). of Defence
Factories have suggested that Senior PAS ivorking in such offices should be classified as
Orgartisaltod
DeJcnce Resera ch Group ' B (Gazetted), stcnographcrs working in Defence Research and
a,gd~ e v e ~ o p , , r e , l lDcvelopmcnt Organisations (DRDO) should be given parity in grade structurc and
Organisa/ioti pay scales with their counterparts in other scientific and technical departments like
Bhabha Atomic Research Ccntrc. Dcpartment of Science & Technolom.
Department of Space, ctc Scnior PAS in DRDO should bc considered for
promotion to the post of Scnior AO-11 in the pay scale of Rs 2200-4000 nith
further avcnucs of promotion i n thc hicrarchy of Administration/ Pcrsonncl
Officers and pay scale of Rs 1400-2600 bc grant& ta Stenographers Gradc 111 with
cnhanccmcnt of qualification to graduation and proficiency in stcnograph! at thc
ratc of 100 p m

507
 46.45 We have considered the demands and suggestions carefully. Since
the Commission has r m m c n d e d doing away with the existing concept of
classification of posts with further distinction of gazetted and non-gazetted; the
demand for reclassification of senior PAS has become infiuctuous. Since the
stenographers belong to a common category, we have recommended application of
common pay scales, designa:ions, ctc. for this occupational group. With the
rationalisation of pay scales, Senior P-As would now be placed in the pay scale of
Rs.2000-3500. If they are still retained as one of the feeder categories by the
DRDO for promotion to the grade of Senior AO-11, they would automatically move
to that grade. We do not propose to make any special recommendation for
Senior PAS in DRDO in view of the fact that their chances of promotion in their
own line would be incrwsed su5stantially with the introduction of a new pay scale
of Rs.2500-4000and Assured Career Progression Scheme As regards grant of
pay scale of Rs.1400-2600 to Stenographers Grade III. with cnhancement of
qualification, we have been informed that there is acute shortage of stenographers
at the lowest level even with the existing qualification of matriculation with
shorthand speed of 80 w.p.m. If both the educational qualification and speed in
shorthand are raised, it would lead to further shortages Keeping in view the
practical difficulties, we do not recommend raising of the educational
qualification notwithstanding the desirability of having persons in
Government with higher qualification. Stenographers in DRDO being a
common category may be given the pay scales as recommended b y u s for the
common category
Cotmting o/Rank 46.46 It has been suggested that the rank pay of Service Officers should
Pay/or be considered as a part of the basic pay for determining their entitlement tq
entitlement
stenographic assistance. It has also been suggested that there should be 25% of the
posts of PPS in the Directorate General of Ordnance Factories against 50 posts of
PS.

46.47 The scale of stenographic assistance is determined with reference to

the pay scales of the officers and not with reference to the basic pay or rank pay
drawn by h i d e r . We do not find any merit in the demand and recommend
its rejection. As regards creation of posts of PPS, there is a functional nexus
between the posts of PPS and the officers who are entitled to stenographic
assistance at the level of PPS. We do not consider it desirable to increilse the
number of posts of PPS on a non-functional basis. We have, however, noted that
there are 8 officers in the pay scale of Rs.7300-7600and 9 officers in the pay scale
of Rs.7300-8000. In view of OUT earlier recommendation for provision of
stenographic assistancc at thc lcvcl of Senior Private Secretary in thc newly created
pay scale of Rs.2500-4000 to officersin the pay scale of RS.7300and above, we
recommend that of the existing 50 posts in the pay scale of Rs.2000-3500,17
posts may be upgraded in the pay scale of Rs.2500-4000.This would enable
1/3rd of the existing incumbents to move to the higher grade of Rs.2500-4000.
A FHQ 46.48 Stenographers Grade 'C' of AFHQ Stenographers Service have
Sfe''o~aphers
represented that they should be allowed to compete in the Combined Limited
Service
Departmental Competitive Examination which may bc introduced along with
Assistants for promotion to the grade of Assistant Civilian Staff Officer (Section
Oficer) because such a facility is available to Stenographcrs Grade 'C' in the
CSSS. A common seniority roster for ACSOs and Privatc Sccretaries for
promotion to thc grade of CSO (Under Sccretary) on thc lincs of CSS has also been

508
 suggested.

Improvements in 46.49 We have considered the suggestions sympathetically. We have been

lhe cadre informed by the nodal Ministry that the demand raised by AFHQ Stenographers'
Service has been conceded and action is being taken by the office of CAO to amend
the recrujtment rules. Since the,AFHQ Stenographers Service is 'structured on
the lines of CSSS, the improvements suggested in the case of CSSS would
equally apply to AFHQ Stenographers Service including our
recommendations relating to raising of educational qualification to
graduation for direct recruitment to Grade *C', allowing only graduate
Stenographers Grade 'C' to appear in the LDCE for Section Officer's grade
(ACSO) and stoppage of lateral entry in the grade of CSO (US). As regards
maintenance of common seniority roster, the suggestion is not feasible of
acceptance in view of our recommendation to stop lateral entry of Private
Secretaries to the grade of Under Secretary (CSO).
Other demands 46.50 The other suggestions made by the stenographers belonging to
AFHQ Stenographers Service relate to (a) induction of Principal Private Secretaries
into the grade of Senior Civilian Staff Officer (Deputy Secretary) or creation of
non-functional grade at SCSO level for 30% of posts of PPS, (b) merger of the
stenographers with the clerical and civil scrvice, (c) change of designations of
stenographers m vanous grades and (d) diffkrent charter of duties and ACR hrms
for different levels of stenographzrs.

46.5 1 We have considered the suggestions carefully. In the case of CSSS,

we have recommended a selection grade for the Principal Private Secretaries in the
pay d e of RS.3700-5000 for 58 out of total str&gth of 158 (existing as well as
recommended for upgradation) Principal Private Secretaries. We recommend that
a similar upgradafion of an equivalent percentage of pasts may be made for
stenagraphers service of AFHQ. Sitlce a Limited Departmental Competitive
Examination is being introduced for promotion to the grade of Section Officer,
Stenographers Grade 'C'in AFHQ will now have the facility of changing their
stream through this examination. While it may not be possible for us to
recommend merger of cadre of stenographers with clerical cadrekivil service, we
have recommended elsewhere to try it as a hturistic idea in the context of
introducing multi-slullingm Government offices where an employee would be able
to perform several jobs and dependence on many persons for the same job would
be reduced. We recommend the following designations for stenographers in
AF'HQ:-

Existing Desipnations Revised Designations

a) Stenographer Grade 'D' Stenographer

b) Stenographer Grade 'L Personal Assistant(P.A.)
c) Private Secretary Private Secretary (P.S.)
d) New Grade proposed Senior Private Secretary
(Rs.2500-4000) (SPS)

Existing Designations Revised Designations

509
 e) Principal Private Principal Private
secretary (PPS) Secretary (PPS)
f) New Grade proposed Senior Principal Private
(Rs.3700-5OOo) Secretary (Sr.PPS)

Widening flrc 46 52 In the case of CSSS, we have recommended widening the scope of
scope Of dufies duties of stenographers at different levels. We recommend that the decision
taken by the Government in their case shall be equally applicable to
stenographers of AFHQ. We have been informed by the nodal ministry that the
ACR forms have already been revised for different grades of stenographers on the
pattern of CSSS.

Deparments of 46 5 3 Stenographers working In offccs under the Departments of Posts

Posts and and Telecommunications have urged before us for extension of the benefit of Time
Tekcom
Bound One Promotion (TBOP)and Biennial Cadre Review (BCR)Schemes in
operabon rn their departments. We have considered the submission and noted that
the operative staff in these departments is being granted first and second time-
bound promotions on completion of 16 and 26 years of service respectively. The
benefit of the schemes has also been extended subsequently to the office staff in
circle ofi'Ices of the two departments. Since the nature of duties of stenographers
in + s e two departments are similar to their counterparts in other departments and
stenographersbeing a common occupational group, we are of the view that they
should be entitled to the same benefit across the board and any special
dispensation in respect of stenographers working in offices under the
Departments of Posts and Telecommupication is not called for. We have
separately recommended in the relevant chapter the introduction of Assured Career
Progression Scheme, which is better than the scheme sought for by the
stenographers in the two departments. We take note of the fact that the ACP
scheme will apply to them.

5 10
 XESTRiCTIJHING IN MLNISTEKMI. STAFF OF ('RHTALY NON-SRCH%TA ' OHGLVlSATIO>3 i

W K H O F POSTS EXISTING

I<xisting LDC UDC HEAD C L E W OFFICE ADMIN ADMfN ADMIX SR A D ! A

ASSISTANT SUPDT OFFICER OFFICER OFFICER OFFICER
Rr 950-1500 p 1200-2040 Rs 1oor)-2300 Rs 1600-2660 Rs 2000-3200 Us 2375-3500 Rs 22003000 R3 1 W W ,
1400-2600 1640-2900 2000-3500

Propdsrd 1.D C. U.D.C. ASSISTANT OFFICE ADMN OFFICER ADMN OFFlCER ADUSOFnCER SR -51s
SUPDT GR.m CR.II CR.1 OFFICER
RS.950-l500 RS.1200-2040 RS.1600-2660 RS.1640-2900 RS.2000-3500 RS2S004000 RS.22004000 RS.3000-4500

NATIOUAL \fL~SEUMExisIi@ 14 10 3 2 1

Proposed 14 9 4 2 I

260 39 25 20

234 65 25 IS 5

NATIONAL Existing 41 19 14 6
ARWCIIIVES
Proposed 11 17 16 5

A\THROPOL(X;ICALtxisting 52 35 16 II
SURVEY OF I\DIA
Proposed 52 31 20 11 2

.CENTRAL GKOLIXI> k w t i n g I60 164 60 39 I5 I

RATER BOARD
Proposed 160 148 76 39 I3 3

CREC F,xininp 5106 4690 895 990 341

Proposed 5106 4221 1364 990 300 36 5

CBDT Existing 6947 9408 207 I 618 320

Proposed 6947 8467 3012 648 280 35 I

('I:UfKN 1'ASSI'OK 1 I.'iirting q76 176 I72 I 01 a 25

OKGANISA r i m
Proposed 976 338 210 53 50 1% 25

511
 47

I INTRODUCTlON I
P ~ ~ i e I ' s ~ ~ w w 47,
. ~ o 1t ~ Two All India S c n i x s csistcd cizn before thc daun of
IS
.-I independcncc.
These \verc the.Indian Civil Scnicc and thc lmpcrial Policc. Whcn
freedom camc a question arosc as to jvhether thesc scrviccs be disbandcd or
retained. Sardar Patcl, thc architcct of m ~ d e r nIndia, spoke in favour of All india
Services thus :

"It is not only advisable but essential if you want to havc an efficient
service, to have a Central Administratisc Service in which we fix the strength as
the Provinces \Gould rcquire them and we draw a ccrtain number of officers at the
Centre, as we are doing at prcsent. This will givc cxperience to the personnel at
the Centre leadmg to efficiency and administratiye experience of the District which
will give them an opportunity of contact uith thc pcople. They will thus keep
themselves in touch with the situation in the countn and their practical experience
will be most useful to them. Besides, their coming to the Centre will give them a
dfferent experience and wider outlook in a larger spherc. A combination of these
two experiences would make the services more efficient. They will also serve as
a liaison between the provinces and the Government and introduce certain amount
of freshness and vigour in the administration both of the Centre and the Provinces."
Cosliluliotlnl
provisions
47.2 It was dccidcd not to makc furthcr rccruitment to the ICS and IP.
but two new analogous scnices called the Indm Administrative Service and indian
Police Service were established in 1949. The franicrs of the Constitution inserted
a special provision on All India Scrviccs in thc Constitution. Article 3 12 states
that:

.' if the Council of Statcs has dcclarcd b! rcsolution supportcd by not lcss
than tt\o-thirds of thc mcmbcrs prcscnt and toting that it is necessary or
expedient in the national interest so to do, Parliamcnt ma! b!, la\\ provide for
thc creation of onc or morc All India Scr\ iccs (including an All India Judicial
''
Scn icc) common to thc Union and thc Statcs

c 1 -1
 i ‘rtwtiiwi o f . I1.Y 47 3 Thc Coiistitutioii itself rccogiiiscd the IAS and IPS as All India
Scrviccs dccnicd to havc bccrl constitukd uiidcr Artlclc 3 I2 Subscqucntly.
Parlianicnt passcd thc All hdia Scrviccs Act. 195 I Thc Indian Forcs! Scn:icc \\as
crcatcd somc vcars latcr. in 1960

O h ~ c ~ c r r01
~ r ~11s
t 37 4 Thc main objcctivcs of thc founding fathcrs i n pro\ idirig for thc
All India Scn~iccswcrc

(I) to facilitatc liaison bctwccn thc Ccntrc and thc Statcs;

(ii) to maintain a ccrtain lcvcl of uniformit?, in standards of administration:
(iii) to cnablc Ihc administtativc machincry at thc Union Icvcl to kccp in touch
with thc ground rcalitics in thc Statcs;
(ii.) to hclp thc Statc administratiw inachincr). to acquirc a broadcr outlook
and csposurc, and providc thcm with thc bcst possiblc talcnt for mannins
senior positions; and
(\.) To ensurc that political considcrations, eithcr in rccruitmcnt or in
disciplinc and control wcrc rcduccd to thc minimum. if not climinatcd
altogcthcr.

.4H( * :r 47.5 During thc cnd (,Us, the Administrativc Rcforms Commission
nhsi*ntrfiotl s rc\.icwcd the functioningof thc All India Scnkcs. Its Study-Tcam on Ccntrc-Statc
I l96Sl
Relationships was of thc vicw that thc main objcctivc undcrl!.ing thc All-India
S c n i x s rcmaincd as valid as cvcr. Their commcnts bricfly arc as under :

a) All India recruitment makcs possiblc a minimum and uniform standard of

adrmnistration throughout thc c0unt.q. It cnablcs the induction of the best
available talent into these scrviccs.

b) With personnel drawn from different Statcs. each State gets a leavening
of senior officers from outsidc, whose vision and outlook transcend local
horizons.

c) Systematic deputations from thc States to the Union broadens the vision
of the officers so deputed and brings to the Union the experience of
ground realities.

d) The joint control of these officers by the States and the Union
Government, with the latter having ultimate authority over them, provides
a measure of remote control which, bcing more objective, enables officers
to withstand local influcnce and to provide independent advice.

V i e w cfsarkaria 47.6 In 1983, the Sarkaria Commission on Centre-StateRelations again

COW?ti.V.~iOt?
focussed On the All India Services and statcd cmphatically as under :
(19831

“The All India Services arc as much ncccssq. today as thcy werc \\hen the
Constitution was framed... Thc mcmbcrs of the All India Scnices haw shown
thcmscl\~cscapable of discharging the roles that the framcrs of thc Constitution
cn\isaged for thcm”.

(7rriici.m 0//1/.Y 47 7 Although the AIS officcrs havc manfully toilcd on, thcrc arc a
numbcr of ominous signals that thc stccl framc IS losing its “stccl” Bcing less
amcnablc to prcssurcs thcy h a w bccn targcttcd by various intcrcst groups

513
 ( I ) !XX’ 1 1 0 ) The setting up of the National Judicial Pay
01’ India ( I002
Commission is possibly a step towards constitution of such a Service. We
welcome this move.

STRENGTHENING T H E ALL INDIA CHARACTER OFAIS

4 1 13 Currcntly, thc cadrc allocation of AlS officcrs who corac as dircct

rccruits is madc in t\to parts Tlic insidcrs (hat is. thosc \tho bclong lo 3 particular
Statc) arc allottcd on thc basisof mcrit-cum-option.\vhilc thc outsiders arc allottcd
Statcs accordmg to alphabctical ordcr. irrcspcctivc of thcir position in thc mcrit list
and thc choiccs indicatcd by thcm Thc proccdurc is opaquc and oftcn thcrc arc
cliargcs of manipulation bj*influcntial probationcrs Thc allotmcnt of Statcs is
conimunicatcd aftcr a long timc, by thcn thc probationcr docs not c\cn halt thc
op!:on of rc-appcaring or mo\mg ojcr to a diffcrcnt scn’icc Thls prxcdurc IS
sought to bcjustificd on thc ground that i t distributcs talcnt randoml> o w all the
Statcs Howcvcr, i t also Icaics bright pcoplc, high in the mcrit list, stuck in a
particularl~,rcmotc a m ,itith a scnsc of injusticc which docs not bodc ncll for thc
all India charactcr of thc AIS

47 14 It is, therefore, recommended that allotment of State cadres

should be done, in a transparent manner, at the time of appointment itself,
basing itself on the position of probationers in the merit list and the options
indicated by them

47 15 As far as thc promotce officcrs of thc AIS arc conccrncd, the!.

normall! bclong to that vcry Statc, thcy spend all thcir lives in that State, thcy arc
allotted to Ihc samc Statc cadrcebcn on thcir promotion to AIS and thcy gencrall!
are reluctant to go to thc Ccntrc. othcr Statcs or PSUs on dcputation Resultantl!*.
Ihq.tcnd to bc somavhat parochial in thcir outlook and may cvcn dcvelop a ncsus
with the local politicians

Our 4 7 I6 Thcrc can be a grcat change in the outlook of the promotcc

recomnretidations
officcrs if the following three recommendations are accepted:-

a) When they are promoted to AIS, 50% of them should be allotted to

contiguous States of the same region and the balance 50% to their
own State.

b) All AIS Officers should be compelled to do at least one stint of

deputation with the Centre during the first 15 years oftheir service.

c) The Central Government should have the authority to change the

State of allotment for any officer, if there is evidence to show that he
has developed a close nexus with either the politicians or other
elements in a State
 STREN<;TlIENIN(; THE BACKBONE OF I I I K AiS OFFICERS

I i l / l O / \ * m',rits 47.I 7 Wc coiiic ncst to thc phcnoniciion o f d x AIS Ofliccrs losing thcir
iviilingncss lo bc indcpcidcnl and ObjCCtiW in thcir n d \ ~ ' cto lhc political nlaSlCrS
This ivcakcniiig of thc bsckbcnc has not happciwd siiddcnly or ovcmight. Thc
nicthods uscd tp tanic a rccalciuant officcr h a w bccn documcntcd b!. nunicrous
witcrs on thc subjcct. Thc sitxplcst nicthod is to traiisfcr him scvcral timcs in a
yciu. Although it is o k n said that transfcr is an intcgral part of thc scnicc systcm
and not a punishmcnt, it is diffcrcnt whcn onc has to pack up all onc's bclongings
and rcadmit childrcn to frcsh schools scvcral timcs in a !car. If this tcchniquc docs
not work, suspcnsion or 3 vigilancc raid ISrcsortcd to. Thcrc arc somc cxamplcs
of oficcrs who havc complaincd of niurdcrous assaults, acid-throwing. ctc. On thc
othcr sidc of thc coin, onc can think of scvcral blandishmcnts likc cushy postings,
foreignjaunts. allotmcni of plots and flats, usc of discrctionary quota for scnding
thcir wards to mcdical or cngipccring c~llcgcsand so on. Thc Vohra Committcc
has iividl!, dcscribcd tiic ncsus that has dcwlopcd bctwccn unscrupulous elcmcnts
in the political. burcaucratic and busincss \vorlds. Rcccnt csposiircs of scvcral
scams also undcrlinc thc sainc plrcnomcnon. It is of Ihc utmost iniportancc that this
news be broken and stcps urgcntly takcn to strcngthcn and c\.cn rcstorc thc
backbone of thc AIS Offccrs.

Our 47.18 For this purposc. the following steps are recommended.
rccomniendarions

a) There should be a minimum tenure for every post. No prematurc

transfer from D post should be allowcd, csccpt after following the
proccdiirc suggcstcd below.

Postings of officers in the States should also be made in the same

manner as is laid down for the Centre Thcrc should be a Civil Sen iccs
Board to recommend postings and an Appointrncnts Committec of thc
Cabinet to approve thcm This \!ill rcducc the whimsical nature of
postings and transfers

A premature transfer should be effected only when the procedure

enunciated by us in the chapter on Transfer Policy has been followed
This involvcs submission of a casc for prcrnature transfer, along with
reasons therefor, to thc Civil Scwiccs Board

Each transfer order should contain the average tenure of AIS officers
in the State, as modified by that particular order. This would providc
m e c b a t e warning signals in casc too many prcmaturc transfcrs arc bcing
ordcrcd.

No transfer should be based on the recommendation, verbal or

written, of anyone except the designated authorities in the civil
service. All othcr rccomrncndations, whcthcr by politicians or by
burcaucrah, should bc filcd. Dcpartnicntal action should bc takcn against
offccrs who bring such outsidc prcssiirc to bcar on thc systcm
 I'oliticiaiis find them rigid and riilc-minded. \\liilc the pro\ incial a i d tccliiucal
scniccs arc fouiid 10 ha\c a flcviblc approach A major onslaught. cspcciall! on
ilic IAS and IPS. castigatcs thcir gciicr;ilist cliaractcr. \\hilt thcir Ccrr\rn\
countcrpnrls. both i n CII 11 scr\ iccs and ir! the cciitral policc orgaiiintioiis. arc said
to bc spccialists i n thcir rcspccti\ c ficlds

( ;tw, r.111 \I I \ 47 x u'c \+auld not lihc to bc d r m n into the gcncralist i s spccialis~
.S[I<Y r i r i r c f
contro\w$ Sufficc i t to say that officcrs of AIS and Cciitral Scn iccs arc similar
iii all rcspccts. clccpt t\+omajor fcaturcs Thc officcrs of Ccntral Scn iccs arc also
gcncralist adminiszrators but the), arc confincd to a singlc dcpartnicnt nhilc AIS
officcrs can bc postcd to a numbcr of dcparlmciits Sccondl! . thc AIS officcrs ha\ c
c\pcricncc of functioning at thc bloch. sub di\ isioii. district. di\ isioii. Statc and
Ccntrc, \\hilt central scn iccs officers nioi c up onl\ i n thc Iinc hierarch\ of their
o\\n departnicnl

47 9 u'c \+auld no\\ lihc to tahc up \arious aspccts of thc -.+orbing of

AIS and niakc our spccific rccommcndations on diffcrcnt issucs

NEED FOR MORE ALL INDIA SERVICES

47, 10
l t i s [ r i m t t i ~for
s Thcrc is no doubt that thc All India S c n x c s ha\.c cmcrgcd as onc
u't''' 4nn'1"'1
of thc principal instrumcnts for upholding thc unit!, and integrity of the n?tion. Thc
Ssrkaria Commission ivamcd that an\' rno1.c to dilutc thcir structurc, nct\vork or
authority undcr any mistakcn notion should bc rcgardcd as rctrogradc and harmful.
Wc would likc to draw attcntion to thc fact that. India is a largc count? of sub-
continental s i x We ha1.c a rich di\.crsity of culturcs and ivc arc. by virtuc of our
s i x and population, almost fatcd to cmcrgc as a rcgional poucr in thc 2 1 st ccntu?.
Naturally, thcrc arc othcr forces which would likc to th\vart this risc and they havc
bccn hypcractivc in fomcnting disscnsions. scccssionist mo\.cmcnts and trouble in
vulncrablc pockets of thc 'countg,. Wc must not bc o\.crawcd by admtnistrati\x!
modcls that ha1.c ivorkcd well in small islands. thc population of which may be
equal to onc of the districts of Uttar Pradcsh To kccp India united, strong.
democratic and free is not a small task. Only a network of AIS can insure us
against disintegration.

Proposals for 47 11 This rcaliinhon has, now and thcn. Icd to proposals for niorc AIS
more IIS
Onc such proposal rclatcs to thc Mcdical S c n ~ cu, hich has not bccn supported by
a majority of thc States so far We would like to appeal to the political parties
of all hues that they should rise above narrow State or partisan interests No
doubt Statc scnices consist mostly of sons of tlic soil. ccrtainl! thcy arc more
amenablc But it is in the country's larger interests to have more AIS. To
begin with, we have recommended two - Indian Medical Service and Indian
Engineering Service (Nithout thcrc bcing an! suggcstion for placing thcsc
subjects in thc Union List) If \+c can build a national coiiscnsus on thcsc, onc
could thcn concci\c of othcr All India Scrviccs

1iii'rdr~r / t l d l l l ~ l l 47 12 Iiicidcntally, i t ma! bc mcntioncd that tlic Constitution of India

)cn I( I'
also cn\ isagcs an All India Judicial Scrvicc This idea has found support from tlic
La\\ Coiiiniission of India i n its 14th Kcport ( 1 0 5 8 ) and b\ the judicial
pronounccnicnt of the Suprciiic Court in All India Judgcs' Association \ s Union
 1) State Governments should not have the power to place an AIS officer
under suspension. Thcy should forward such cascs to the Union
Go\~cmmeiit,giving full reasons for tlicir rccoiiinicndations All such
cascs should bc disposed of. onc way or thc othcr. \vithiii 5 da!.s by tlic
Uiiion Govcmmcnt.

( ‘rtwtiori CJJ 47 I9 Anothcr phcnomcndn uscd for taming thc wilder clcmcnts in t!ic
siiitwirt’s AIS is h c crcation of cs cadrc posts with high-sounding titlcs, which arc dcclarcd
cqaal to samc rcally powcrful posts. For csamplc, thc post of Eaitor-in-Chicf J f
Gaxttccr Unit may bc dcclarcd as of Comrnissioncr‘s rank; thc chairmanship of
a Boundary Commission may bc cquatcd to thc post of Chicf Sccrctary. Thus an
upright cfficcr suddcnly finds himsclf owthrown and shiftcd to a sinccurc.
unimportant assignmcnt whcrc hc has no work, no powers, no authority, nothing
to do. Thcrc cannot bc a morc potcnt mcthod of rcducing a strong man into a
\vcakling.

Our 47.20 It is recommended that prior written approval of the Central

recowrmetidatiorrs
Government should be necessary, before an ex cadre AIS post of SAG and
above is created by a State Government.
Enipnrpntielment 47 2 1 A vcry strangc phcnomcnon that has bccn witncsscd in rcccnt
procedure ycars is that officers who havc not bccn found fit to bc on the pancl of Joint.
Additional Secretaries or Sccrctarics to thc Government of India return to their
parent cadres or continue to work thcrc, and arc in due course appointcd to posts
of SAG. HAG and even Secretary’s rank Thc logic for this is the supposed
diffcrence between thc qualities requircd of an officer for a Central Govcrnment
posting. and those needed for a State Government posting That the argument is
spccious is proved by thc fact that officers who were overlooked in the Central
Governmeni because of CBI cases pending against them have been appointed b)
their State Governments to high positions 1

Our 47 22 The only anti-dote to this unsatisfactory practice is that there

recoviniendai:oris
should be joint empanelment to the posts of SAG and above. Officers of the
Central and State Government can meet and jointly decide as to who is or is not fit
to bc empanelled. Fitness or unfitness should be for both Central and State-level
assignments.
Creation oJPosts 47 23 Another method that has been used for dmoralizing the AIS
officers is thc creation of unnecessary posts, both in the Centre and the States. The
result of such indiscriminate creation of posts is that each post thereby becomes
lcss important and effective, and there arc a large numbcr of posts that have no
work and authority A little understood result IS the poaching that takes place on
the preserves of other services, who rcsent thc cncroachmcnt

Our 47 24 We recommend strongly that there should be a 30%

reconmieiida‘rons reduction in the authorized strength and filled in posts in the All India
Services, both at the Centre and the States. This ui11 yicld rich dividcnds in
many wa!s

(I) With thc total numbcr of AIS posts going doun. thc annual intakc would
ncccssarily havc to be drastically rcduccd too. Rcsultantly. thc quality of
thc recruits LOthc AIS 1~11:miprovc.

517
 (111) With Icss important posts liaviiig bccn siirrciidcrcd. all rcniaiiiiiig posls
\vould ha\ c. niorc or Icss, thc saiiic inlicrciit \\ortli-oi'-chargc Thus i t
ivould bc morc difficult to humiliate iiii upright oi'liccr. b! shifting 11111110
a usclcss post

IMPROVING THE QUALITY OF AIS OFFICERS

I'rontorriitr I'rilicv 4 7 25 It is also ncccssary to changc thc Vrcscnt s!stcni of almost

guarantccd promotions in thc AIS, cspcciall! in thc Statcs Thc sJstcm ofjoint
evaluation for cmpanclmcnt \ d l to somc cstcnt bring about a grcatcr sclcctivit? in
prmollons at the Statc lcvcl But cvcn so. the tcndcncy is to crcatc morc and morc
posts at thc highcr le\cls in order to accommodatc a high pcrccntagc of officcrs in
senior assignments

47 26 This trcnd nccds to be rcvcrscd To pic an cxamplc of the IAS,

as far as empanelment to the rank of SAG in the Central Government is
concerned, not more than 50% officers in a batch should normally make it.
For HAG in the Central Government not more than 30% should be
considered fit. 20% should be the outer timit for Secretaries to Goscrnment
of India. Similar sifting is ncccssan' at thc Statc Ic\cl
Fast Track 47.27 Therc IS also an urgent necessity for creating a fast track of
Promotions
promotion for really outstanding officers Oncc thc idca is accepted, suitable
mechanisms for sclection can bc cvolvcd.

RELATIONS OF IAS WITH OTHER SERVICES

Demandfor 47.28 We now come to the difficult arca of rclations between the IAS
Parip and the other Services Most of the Associations of the IPS and Central Senices
have spent a lot of time and effort in t q m g to csplain as to why there should be
absolute parity between the IAS and these S e n x c s , in terms of pay scalcs, career
progression and Central deputation. It would tpc useful to cxaminc their arguments
and see how far these are tenable

Tire I-mark 47 29 The h e f argumcnt IS that all rccruits to IAS and Ccntral Scn ices
argrrmetil
are mductcd through the same esamination Thcrc may bc a diffcrcncc of onl). onc
mark between the last man in the IAS and thc first man in thc Ccntral Scn.iccs
That single mark should not makc such a diffcrcncc as to changc thcir cntire carccr
pattcrns

47 30 This Iinc of argunicnt is not cornmcing I1 IS not corrcct lo

comparc thc last man of thc IAS \iith thc first man of thc Ccntral Scn ices If thc
first of each Scn-icc I S lookcd at, thc diffcrcncc in marks obtaincd itodd bc
considcrablc Bcsidcs. Group B' scr\ iccs arc also rccruitcd through tlic sarnc
chamination If thc h a r k argumcnt is conccdcd as bctnccn thc IAS and Group
 (111) With Icss important posts liaviiig bccn siirrciidcrcd. all rcniaiiiiiig posls
\vould ha\ c. niorc or Icss, thc saiiic inlicrciit \\ortli-oi'-chargc Thus i t
ivould bc morc difficult to humiliate iiii upright oi'liccr. b! shifting 11111110
a usclcss post

IMPROVING THE QUALITY OF AIS OFFICERS

I'rontorriitr I'rilicv 4 7 25 It is also ncccssary to changc thc Vrcscnt s!stcni of almost

guarantccd promotions in thc AIS, cspcciall! in thc Statcs Thc sJstcm ofjoint
evaluation for cmpanclmcnt \ d l to somc cstcnt bring about a grcatcr sclcctivit? in
prmollons at the Statc lcvcl But cvcn so. the tcndcncy is to crcatc morc and morc
posts at thc highcr le\cls in order to accommodatc a high pcrccntagc of officcrs in
senior assignments

47 26 This trcnd nccds to be rcvcrscd To pic an cxamplc of the IAS,

as far as empanelment to the rank of SAG in the Central Government is
concerned, not more than 50% officers in a batch should normally make it.
For HAG in the Central Government not more than 30% should be
considered fit. 20% should be the outer timit for Secretaries to Goscrnment
of India. Similar sifting is ncccssan' at thc Statc Ic\cl
Fast Track 47.27 Therc IS also an urgent necessity for creating a fast track of
Promotions
promotion for really outstanding officers Oncc thc idca is accepted, suitable
mechanisms for sclection can bc cvolvcd.

RELATIONS OF IAS WITH OTHER SERVICES

Demandfor 47.28 We now come to the difficult arca of rclations between the IAS
Parip and the other Services Most of the Associations of the IPS and Central Senices
have spent a lot of time and effort in t q m g to csplain as to why there should be
absolute parity between the IAS and these S e n x c s , in terms of pay scalcs, career
progression and Central deputation. It would tpc useful to cxaminc their arguments
and see how far these are tenable

Tire I-mark 47 29 The h e f argumcnt IS that all rccruits to IAS and Ccntral Scn ices
argrrmetil
are mductcd through the same esamination Thcrc may bc a diffcrcncc of onl). onc
mark between the last man in the IAS and thc first man in thc Ccntral Scn.iccs
That single mark should not makc such a diffcrcncc as to changc thcir cntire carccr
pattcrns

47 30 This Iinc of argunicnt is not cornmcing I1 IS not corrcct lo

comparc thc last man of thc IAS \iith thc first man of thc Ccntral Scn ices If thc
first of each Scn-icc I S lookcd at, thc diffcrcncc in marks obtaincd itodd bc
considcrablc Bcsidcs. Group B' scr\ iccs arc also rccruitcd through tlic sarnc
chamination If thc h a r k argumcnt is conccdcd as bctnccn thc IAS and Group
 'A' Ccntral Scrviccs, thc samc should thcn rcsull in a parity bctwccn thc Group 'A'
Ccntral Scrviccs and Group 'B' Ccntral Scniccs Thc fact is that thcrc is a split-
sccond diffcrcncc bctwccn a gold mcdalist and thc also ran in an Olympic racc.

The Specialist 4'31 Thc othcr argumcnt is that officcrs of Ccntral Scrviccs arc
:Irpmcmt
spccialists who dcscrvc to hcad thcir dcpartmcnts and hold gll thc posts of
Sccrctancs, Spccial Sccrctarics, Joint Sccrctaries ctc and thc intrusion of thc
gcncralist IAS officers rcduccs thc cffcicncy of Government, cspccially in thc
proscnt-day agc of spccialisation
All are Generalist 47 32 It has been shown in an earlier paragraph that thcrc is essentially
Services
no diffcrencc betwccn fAS oficcrs and officcrs of thc Ccntral Serviccs. All of
thcm arc gcnaalist administrators Their expertise lies in their administrative skills
of conceptualisation, man and matcrials management, financial planning,
intcrpretation and application of rulcs. Compared to Central Scrviccs an IAS
officer has cxpcriencc of all levels of government from the panchayat to thc district,
Statc and Centre, and compqed to IPS and Ccntral Services he has experience of
diffcrent departments in the present set-up

47.33 The reasonable argument that has some weight is that thcre should
be better career progression for the IPS and Central Services too.

47.34 With regard to the edgc cnjoyed by the IAShndtan Foreign Service
ovcr the other Services, we have examined the matter in the light of the views
expressed by previous Pay Commissions and the Government's Resolution of
1987. We find the edge existing from the 1st CPC to 3rd CPC but with varying
mounts. As far as the Fourth CPC is concerned the pre-revised scales, the revised
scales suggested by the Fourth CPC and the scales finally approved by the
Government are shown in the following Table :

Scale Pre-revised Pay scale Scale suggested by Scale approved

by Fourth CPC Government

JTS For All Rs.700-1300 Rs.2200-4000 RS.2200-4000

STS IAS/IFS Rs. 1200-2000 RS.3000-5000 RS.3200-4750
IPS RS.1200- 1700 RS.3000-4500 RS.3000-4500
Ind Forest
Service Rs.1 100-1600 Rs.3000-4500 RS.3000-450O
Central Rs. 1 100-1600 Rs.3000-4500 RS.3000-4500
Services

JAG IASAFS RS.3950-5000

IPS - Rs.3 700-5000
Ind Forcst
Service RS.3 700-5000
Central Rs.1500-2000 Rs.3700-5000 Rs.3700-5000
Scrviccs

519
 Scale Pre-revised Pay scale Scale suggested by Scale approved
by Fourth CPC Government

NFSG IAS/IFS Rs.2000-2250 RS 4500-5700 R~.4800-5 700

IPS Rs. 1800-2000 Rs.4 100-5300 RS 4500-5700
Ind Forcst Rs. 1650-1800 Rs.4100-5300 Rs.4 100-5300
Scrvicc
Ceptral Rs.2000-2250 Rs.4500-5700 Rs.4500-5700
Scrviccs

47.35 The Government of India, Ministry of Finance by its Rcsolution

dated 13th March, 1987 decidcd to givc an cdgc as shown in thc above Table
While the JTS for all Services was kept at the same lei CIS, thc: IASAFS cnjoycd a
certain edge in STS, JAG and NFSG pay scalcs, as per the Govcrnmcnt Resolution
This edge has continued till date.
Our 47.36 Based on the above analysis, we would like to make the
recornmendations
following recommendations :

(i) In order to set the controversy of a single examination at rest, Govt

should restore the system of examination which used to prevail before
1979. There should be additional papers for thc IAS/Indian Foreign
Service on the same pattern as before.

(ii) As far as the edge enjoyed by the IAS and IFS over the other Services is
concerned, we do not find any persuasive reason that would impel us
to do away with the edge currently enjoyed by them. We, therefore,
recommend that they be given corresponding replacement pay scales.

(iii) Currentiy, there is a oonventional edge of two years between IAS/IFS vis.
a vis. IPSKentral Services as far as empanelment in the Central Staffing
Scheme is concerned. We are not disturbing this edge. The edge of two
years does not apply to other Services (including Indian Forest Service)
with respect to promotions in their own cadres. However, certain
instances have come to notice where promotions in their own cadres
have been stalled till the corresponding batch in the IAS was
promoted. This practice must stop.

(iv) We are making several recommendations for other services in order

to improve their promotion prGab&E. These include
creationhpgradationof at least one post in the rank of Special Secretary
to Government of India in the pre-reviscd scale of Rs 8000 (fixed),
upgradation of some posts to the pre-revised scales of Rs 7600-8000,
Rs 7300-7600 and Rs 5900-6700, suggestion of a model cadre stnrcture
to be achieved through five-yearly cadre reviews which have to be
provided for im the Cadre Rules so as to be justiciable. earmarking of one
post of JS/Dircctor/DS dcaling with cadrc matters in thc office of thc
Cadre Controlling Authority for each Servrce. Assurcd Carccr Progression
for all Group A Ccntral Services so as to mahc financial progression
possiblc on a time-bound basis, clc

520
 (v) In ordcr to rcmovc thc apprchcnsion of othcr Scrviccs about thc proccss
of cmpanclmcnt and posting undcr thc Ccntral Stafling Schcmc. onc non-
IAS Sccrcw should bc a mcmbcr of thc Civil Scrvicc Board An outsidc
cspcrt may bc co-optcd for certain spccialiscd assignmcnts. It is also fclt
that thc pancls should not bc sccrct documcnts but should be notificd
formally, for thc information of all conccmcd.
h r i w herwtw 47.37 There is a long-pending demand of officers of the Indian
~"s~"'"'~ Forest Service that they should be brought at par with the lndian Police
Service. There is a great emphasis on the environmental 'issues in the
international community. Preservation and regeneration of forests are
concerned among the key issues for the future of the planet. IFS ofliccrs also
have a major interface with IPS oflicers, in that both services combat crime.
In view of the increasi'ng importance of forestry and environment, the
demand for equation sf IPS and IFS has acquired legitimacy. It is a
reasonable demand and may be accepted.

RELATIONS WITH FEEDER SERVICES

L

Our 47.38 The AIS have also an interface with their three feeder services -
recornmendations the State Civil Service, the State Police Service and the State Forest Service. There
are certain problanatic issues which have arisen over the years. One major area is
the creation of posts in the f d e r cadres, which are higher than the senior time
scale of the AIS. Tly creation of such posts beyond the NFSG results in the
problem of fixation of pay on the promotmn of an oficer into the AIS. It is,
therefore, imperative that the following steps be taken:

(a) A Central legislation be enacted to provide for restriction on creation

of posts in feeder services without prior approval of the Central
Government.

(b) Suitable provisions may need to be made in the rules of the feeder
cadres so that the promotional avenues of these cadres are
ameliorated in such a manner as to permit their promotion to the AIS
within a defined time-frame. These can also ensure that members of
feeder services need not be placed in grades higher than NFSG before they
make it to the AIS.

(c) The maximum weightage in terms of seniority given to the members

of the feeder services, is currently restricted to five years. This may
be raised to six years.
Special issues 47.39 There are a few special issues relating to individual services to
which we now turn.

52 1
 INDIAN ADMINISTRATIVE SERVICE I
47 40 A scnous problem that nccds urgent attention is the rclationship
bctivccn thc Sccrctarics (Homc) and Directors General of Police 03 the one hand,
and bct\vccn the Sccrctarics (Forests) and Principal Chief Conservators of Forests
on the other Sccretarics (Home) and (Forests) need not always be senior posts,
while DGPs and PCCFs arc the senior most oficcrs of the IPS and IFS in the State
Thcrc are naturally problems of who will initiatc the ACR and other intcractional
niceties

48 41 We have created posts in the prc-revised scale of Rs 7600~8000

in many Ccntral Services, but posts of the same scale have not been created in the
IAS It is recommended that posts of Secretaries incharge of Home and
Forests Departments in the State be upgraded to the pre-revised scale of
Rs.7600-8000. This would ensure that officers next in seniority to the Chief
Secretary/AddhonalChef Secretary would be appointed to such posts As we arc
also rmmmendmg the same scale ofRs.7600-8000 to all DGPs and PCCFs. there
~ 1 1 1hopefully be less problems of interaction between them and their
administrative Secretaries

47.42 In many States, the post of District Collector is not giycn the
necessaqp importance. with the result that very young IAS Officers get posted to
thesecrucial assignments. As District Colkctdrs are supposed to co-ordinate the
functioning of all district officers, some of whom may be much more experienced,
it is recommended that no IAS officer should be posted as a District Collector
unless he has completed nine years of service. Further, it is often the case that
a hslrict Collector has to be promoted to the SAG when he has completed only a
brief stint in the district. In such cases, he may be allowed to continue in the
district while holding the SAG pay-scale.

INDIAN POLICE SERVICE

47.43 The post of Commissioner,Civil Aviation Security is currently in

the scale of Rs.7300-7600.The responsibilities of this post have become very
onerous in recent t e e s . As such, we recommend its upgradation to the rank of
Director General, Civil Aviation Securiiy inthe pre-revised scale of Rs.8000
(Fixed).

47.44 The IPS associations have asked for a uniform scale for all
Directors General of Police in the States. This is a justified demand and we may
upgrade all DGPs to the pre-revised scale of Rs.7600-8000.
.4ddl lXif’5 47 45 Therc is currently no cadre post of Additional DGP in the States
A11 thc posts arc ex-cadre posts created by the State Gokcmments In fact, thc
Ministr?; of Homc Affairs had made an abortivc attempt to abolish these posts but
had to rctracc its stcps in sicw of the strong rcaction from thc Statc Governments
I t is felt that ficld rcalitics should bc taken into account and accordingly we
rccommcnd that the rank of Additional DGP be recognised for creation of

522
 cadre posts in the pre revised scale of Rs.7300-7600.

47 40 Thc IPS Associations havc asbd for thc abolition of the rank of
DIG This is a rank which is functionall! rcquircd at thc lcvcl of thc R a n g
Furthcr. thcrc arc ccrlain traditional rclativitics bctwccn thc Armcd Forccs and thc
Policc nhich cannot bc undul!. disturbcd As such. we are unable to accede to
this demand. However, the condition that an officer should ordinarily put in
fopr years of service in the grade of DIG for promotion to the scale of IG
needs to be removed, as i t acts as an unncccssan, hurdle

INDIAN FOREST SERVICE

47.47 Having concededthc demand of thc fFS far a panty wth thc IPS.
it would bc necessary to raise the pay scale of Principal CCF to Rs.7600-8000
(pre-revised scale) in all Stile Governments and also allow the creation of post
of Additional PCCF in the pre-revised scale of Rs.7300-7600. Conservators
of Forests wwld meve to the pre-revised scale of Rs.5100-6150and the scale
of Rs.4500-5700 would become a non-functional selection grade for the
Service. We recommend accmdingly .
IG Forests 47 48 In the Central Government, the IFS have only om senior post in
thc Inspector General of Forests. The post may be redesignated as Director
General of Forests while continuing to draw his pre-revised pay scale of
Rs.8.000 (Fixed).

47 49 The post of Director General, Indian Council for Forestry

Research and Education is currently in the scale of Rs 7300-7600. Taking into
account his multrfanous duhes and responsibilities, we recommend upgradation
of the post to Rs.8,OOO (fixed) in the pre-revised scale.
A ddl.[GI; 47.50 There are two posts of Additional Inspectors General of
Forests in the Ministry of Environment and Forests, in the scale of Rs.7300-7600
Keeping in view the upgrqhtion allowed in other Services, we may upgrade these
posts to Additional Director General of Forests in the pre-revised scale of
Rs.7600-8000.

Director, IGNFA 47.5 1 The post of Director of the Indira Gandhi National Forest
Academy is presently in the pre-revised pay scale of Rs.5900-6700. It may be
upgraded to Rs.7300-7600 in the pre-revised sca4e of piry.

DKib. 47 52 There is only onc post in the scalc of Rs.5900-6700 for the IFS
as Director Project Tiger in thc Ministry of Environment and Forcsts. This
number may be increased to five, by upgradation of four posts of DISC as
Inspectors General of Forests (IsG) in the pre-revised scale of Rs.5900-6700.

523
 48 I Thc public services of the Central Go\? can bc broadly classified
lnto (a) the Ci\d
Services of thc Central Govcrnmcnt and (b) thc Dcfcnce Sen ices
of the Ccntrd Govcrnment The Civil Services of the Central Govcrnment consist
of (I) All-India Senwes, and (11) Ccntral CniI Scniccs As mcntioned in thc
preceding chapter, there are three All India Semces. vi7 the Indian Administrative
Service, the Indian Police Senwe and the Indian Forest Service These three
services are common to the Centre and the States and hence arc under theirjoint
control The Civil Sewices of the Central Govt are under the control of the Central
Government alone

48.2 The Civil Services of the Central Government consist of

established services known as thc Central Civil Services as well as civil posts
created outside -the established services, which constitute the General Central
Services. Both the established Central Civil Services and the civil posts are
classified in descending order of seniority as Group ' A',.Group ' B , Group 'C'and
Group 'D.The number of Central Civil Services, Group 'A' has been increasing
over the years - from 30 in 1971,49 in 1984, to 62 today. They account for the
bulk of the Group 'A' posts under the Central Govt. (-about 55,000 out of a total
of 75,000). The Central Civil Services are broadly classified into (1) Non-technical
Services and (2) Technical Services (which include Engineering and Scientific
Services). The non-technical services are meant to administer non-technical areas
of administration at the Centre like audit, income-tas, posts and telegraphs and
railways. Thc t e c h c d services perform similar functions on the technical side of
the Central Government. Group 'A' category also includes officers engaged in
research in scientific and technoIogica1 fields. The Central Civil Services consist
of both kinds of isolated posts, technical and non-technical.

48.3 A typical unifunctional Group 'A' Central Civil Service has a

cadrc structure which is constitutcd in thc form of a p\.ramid, thc various layers of
thc pyramid corrcsponding to diffcrcnt lcvcls of rcsponsibilitics with functional
distinction. Thls starts with Junior Timc Scale ( Rs.2200-4000), which is gcncrally
a probation-cum-training gradc for dircct rccruits. and passes through Scnior Timc
Scalc (Rs.3000-4500). Junior Administrativc Gradc (Rs.3700-5000) and Scnior
Administratkc Gradc (Rs.5900-6700). In most of thc scrviccs. a Sclcction Gradc

524
 (Ks4500-5700) also csists is pari of Juiior Adniinistrativc Gradc Iii sonic caws.
it isfunctional aiid iii othcrs i t i s non-functional Gcncrall! all thc Group A'
Ccntral Scr\ icc cadrcs havc posts in highcr gradcs. I c Scnior Adminisirali\c'
Gradc(Rs 5900-6700). Highcr Administrativc Gradc(i c thc scalcs of Rs 7 3 W
7000. RS 7600/-(fi\~d).RS 7300-8000. RS 7600-8000).

I hit! J'osis 48.4 A wcll-structurcd Group ' A ' cadrc consists of two distinct
camponcnts : (I) Rcgular Duty Posts and (ii) Rcscrvcs. Thc rcgular duty posts
which constitutc thc corc of thc cadrc arc mcmt for pcrforming thc functions for
which thc scnicc has bccn constitutcd. It consists ofboth pcrmancnt posts as \wIl
as tcniporan' posts which arc likcly to continuc indefinitcly. Thc duty posts arc
smcturcd into diffcrcnt lcvcls of hicrarchy in thc time scalc, junior administrativc
gradc. scnior administrativc gradc, ctc. corrcsponding to diffcrcnt Icvcls of
rcsponsibility.
Rmvws 48.5 Thc rcscrvcs arc of four h-pes, viz. (I) probationary rcscnc (11)
lcavc rcscnc ((111) training rcscrvc and (iv) deputation reserve. Somc Scnicc
Cadrcs provide for a probationary rcscrvc in order to catcr to thc rcquircmcnts of
probation which has to bc undergone by dircct recruits to the scrvicc. Thc strcngth
of thc rcscnc depends upon thc six of thc normal annual intake through dircct
rccruitmcnt and the pcriod of probation required to be put in by dircct rccruits

Other Reserves 48.6 Thc othcr rcscrvcs, namely, leave, training and deputation
reservcs, arc intended to serve as substitutes for regular duty posts in the event of
scrvice officers holding duty posts being temporarily away from their cadrc on
Icavc, training, or deputation. Officers holding the posts under such rescncs do
pcrform regular functions of the posts against which they are posted as substitutes
Thc vanous types of reserves, including probationary reserves, are usually created
and accounted for in the junior time scale.
Attributes of 48.7 The attributesof an Organised Group 'A' Civil Service, as per the
Orwised Department of Personnel and Training guidelines, are as follows:-
il' Central Civil
Services
a) The highest cadre post is not below the level of Rs. 5900-6700;

b) It has all the standard grades, namely, Rs. 2200-4000, Rs.3000-

4500, Rs. 3700-50OOlR~.4500-5700 and Rs.5900-6700;

c) At least 50% of the vacancies in the Junior Time Scale (Rs.2200-

4000) are required to be filled by direct rechitment; and

d) All vacancies above the Junior Time Scale and up to the Senior
Administrative Grade (Rs. 5900-6700) arc filled by promotion
from the next lower grade.

Career 48.8 Officers joining a Ccntral Group 'A' Civil Servicc havc certain
l~xpeclutiotrs cspcctahons from thcsc scrviccs in tcrms of going up the ladder through diffcrcnt
stages of the herarchy w i h n a reasonable pcriod of time. If thc cadrc pyramid is
d k j ~ ~ ~obviously
ted the promotional opportunities for individual mcmbers of thc
Senlice would be limitcd. On the othcr hand, in a structurc which is not so stccp.
one can cxpcct rcasonablc promotional opportunitics. Thus, thc dcgrcc of

525
 rcalisatioii ol'carccr cspcctations b!. niciiibcrs of a scr\'icc IS cssciitiall! ;I liinction
ol' thc dcgrcc of stccpncss of thc cadrc profilc p!.raiiiid

/*c*,i\thi/itt < / t i 4% (1 It has also bccn brought to our noticc that thc cadrc structure o !
'hJc'c'/"cicCc* soiiic of thc organiscd Group 'A' CI\11 Scniccs suffcr from \ aricd dcgrccs of
Srrirc t i i n '
lopsidcdncss \\ hich havc disturbcd thc cquilibriuni We strongly feel that
functional justifications dove-tailed with reasonable promotional
opportunities Should be the prime considerations in deciding the proportion
of posts in different grades in a cadre Thc dcsidcratum of functionalit! preclude
an!. conccpt of an idcal and uniform pyramid tbwards which cach cadrc controlling
authority could'attcmpt to movc EIcn so, somc broad paramctcrs do nccd to bc
laid dotin. so as to somcwhat cquahic opportunitics for progrcssion

\ lock/ ''4 drc 4 8 10 Thc demands conccmlng thc fcasibility of a modcl cadrc structurc
Strirc lirrcl
and thcu rationalc havc bccn carefully considcrcd by us in thcir totality Although
i t is clear that uniform career prospects in all scrviccs can only bc a distant
objective, we recommend the following ideal distribution of Group 'A' posts
among various grades for any Organised Gr.'A' Central Civil Service Cadre
with regard to the senior duty posts (STS and above) in order to provide
guidance to the cadre controlling authorities in their quest for an ideal
structure:-

Scale %age of Senior Mandatory eligibility

Duty Posts for grant of the Grade

Senior Time Scale(STS) 30 5th year

Junior Administrative Grade(JAG) 30 9th year
Selection Grade(SG) 20. 14th year
Senior Administrative Grade(SAG) 17 17th year
Higher Administrative Grade(HAG) 3 25th year

Inclusion of 48 1 1 While going through the cadre composihon of the Indian Railways
Group posts ' n
Accounts Service, I h a n Railways Personnel Service, and Indian Railways Traffic
the Group 2'
Cadre strength
Service, it has been observed that the posts belonging to their feeder Group 'B'
Services have been shown against the JTS of the respective Group 'A' Sen ices
authorised cadre strength In fact, in all the 8 organised Services of the Indian
Railways (excluding IRMS ) the JTS strcngth represents the post of Assistant
Officer in the lowest rung of Gazetted Cadre and combines both the Gr 'A' and
Gr 'B' posts We have been given to understand that a clear cut segrcgation
between Group A and Group B posts at the JTS lcvcl in an organisation like
hdan Railways may not be possible As per the existing arrangements, the post
is considered as Gr 'A' post in the pay scale of Rs Rs 2200-4000 when i t IS
occupied by a Group 'A' Officer, othenvisc i t is a Gr 'B' post in thc pa! scalc of
RS 2000-3500

I(eviov rfltlie 48. I 2 Wc fccl that this kind of working cnvironmcnt and administrativc
uittliori~'ed ccldre
sct-up is not peculiar to thc Indian Railways alonc. This is quitc similar for othcr
stretigth qf
or~citri.rc~d (;r. 2 '
All India Scrviccs and somc of thc Ccniral Scrviccs whcrcin the officcrs of Group
A't i J TS lcvcl and thc rcspcctivc Group ' B'lfccdcr scn.iccs man intcrchangcablc
Sl,rvice,, ~ ~ ~ / t i d i* a
/<oi/,vtiy.s posts which arc cqui;.alcnt in duties and rcsponsibilitics. We recommend review

526
 of Group 'A' Cadre Strength of all 8 organised Croup ' A ' Services of Indian
Railways in consultation with the DOPT so that the Group ' A ' cadres are
distinctly segregated from the Group '€3' Cadres. Meanwhile, our
recommendations with regard to Model Cadre Structure may be considered
to be applicable only to those posts which are strictly Group 'A' posts. The
Group 'B' posts should not be taken into account.

( ' d r c ri'vii'w 48, I 3 Practically all thc Group 'A' Scnwcs Associations havc painted
1 )tvniitid\ a dismal sccnario of thcir carccr advanccnicnt and status of cadrc rcvicws b!
rcspccti\ c administrativc ministrics thcrcb! rcsulting in acutc stagnation It has
bccn obscnd h a t h c various Central Scnwxs arc at diffcrcnt Icvcls of rc\ ICM of
thcir cadrc structures Some havc alrcady nianagcd four cadrc rcvicw since thcir
inccption. whilc ohcrs havc yct to gct thcir niaidcn oncs finaliscd It has bccn
obscrvcd that in thc abscncc of any mandato!. provision for undcrtaking thcsc
cadrc rcj icws, this proccss may takc an inordinatcly long pcriod

('codri,riwrn 48 14 Thc prcscnt guidclincs issucd b! thc Dcpartmcnt of Pcrsonncl on

Oiir thc matter clearly cnvisage thc pcnodicity of cadrc rcvicws to bc fivc ycars
rrcot~rnic~~ida~rori
\
Howevcr. from the rncmoranda reccivcd from various Group 'A' Scrvicc
Associahons it has been obscrvcd tb-1 f h r various cadrc controlling authorities arc
not follouing thc guidclincs stricdy We recommend insertion of suitable
provisions in the service rules of all Group A Central Civil Services so as to
make the cadre review process at five-yearly intervals for the respective
services' mandatory on the part of cadre controlling authorities. The
intention of this proposal is to make the issue of occurrence and periodicity
of cadre reviews justiciable.

Optiniuobon of 48 15 In tune with our overall strategy for optimisation of numbers in

sizr
the Government, we recommend strongly that there should be a 30%
reduction in the size of each Central Service over a period of 10 years. A
question may arise as to how the fivc yearly cadrc reviews aiming at a model cadre
structure would be able to reconcile itself with the 30% cut in numbers The
obvious solution is to target an overall cut of 30% in the total numbers; their
distribution over the different pay scales can be adjusted variably so as to
come closer to tke model cadre structure. Thus there need not be an exact cut
of 30% at each level.

D P C procedure 48 16 Another problem being faced by a majority of Group 'A' Services

Cadres IS that of long delays in the DPC procedures for filling vacant posts
Although a number of posts in different grades may be lying vacant, the eligible
officcrs could shll be stagnating The DPC procedures duly involving the UPSC
are a must for promaions to any higher gradc We recommend that the DPC
involving consultatian with the UPSC should be held for promotion to SAG
level posts only. For functional promotion to grades below SAG level an
inter-departmental Screening Committee may be constituted to clear such
promotion cases within a stipulated time-frame in anticipation of the
vacancies. This would enable the incumbents to join without much loss of
time.

44 17 Thcrc is a gricvancc that officcrs bclonging to diffcrcnt batches

are considered at onc timc and thcrc havc bccn occasions when thcrc havc bccn
supcrscssion by a mcmbct of one batch o\ cr his seniors bclongir,g to an carlicr

527
 batch Thcir iiilcr sc sciiiority also Laps 011 gctting cliangcd with cvcry promotion
All this gciicratcs consrdcrablc bad blood It is, therefore, suggested that
promotions in the Central Services may also be held in the same manner as
in the IAS. One batch be taken for consideration at a time lntcr sc scniorit\
as fiucd b! UPSC at thc initial cnlq should rcniain intact. dcspitc supcrscssion

( '(rcir~* 4% 18 Onc of thc major gricvanccs put forth b! thc Associations of

'oJlrlrc~l/rlr~
various Orgaiiiscd Group 'A' Scniccs \\as apathctic cadrc managcmcnt by thc
:Iitt/ron't,v
rcspcctivc c& con~rollingaulhontics which was duc to non association of scn'icc
nicmbcrs in thc cadrc managcmcnt proccss Somc of thc scnicc associations haic
gonc to thc cvtcnt of dcmanding that thc powcrs of cadrc controlling authorit!,
should vcst vith thc rcspcctivc Hcads of thc scnicc instcad of thc conccmcd
Ministries Having gonc through thc pros and cons of various altcmativcs. we
recommend that the cadre controlling authority should continue to be vested
with the concerned Ministries but the posts of Joint Secretary or
Director/Deputy Secretary in-charge of cadre control of these services,
depending upon the size of the service, should be manned by a suitable officer
belonging to the respective service under the Central Staffing Scheme. The
DOPT should ensure the empanelment and subsequent placement of such
officers accordingly.

f~utrtrt'cadre 48.19 Wc have also received dcmands from various Associations of

retirus atrd Organised Central Group 'A' Serviccs for largc scalc upgradations of various cadrc
.\!odd cadre
stnicrure
posts Our general approach has been to ensure that a limited number of
posts at senior levels are recommended for upgradation only as an interim
measure so as to improve the career prospects of the members of these
services within their cadre pending detailed cadre reviews in the light of the
Model Cadre Structure proposed by us. These detailed cadre reviews duly
identifLing the posts to be upgraded and carrying out proper rcstructuring, if
required, will necessarily have to be undertaken only by the concerned
administrative Ministries

48.20 Another sore potnt with the Central Services is that in some of
them there is not a single post carrying the scale of pay of Secretary(Rs 8000/-
fixed). We felt that this was a just grievance and we have taken pains to
provide at least one post carrying that scale in almost all the services, except
those which are very small in size or young in age

Our strategy 48.2 1 It will thus be appreciated that we have adopted a six-pronged
strategy to ameliorate the condition of the Central Services :-

Provision of at least one post of Special Secretary rank

carrying a pay scale of Rs.8O001-

Increase in the number of posts in HAGISAG on ad hoe

basis.

Provision of a Model Cadre Structure.

Provision for a statutory cadre review after every five years

under a justiciable procedure.

528
 (e) Keeping a J.S./Dir./D.S. level officer of each service as the
officer dealing with cadre affairs of that service.

(0 An ACP system which assures a pay progression to all

officers of all services within a time-bound schedule.

.lpplicohilttv~~ 48 22 Thcsc gcncral rccommcndations shall bc applicablc to all

ottr
Orgmscd Group 'A' Ccntral Civil Scn*iccsincluding thc Enginccring and Mcdical
rrctimmrnda~ion
Schiccs All posts pcrtaining to thcsc scn'iccs discusscd in this Chaptcr shall bc
givcn thc rcplaccmcnt pay scalcs corrcspondtng to thc prc-rcviscd cxisting scalcs
unlcss specifically mcntioncd in thc forcgoing paragraphs

Srrv ices 48 23 '?k following Organiscd Group 'A' Ccntral Scrviccs arc bang discusscd
I n this
dfsclcssed in this Chapter and rest of thcm havc becn covercd by us in thc Rcport scparatcly.
clrap ter

Si No. Name of Service

1. Indian Foreign Service

2. Indian Audit & Accounts Service
3. Indian Broadcastin? (Programme) Service
4. Indian Civil Accounts Service
5. Indian Cost Accounts Service
6. Indian Customs & Central Excise Service
7. Indian Defence Accounts Service
8. Indian Defence Estates Service
9. Indian Economic Service
10. Imdirn Information Service
11. Indian Ordnance Factories Service
12. Indian P & T Finance & Accounts Service,
13. Indian Postal Service
14. Indian Railways Accounts Service
15. Indian Railways Personnel Service
14. Indian Railways Traffic Service
17. Indian Revenue Service(1ncome Tax)
18. Indian Statistical Service
19. Indian Trade Service

Mode qf 48.24 Recnutment to the above Servicesexcepting the Indian Economic

Recruitmen1 Service, Indian Statistical Service, Indian Cost Accounts Service and Indian
Broadcasting Programme Service is made through the Combined Civil Services
Examination conducted by the UPSC. By and large direct recruitment to the extent
of 50% of the posts at JTS level is resorted to, while the remaining 50% posts are
filled through promotion 6om the respective feeder services. The posts above JTS
level are filled by the method of promotion only or by selection through
Departmental Promotion Committees constituted for the purpose

48.25 We now propose to discuss thc service-specificdemands put forth

by Associations of thc Ccntral Ciyil Services (Group 'A') and our
rccommcndations thcrcon.
 INDIAN FOREIGN SERVICE

llllr#Itlfll Ill MI 4x 20 The Indian Forcign Scrvicc (IFS) was cstablishcd for thc conduct
of thc full r a n g of India's fmagn relitions The cadre control of this Sen ice lcsts
with the Ministn. of External Affairs

48 27 It was demanded that thc head of the Forcign S c n x c should be

designated as.Sccretan Cicneral and get the same pay as the Cabinet Secretan
We recommend that all Secretaries to the Govt. should get the same pay and
hold the same designations, without any exception.

l'tirifi in pi\ 48 28 Kccping in view the changcs rccommendcd b!, us in the Combined
\crrIt,c \'i\-ti-\i\
Civil S e n ices Examination for the recruitment of 1AS and IFS officers and the
IA s
l scales between the two services, we recommend the grant
traditional pant?*~ fpay
of same set of pay scales to officers of both the services.

I INDIAN AUDIT AND ACCOUNTS SERVICE I

Inrroduc t i o t i
48 29 The Indian Audd & Accounts Service is the principal instrument
b! which the Comptroller and Auditor General of India discharges his
Constitutional obligations. This senwe aids and assists the C&AG in the
performance of his duties and in the exercise of his po\\ers in relation to audit of
accounts of the Union and of the States and of an! other authority or bod!
prescribed by or under any law made by the Patlrament or State Legislatures

Depun, 48 30 The post of Deputy Comptroller & Auditor General of Accounts

C'omp'roller is the highest cadre post available to the members of the IA&AS It is in the pay
Auditor Griieral
oflndia
and rank of Secretary to the Govenunent of India It has been pleaded that the
Deputy C&AG should have the pay scale and status next to that of the Cabinet
Secretary as in the present scheme of pay structure and in the event of Fifth CPC
recommending upgradahon of any other post to the level of the Cabinet Secretary,
the Dy C&AG should also be placed in that higher level of pay The
Association's apprehension is unfounded as we are not recommending
upgradation of any post of a Secretary to the Government of India to that of
the Cabinet Secretary.
Upgradation of 48 3 1 There are five Addl.Deputy Comptioflers and Auditor General
pos1.s of (ADAI) who are responsible for the finalisation of the audit report on Union
Additional
l>epup
Government, States and commercials respectively These officcrs supervise and
(~omptro~lerr coordinate the work of Principal Accountants Gcneral/Directors General who are
and Auditor HAG level officers. In most cases, the finalisation of audrt reports entails
(;enera/ discussion with the highest echelons of thc executive with a VJCW to project a
balanced view We recommend the upgradation of five posts of Additional
Deputy Comptrollers & Auditor General in the replacement scale of pay
corresponding to the pre-revised scale of Rs. 7600-8000.

/'rim iptil 4X 32 Of thc clcvcn posts prcscntll in h e scalc of' pa? of Rs 7300-7600
.l c ~ f l l ~ t l r t l i l r and variously dcsignatcd as Dircctor General, Principal Accountant Gcncral and
[;ciiwol
Director of Estcrnal Audit, India, Unitcd Nations Board of Auditors, cight arc in

530
 various Statc Capitals and vcstcd with thc rcsponsibility of ovcrsccing thc Audit
of transactions of thc conccrncd Statc Govcmmcnts, Statc public cntcrpriscs,
autonomous bodics, ctc. or thc Accounts and Entitlcmcnt functions in Lhc
rcspcctivc staks. Posts of othcr Statc Accountants Gencral arc in a lowcr scalc of
pay of RS.5900-6700.It has been urgcd that of the posts of Accountants Gcncral
in cach of thc states cntrusted with audit functions one post should bc of thc lcvcl
of Principal Accountant General in the scalc of pay of Rs.7300-7600. This would
obviously involve upgradation of a large number of posts, which will necessarily
haw to be justified on functional considerations. At thc same time, in the context
of our emphasis on improving efficiency in administration and enforcing
accountability, wc recognise the need for strengthening the audit machinery,
Espcctations from Audit have also increased in the recent past following the
dctcction of large-scale irrcgularities in various spheres of governmental activity.
Pcnding, thcrcfore, a detailed evaluation of the actual functional requirements and
as an interim measure to alleviate the problem of stagnation in the Senior
Administrative Grade of .the Service to some extent, we recommend the
upgradation of four posts of Accountants General to those of PAC in the
replacement scale of pay of Rs.7300-7600. We would leave the actual
deployment of these posts in the field to the C&AG of India who is the best
judge of his requirements.
48.33
Director .Vahonal The National Academy of P,u&t and A m & , Shimla, is the apex
ofAudr‘ in-service training institute for the officers of the IA&AS which is headed by a
and Accounts
Director in the SAG level. We recommend the upgradation of this post in the
replacement scale of pay corresponding to the pre-revised scale of Rs. 7300-
7600.

INDIAN BROADCASTING (PROGRAMME) SERVICE

Introducrion 48.34 The Ind~anBroadcasting (Programme)Service was constituted on

5th November, 1990 under the administrative control of Ministry of Information
and Broadcasting with a view to providing a specialised Programme cadre to the
All India Radio and Doordarshan. This service was bifurcated media-wise and
further divided into two streams comprising Programme Management and
Programme Production As such IB[P]S provides for four independent cadres,
namely (I) Programme Management cadre of All India Radio, (ii) Programme
Management cadre of Uoordarshan, (iii) Programme Production cadre of All India
Radio and (iv) Programme Production Cadre of b r d a r s h a n . The initial
constitutionof the sewice was made by appointing officers holding corresponding
posts in respective cadres in All India Radio and Doordarshan.

Our 48.35 We recommend that various posts in the Indian Broadcasting

recomme’ldatrons (Programme) Service may be placed in replacement scales corresponding to
those recommended for analogous grades in other non-technical Group ‘A’
Central Services.

I INDIAN CIVIL ACCOUNTS SERVICE I

iti trodirctioti 48.36 Consequent upon the departmentalisation of accounts, the Indian
Civil Accounts Service was constituted on 1-4- 1977 to man the Group ‘A’posts

53 1
in tlu Dcparbiicntaliscd accounling forniations Initiall!. thc officcrs l'roni Indian
Audit and Accounts S c n ~ c cwcrc dcrivcd and thc first dircct rccruitmcnt to this
Scrim bcgan from thc y w 107H Thc officcrs of this Scnicc arc rcsponsiblc for
foniiulation of policics and proccdurcs in mattcrs of Govcmnicnt paymcnts and
accounting. and intcrnal audit functions i n thc various Ministries/ Dcpartmcnts
csccpt Rail~ays,Dcfcncc, Posts and Tclccommunications. Spacc and Atoniic
Encrgy \\hich have thcir in-housc accounting sct-up

48 37 Thc Controller Gcncral of Accounts (CGA) is thc hcad of this

scn'icc. In vicw of thc spccialiscd naturc of thc dutics assigncd to thc CGA, his
rolc and thc multiplicity of functions, we recommend that the pay scale qf this
post should be upgraded to the replacement scale ofpay corresponding to the
pre-revised pay of Rs. 8ooo/-fixed and made ex-officio Special Secretary to
the Covt. of India in the Department of Expenditure.

48.38 Thc issuc of convcrsion of office of CGA into a full flcdgcd

Dcpartment of Accounts undcr thc Ministry of Finance has been brought bcforc us
by the Memorandsts. Wc foe1 that this may be considcrcd by the Govt. in the light
of functional justification and nccessity.

48.39 It has bccn statcd bcfore us that one of thc major objcctivcs of
departmentalisation of accounts in Civil Ministries in 1976 was to improvc thc
financial competence of Ministries. It is a distinct fcaturc of thc financial &
accounting sct up prevailing in the Railways, Telecommunication and the Deptt.
of Posts where financc and accounts are combined at all levels in an integratcd
functional sct up. This has not been the case with the Civil Ministries where thc
finance stream is managed under the "Central Staffing Schemc" and is separate
from thc Accounting stream which is manned by trained and qualified personnel
at all levels. Accordingly, complete integration of financial advice, Budget and
Accounts functions in the Civil Ministries at all levels has been sought.

48.40 We feel that the major objective of departmentalisation of

Accounts was to improve the accounting competence of Ministries and
Departments by creating an efficient and dedicated.accounting organisation in-
house as their intrinsic part. The scheme introduced a major change in the
accounting arrangements. Departmentalisation had been introduced earlier in the
Railways, Defence establishments and the Ministry of Supply. As a logical
extension, the Comptroller & Auditor General was also relieved of the
responsibility of compiling the accounts of all the Central Ministries and
entitlement functions in 1976. These were entrusted to the Controller General of
Accounts (CGA) instead. Financial advice functions .are quite distinct from thc
Accounting and internal check functions for a variety of reasons. The Secretary to
the Dcptt. is the Chief Accounting authorih of that Department. The system of
financial advice envisages a degree of independence and it is precisely for this
reason that there is a dual administrative control of both the conccrncd Secretaq
and that of the Secretary (Expenditure) over the FAs. FAs can represent dircctly
to the Secretary (Expenditure)in cases of disagreement on financial matters. Aparl
from prcscning the independenceofthe FAs, it would also bc appropriatc to utilisc
for thc purpose thc cxpcrtisc availablc in various othcr organiscd scrviccs and
cnsurc a wider zone of sclcction instcad of confining this to thc officcrs of a
particular scrvicc. This objcctivc is sccured by including thc posts of FAs in thc
"Ccntral Staffing Schcme". It would, therefore, be neither appropriate nor

532
 desirabk to recommend that officers of the Departmentalised Accounts set-up
alone should be appointed as FAs. The demand is not accepted.
Upgradation of 48.4 1 The Service Association has demanded upgradation of a host of
W O posts of posts in various grades. In view of their higher functional responsibilities and
Controller of
Accounts
increased work toad, we recommend upgradation of two posts of Controller
of Accounts in the Ministries of Law & Justice and Food & Civil Supplies in
the replacement scale of pay corresponding to the pre-revised scale of Rs.
5900-6700 as Chief Controller of Accounts.

Merger of ICAS 48.42 The Indm Audit & Accounts Service was bifurcated in 1977 and
into any other the Indian Civil Accounts Senice constituted. Even after nearly 20 years, the total
.4ccoroits Service
strength of the ICAS has not crossed 199. This IStoo small a number for a viable
Service Further, the officers of the ICAS are confined in their experience to the
Central Government offices in Delhi and their expertise is limited to maintenance
of accounts This has somewhat limited their horizons We, therefore,
recommend the merger of the ICAS into any other Accounts Service.

INDIAN COST ACCOUNTS SERVICE

Introduction 48.43 The Indian Cost Accounts Service is comparatively a young civil
service and is manned by qualified CosVChartered Accountants. The officers of
this Service are required to tender advice to various Ministries on a variety of
complex Cost and pricing related issues. This service is being administered by the
Department of Expenditure, Ministry of Finance.
Chief 48.44 The Chief Advisor (Cost) is the overall in charge of the Cost
A dviser(Cost) Accounts Branch, Ministry of Finance, which serves as a consulting organisation
for the Central Govt. for resolving issues relating to costing, escalation on
contracts, resolving disputes on price fixation between the Govt. and the public
sector organisation etc. Keeping in view the functions and responsibilities of the
Chief Advisor (Cost), we recommend the upgradation of the post as ex-officio
Special Secretary to the Govt. of India in the replacement scale of pay
corresponding t o the pre-revised scale of Rs.8000/- p.m.
Provision of 48.45 It has been argued before us that the existing provisions in the
direct e n w at h t m e n t Rules which provide for filling up of 25% posts at STS level through
STS level
dtrect recruitment are not in confbrmity and semblance with the provisions of other
Organised Goup 'A' Services Having considered this issue in its totality we feel
that since this is a service of qualified professionals whose demands outside
the governmental set-up are manifold and with much higher emoluments, it
would be desirable to retain this provision to enhance the attractiveness of
service for qualified professionals.
Cpgradarion and 48.46 To streamline the cost accounting work of various
eticadrement of Departmentshlinistries of Govt. of India, officers of this service have been
sonie kqv posts
specifically pcstcd and attached in ten different Departments. The Cost accounting
work pertaining to the other Departments/Ministries/Undenakings is being looked
after by the Cost Accounts Branch, Ministry of Finance. Wc fccl it appropriate to
partially re-adjust the hierarchy at the top. This would not only help in better and
systematic w o r h g of the officials but provide an umbrclla for middle level ICAS
 officers posted in other Departments as well. In view of the changed economic
scenario, entry of multi-nationals into infrastructure/ core areas, extremely high
investmentlcxpcnditureare being proposed and made in the sectors like Railways,
Telmmmunica~ons,Posts,Steel & Mmes, P o w , Coal, Defence, Fertilizer There
is a strong need from the national point of view to monitor the profitabilitv aspect
nf such h u g s :i+
:tn
i:s
: k i n g madc in thesc aeciors. Aicuraingly, we
recommend the following :-

(i) Upgradation of one cadre post of Advisor(Cost), Cost

Account Branch, Ministry of Finance as AddLChief
Advisor(Cost) in the replacement scale of pay corresponding
to the pre-revised scale o f Rs.7300-7600.

(ii) Upgradation of the posts of hiember (Finance), Bureau of

Industrial Cost and Prices, Ministry of Industry in the
replacement scale of pay corresponding to the pre-revised
scale of Rs. 7300-7600 and its encadrement in the ICAS
Cadre.

(iii) Upgradation of a post of Director (Cost) each in the Deptt. of

Company Affairs, Ministry of Law, Department of Defence
Production, Ministry of Defence and Ministry o i Food in the
replacement scale of pay corresponding to the pre-revised
scale of Rs. 5900-6700 as Advisor (Cost).

I INDIAN CUSTOMS AND CENTRAL EXCISE SERVICE I

Tboduction 48 47 The Orgarusabon of Indian Customs and Central Excise IS a part
of the Department of Revenue of the Ministry of Finance. The Central Board of
Excise and Customs (CBEC) is the apex body of Central Excise, Customs and
Narcotics Department whch is headed by the Chairman, CBEC ard the Board
comprises of five other members The post of Chairman and Members are ex-
badre posts for the Central Excise & Customs Service
lipgradation o/ 48 48 The officers of this Scnicc are entrusted with the task of
Chairman and
collectlon of the much needed revenues through indirect taxes, notable among them
Members o$
CBEC bemg customs andexcise duties and tax on senices The Service Association has
advocated the upgradation of the post of Chairman. Central Board of Excise and
Customs. who is presently an ex-officio Special Secretary to that of Principal
Secretary to the Government of India n i t h encadrement in the Indian Customs &
Central Excise Service It has also been demanded that the posts of Members of
CBEC be upgraded in the pay and ranh of Secretary to the Govt of India nhile
being encadred in the Indian Customs and Central Escise Service

48 49 This service is one of the fcu Organised Group 'A' Central

services III whch the top techrucal posts of
the concerned Department are not in the
cadrc We recommend the cncadrement of the post of Chairman, CBEC in
the IRS. It is also recommended that posts of Member may be upgraded in
the replacement scale of pay corresponding to the pre-revised scale of
Rs.7600-8000 and be encadred in the ICCES.
Demandfor 48.50 There are 12 posts of Chief-Commissioners/irector General in
separate Chief
Commissionerafes the HAG level available for the service officials. Out of these, 8 officers are
for Excise funcltons responsible for fidd functions and are designated as Chief-Commissioners.These
arc located at Mumbai (2 officers), Calcutta, Chennai, Baroda, Kanpur, Hyderabad
and Delhi (one each). The remaining four officers are designated as Directors
General of Inspection, Revenue Intelligence, Vigilance and Training respectively.
Thc ficld level Chief-Commissionerssupervise both the Customs Wing as well as
Excise Wing in all Chief Commissioncratcs. excepting Mumbai where Chief-
Commissioners supervise the work of Customs and Excise Commissionerates
scparately. It has been dsmanded that duc to increased magnitude of work the job
of supervision of Customs & Escisc be scgregated at the level of Chief
Commissioncr in the remaining Chief Commissionerates.

48 51 There are separate acts so\ c m g the levy and collection of escise
and customs duh (Central Excise Act 1944. Customs Act 1962) Presently, up to
the level of Commissioners the job of trio wings has already been segregated and
different Commissionerates arc operating for the purposes of customs duty and
excise duty Keeping in view the increased magnitude of workload pertaining to
Customs & Central Excise wuthm the jurisdicbon of Chief-Commissionersat Delhi.
Calcutta, Chennai and baroda, we recommend upgradation of post of one senior
most Commissioner each to Chief-Commissioner in the a b w e four Chief-
Commissionerates in the replacement scale of pay corresponding to the pre-
revised scale of RS.7300-7600.

Non+nctionnl 48 52 In most of the Gr 'A' Central Senice the promotion to STS from
rank OJ'.~ddl JTS IS generally accopnpanied with a changc in designation as well. Moreover, the
DePW promotions from JTS to Selection Gradc level generally involve passage through
Commissioner
three sets of &tinct promotional designations (hctional or non-functional). In
case of Indian Customs & Central Excise Service officers, this promotion is totally
non-hctional and the officers continue to perform thesame job for a continuous
period of 9 ;ears or more with the same designation, which is not the case with a
host of other similar Gr.'A' Civil Services. We recommend the introduction of
a non-functional rank of Additional Deputy Commissioner corresponding to
the STS level.

Special allowatice
48 53 Sanction of Special Allowance amounting to 10% of basic pal for
,for Rcizwrtc 311 'Revenue Officers', in considcration of the discharge of essential functions.
oflcials resource mobitisation and combating economic crimes coupled with the dire need
for a very high standard of integrity. has bcen demanded.

48 54 We are convinced of Lhc fact that each and every Centrai Scn icc
has bccn constituted to perform a spccialiscd role assigned to them and officers are
cvpccted to deliver their best with thc utmost sincerity, devotion and integrit?
Grant of special allowance on account of this for the officers belonging to any
Service is neither justified nor appropriate.
 -
INDIAN DEFENCE ACCOUNTS SERVICE

48.55 The Indian Defence Accounts Service caters to the in-house

accoUnting, financial advice needs of the three kfence Services, PRDO,Border
Introduclion Roads Organisation, Ordnance Factories and other inter-services organisations.

Cwttroller 48.56 The Controller General of Defence Accounts is the Head of the
Gctrrral oJ Indtan Defence Accounts Sexvice and functions as Inwmal Financiai Adviser and
Defence .-l
ccoioits
Chief Accounts Officer to the three Senkes Chiefs. CGDA is fully involved by
the Ministry of Defence in policy formation on all matters relating to pension,
delegation of financial powers, accounting procedures, changes in terms and
conditions of work contracts and procedures on Internal Audit for Defence and
their update. We recommend the upgradation of the post of CGDA in the
replacement scale of pay corresponding to the pre-revised pay of Rs. 8ooOl-
(fixed) equivalent to the Special Secretary to the Govt. of India.

F'1tiancial.4dviser 4 8.57 The Financial Adviser(Defence Services) heads the Finance

$eJence Division of the Ministry of Defence which compnses three main Departments,
Scmces)
namely, Department of Defence, Department of Defence Production and Supplies,
and Department of Defence Development and Research which are each headed by
a Secretary to the Government of Inda The IDAS Association has put forth a
view that the Indm Defence Accounts Cadre should have an exclusive nght to man
the post of Financial Adviser (Defence Services) and restoration of its pay to
Rs.800@/-111 the pre-revised scale which was earlier accepted and implemented by
the Govt. of Inda on the recommendations of the Fourth Pay Commission.
However, the same got downgraded later on Keeping in view the job
reqxmibility and its pivotal d e , which, inter-alia, requres specialised experience
and knowledge m the field of Defence and Defence related subjects, we
recommend that the post of FA(DS) should be manned by IDAS officers
under the Central Staffing Scheme in the replacement scale of pay
corresponding to the pre-revised pay of Rs.8000/-.
Addl CGDA 48.58 The Addl Controller General of Defence Account; (Audit) and
Addl. CGDA(Inspections) assist the CGDA at the headquarters Their role in
providmg payment, accountmg and audit cover to the Defence Senices has been
increasing in terms of increase m budgct, volume of transactions and complemty
of functions. There has been a shift m eiinp!&s froc mounting as a means of
expenditure control to an effective tool of management with a view to obtaimng
optimum utilisation of the resources in each of the budget centres. We
recommend the upgradation of these two posts in the replacement scale of
pay corresponding to the pre-revised scale of Rs.7300-7600.

Hegrotial 48.59 At the field level there are five Regional Controllers of Defence.
ro"fro''ers f. Accounts who are co-terminus with the five commands of the Indian Army which
Drfitrte . 4 C C O U t l t S
are headed by the Army Commanders (GOC-in-C) in the pre-revised pay of Rs
8000/- The respective Army Commanders are assisted by an officer each in the
rank of Rs. 7300-7600 as Chief of the Staff On the same pattern we
recommend the upgradation of these five Regional Controllers of Defence
 Accounts in the replacement scale of pay corresponding to the pre-revised
scale of Rs.7300-7600.

Upgradation of 48.60 Four Internal Financial Advisers have been positioned in each key
Internal service headquarters to assist the authorities. Upgradation of these 4 posts of
Financial Adviser
Intemal Financial Advism has been dmmded. The IFAs at Ac.y Headquarters,
h Hqrs. and Naval Hqn. have already been positioned by utilising some existing
posts in the Defence Accounts Department giving additional charge to C.D.A.'s.
Considering h e size of the Defence Forces, Budget vastness and complexities of
their Hqrs. organisational structures and functional responsibilities, we
recommend for the upgradation of four posts of Internal Financial Advisor
in the replacement scale o f pay corresponding to the pre-revised scale of
R~.5900-6700.

INDIAN DEFENCE ESTATES SERVICE

C

Introduction 48.61 The Indian Defence Estates Service was originally constituted as
Military Lands and Cantonment Service. This Service has been assigned the task
of management of civic administration and local self-government in cantonments,
developmental works in cantonments, administration of defence land, procurement
of immovable assets and lands for defence purposes etc.

Direclor General, 48.62 The Director General, Defence Estates is thc Head of the Indian
Defence Estales Defence Estates Service. In view of the exishng command structure, we
recommend the replacement scale of pay corresponding to the pre-revised
scale of Rs.8000/- equivalent to a Special Secretary to the Govt. of India.
Directors of Field 48.63 The Defence Estates Organisation has five functional field
Commands commands h c h are headed by the IDES officers of HAGISAG level who in turn
dbectly report to the D.G.(Defence Estates). The headquarters of Western
Command, Eastern Command and Northern Command of Defence Estates
Organisation are located at Chandigarh, Calcutta and Jammu respectively and are
headed by Senior Admimstrative Grade level officers. These three functional
commands are comparable to the Central and Southern Commands which are
headed by a Principal Director each in the Higher Administrative Grade level.
Keeping in view the functional justification and job responsibilities we
recommend the replacement scale of pay corresponding to the pre-revised
scale of Rs. 7300-7600 by converting the posts of Director in the three
Commands into that of Principal Directors.

Consullation with 48.64 It has been brought to our notice that the Ministry of Defence has
UPSC in obtained exemption from consultation with the UPSC in rcspcct of all. disciplinaq
drscipiiriary cases
cases against the officers of IDES which needs to be reconsidered. The
UPSC(Exernption from Consultations) Regulations. 1958 protide that in regard
to disciplinary matters it shall not be necessary to consult UPSC before any
punishment is imposed on civilian employees paid from thc Defence Services
Estimates. This csclusion is not specific to the officers of the IDES only as
brought to our notice by the Association. Hence the status-quo may continue

537
 THE INDIAN ECONOMIC SERVICE

Introduction 48.65 The Indian Economic Service was constituted with the objective of having
an organized Group A Service to formulate and implement the economic policies
ml ~ m ~ a m _ r l nf s country. The scxic? is intci-dzpar&mentalin nature
? e thc
aftcr.a rigorous training programme, the young recruits are groomed to function as
economic administrators and economic advise.rs and are postcd in different
Ministries.

Encadremenr of 48 66 The IES Officers Association has represented that the post of
Principal Adviser.
Planning
Chairman. Commission for Agricultural Costs and Prices, Chairmm, BICP.
Commissioti Special Secretq and Pnncipal Adviser in Planning Cornmission etc ,be sncadred
within the service as these are posts n i t h predominantly economic functions and
as some of these posts have 'been held by officers of the service at different points
in time We note that Planrung Commission, in spite of being one of the major
users of Indian Economic Senlice Officers. has not encadred any posts for the
service officers at the higher levels It is also noted that the 8 SAG level posts in
Plannmg Comrmssion encadmi into the IES vide Order No 1 1015/1/90-IES. dated
1 2 9 1 as a part of their only cadre review and ha\ ing the clearance of the Cabinet
ha\e still not been operationalized In order to brmg about a congruence between
the functional needs and the legitimate aspirations of the members of the service
we recommend that one post of Principal Adviser in Planning Commission
carrying the replacement scale of Rs.8000 fixed and an ex-offcio Special
Secretary status may be encadred in the Indian Economic Service. We also
recommend that all the eight SAG level posts encadred into the IES vide
order No.11015/1/90-IESdated 1.2.91 in Planning Commission may be
operationalized without further delay.

Encadrement of 48 57 The IES Association had proposed that the post of Economic
Advisers Adviser in the Ministry of Civil Supplies. Ministq of Labour and Ministry of
Railways as well as the post of'Advisers m the Mlrustry of Finance at present in the
scale of Rs.5900-6700be upgraded in view of the enhanced duties and
responsibilities attached to these posts We agree with the position and
recommend that the post of Labour and Economic Adviser in the Ministry of
Labour and Economic Adviser in the Railway Board in the Ministry of
Railways be upgraded and henceforth be operated in the replacement scale
of Rs.7300-7600.One of the two posts of Adviser in the Ministry of Finance
encadred in the Indian Economic Set V : Y T a v he upgraded and given the
replacement scale of Rs.7300-7600.This post may be designated "Additional
Chief Economic Adviser".

Representatloti of 48 68 The number of pasts at the SAG \eye\are rather inadequate in the
SAG'eve'oficers IES and this is indeed a legitimate problem Outstanding officers with even 28
on Central
depvtatron
years of service have not got their promotions to the SAG Grade. The demand for
the extension of flexible complementing scheme (FCS) to the IES cannot be
conceded as u e areconfwg FCS to R&D professionals only However, we feel
that representation at the SAG level in the Central Staffing Scheme for the
IES needs to be improved. Some preference for IES officers for manning
certain kinds of posts with mainly economic content needs to be kept in mind.

538
 Like other services the IES officers may also be considered for the post of
Financial Advisers in Ministries. We also observe that while the Ministry of
External Affairs has created a post of Secretary (Economic Relations) there IS no
specialized officer to assist hm. We recommend that one post of Joint
Secretary in the Econotqic Relations Division be earmarked for the Indian
Economic Service.

Encadremen! of 48 69 A large number of posts wth economic content, at the SAG level
SAG levelPOstr and above. is held outside the service either by contractual employees, lateral
entrants or consultants, whle officers from the service continue to stagnate As
a matter of general policy, all posts having economic content should be
encadred within the Indian Economic Service. Some positions may be filled
in by appointment of consultants or lateral entrants but this should be on the
pattern of other disciplines in Government and to a limited extent only so as
not to jeopardize the legitimate interests of IES officers. If officers of the
service are at all found to be lacking in certain respects then we should try to
unprove the method of recruitment to the service, create greater opportunities for
in service traimng both in Inha and abroad and tahe such other steps as are
necessary to eqwp members of the IES to discharge the functions associated with
the posts they are supposed to man
Encadrernent of 48 i 0 The IES Association has requested that posts ldce Economic
Econgmic and Adviser in Ministry of Industry, Economic Ad\iser in Ministry of Commerce,
Statistical
Advisers#
Adviser Financial Resources in Planning Commission, Economic and Statistical
Member Adviser in the Department of Apculture and Cooperatioq, Chairman, Forward
Secrerary and Markets Commission in Mmstry of CibiI Supplies, Member Secretary of
Chairman, Comssion far Agnmltural Costs and Prices and other posts as identified by the
Forward Markets Jalan Committee may be encadred mto the senwe, as these are posts with
Commission in
IES predominantly economic functions and hence naturally belong to the Indan
Jimnom~cService. We obsrve that these posts were ongmally not encadred and
were allowed to be filled by &ect recruitment as the service was still in its infancy
A large number of these posts has been held by IES officers at vanous points of
time and is still held by them. Today the service is more than 3 1 years old and
there are several capable officers wthm the semice to man thzse positions. We,
thmfore, recommend that to b e p wth, the posts of Economic and Statistical
Adviser in the Department of Agriculture and Co-operation, the post of
Member Secretary, CACP and Chairman, Forward Markets Commission in
Ministry of Civil Supplies may be encadred within the Indian Economic
Service.

Study leave 10 4 8.71 We have elsewhere recommended that study leave for scientists
I*% be extended to 3 years. We recommend that the same provision be extended to
the IES officers also when they go for a Ph.D or a related Degree. They may
also be allowed to combine study leave with other kinds of leave up to a
maximum of 48 months.
Cadre structure 4 8.72 We notice that while some of the wocs of the serviwrelate to
OJsiE.5 inadequate cadre structure, other problems relate to an indifferent cadre
managemcnt. We observe that at present the Indian Economic Service Cadre is
being managed by a DepuQ. Economic Adviser in.the scale of Rs.3700-5000from
\tithin the senice. In line with our recommendations for other Group A services for
effectivc cadre management, we recommend that a J.S. level officer from within

539
 the service should manage the cadre. We, amrdingly, recommend that the
existing post of Deputy Economic Adviser be upgraded and given the
replacement scale of Rs.5900-6700. We also observe that in the case of IES there
is an Indian Economic Service Board for ratifying all decisions pertairing to the
cadre management of IES. Surprisingly not a single member of the IES is on the
board. We reccmwnd that st I r y t co-optcd s%cers of the IES may be
made members of the board for a period of two years by rotation. Also the
decisions of the Economic Service Board should be made binding on the
participating departments, as is the case with appointments made by the Civil
Services Board. All controt on cadre posts for review, upgradation etc., should vest
with the Cadre Controlling Authority.
-~

’ INDIAN INFORMATION SERVICE

48.73 The Indian Information Service, which was originally known as

Irrtrodrtctioti Central Infomiation Service, ivas constituted in March, 1960. It was renamed as
Indian Information Senice in 1987. The Service has been entrusted with the
functions of dissemination of information on Government policies, programmes
and activities through print, audio and visual media and providing feed back on the
reactions of the people on Government programmes, policies and advising the
Govt. on information policies.

Extern 01 Pub l i c 3 48.74 It has been pleaded before the Commission that work pertaining
to External Publicity should be transferred from Ministry of Fsternal Affairs to the
h4mistry of Information & Broadcasting forhandling by the officers belonging to
Indian Information Senice
Our 48.75 We feel that the work relating to External Publicity in our
Recommendation Missions abroad is linked with the part of our foreign policy and may, therefore,
not be divorced from the overall working environment of the Ministry of External
AfGtirs. The oEcers involved in this work are expected to be well-versed with the
fmer nuances of the overall foreign policy, cbpIomacy and should be able to steer
this work in the right drrection, context and perspective. We feel that publicity
work is highly inter-linked with the political and social and other aspects of
the international relations for which the officers of the Indian Foreign Service
are the most suitable to man this job. AccordingIy, we reject the demand.
.4 ddirional 48.76 A request has been made for the upgradation of one of the posts
Principal of Adchtional Pnncipal Information Oficer, New Delhi to that of Senior Additional
information . Principal Information Offcer in the HAG scale of Rs.7300-7600.
Oficer

48.77 Presenth.thcre are four posts of Additional Pnncipal Officers at

the Headquarters in the SAG level These Add1 PIOs look after the work of
publicity of Railways. Finance, Defence Ministries and Administration and
Coordinationwork rcspectively Since Addltionai PlO ( A h Coord) who looks
after a h s t r a t i o n of coordmation work of Headquamrs besides helping the PI0
in his day to day activities. we recommend that the post or Additional P I 0
(Coord) at headquarters may be upgraded as Senio: Additional Principal
Information Officer in the scale of Rs. 7300-7600so that this officer can
 effectively coordinate publicity and cater to administrative needs of the
organisation.

Qrrector. Field 48.7 The Directorate of Field Publicity is one of the suborhate offices
PubIiciw of the Ministry of Information and Broadcasting. This Directorate is presently
being headed by a SAG level oMicer It has been demanded &a! the post of
Director, Fie14 Publicity in the Dircctorate of Publicity should be upgraded to Rs.
7300-7600 wth redesignation of Director General of Publicity.

Additional 48.79 The Director of Field Publicity has under him 22 Regonal Offices
headed by the oEcers of the level of JAG/SG and 258 Field Publicity Units. The
Field Publiciy
Lhrector has been entrusted with the responsibility of issuing directions from time
to time and effective monitoring and evaluation of work of field units on a
continuous basis. In view of the magnitude of the job and responsibility, we
recommend upgradation of the post of Director as Additional Director
General, Field Publicity in the replacement scale of pay corresponding to the
pre-revised scale of Rs. 7300-7600.

INDIAN ORDNANCE FACTORIES SERVICE

Iti&oductiorr 48.80 ' Indian Ordnance Factories Senice(I0FS) was constituted for the
oi.eral1 management of Ordnance Factories which provide sinews of self-reliant
indigenous defence production,capabilities of the nation. It comprises both th:
technical and non-technical posts. Tcchnical posts constitute about 90% of the
total cadre strength and are mainly filled through Combined Engineering Services
Examination. The remaining 10% non-tcchical posts are filled through the
Combined Civil Service Examination conducted by UPSC. About 84% of the total
posts in the IOFS cadre are operational and the remaining 16% posts are for staff
assignments.

Upgradation 01 4 8.81 The Association has raised the demand of parity of pay scale of
pod of Members/Additional Directors General of the Ordnance Factories Board with
Member/D.G..
OEB
Members in the Railway Board on the ground of comparable functions and
responsibilities being performed by them.

48 82 In some Ministries of Central Government, Boards have been

constituted on the basis of finctional and operational requirements. These are
Railway Board, Postal Board, Telecom Board, CBDT, CBEC and Ordnance
Factories Board. The span of control, degree of autonomy and deiegation of
financial & administrative powers etc. vary among the hfferent Boards. Among
these Boards, the pqsition of Railway Board is quite distinct and different from the
rest, from the v e y beginning. We fecl that any comparison with the Railway Board
1s n6t valid and justified. Having, however, due regard to the magnitude of the
manufacturing activities of the Ordnance Factories and the span of control of the
Members/Adiil. DsG,we recommend upgradation in the replacement scale of
pay corresponding to the pre-revised scale of Rs. 7600-8000.

48 83 The Memorandists have sought upgradation of a number of posts

from us. Havmg considered this issuc. we recommend upgradation of the
following three posts in the replacement scale of pay corresponding to the
pre-revised scale of Rs. 7300-7600 with the observation that the other

54 1
 proposals may be considered by the God. during the detailed cadre review
on functional and administrative justifications:-
Name of the Post No. of Post

1. Deputy Director Gencral(Corporate Planning) Onc

ht OFB Hqrs.
2 Deputy Director Gcneral (Ammunition and Safety) Onc
3 . Director, Ordnance Factories Staff College. Onc

Utii/icarroti of 48.84 The recruitmcnt to the Indian Ordnance Factories Scrvicc is being
bo*i rrcirtJical made through two streams, i.e., the Techrucal and non-Technical. Tkc incumbents
a n d ttott-
techrticnl streanis
thus selected through thc two different streams maintain their rcspectivc intcr-se-
of IOFS seniorit\. up to the S.T.S level. The unification of both the streams takes place at
the JAG level and a combined inter-se-seniority list is made at this stagc which is
solely based on the datc of declaration of UPSC results.

48 85 There arc certm inherent problems in rcgard to fixation of inter-

se semonty between the officers of the two streams of IOFS The prcscnt system
seems to go entircly b?, thc date of declaration of result of the respective
competitive csamination b! the UPSC and to provide en-bloc seniority to one
group of officers over thc other This is considered not the most appropriate
solution. In case the results of both the examinations are announced within
a Ceasonable period of each other, it would be most advisable to devise an
appropriate formula for interspersing the seniority of the officers of the two
groups on the basis of their usual ratio in the Combined cadre of IOFS

INDIAN POSTAL SERVICE

liitroductrotr 48.86 The Indm Postal Service manages the vast domestic and
international postal and mails net-work, money transfer and certain agency
functions, banking transactions, life insurance, covering postal operations and
administration. The Postal Services Board, the apex postal body, comprises a
Chairman and three Members, assisted by the Member (Finance) of the Telecom
Commission. The Secretary (Posts) is also the Chairman of the Board and also the
Director General of Postal Operations.

.\4ember~.Postal 48.87 Traditionally, postal operations have been confincd to achieving

ServrceJ WofJrd
certain social objectives, without resort to commercial considerations. In recent
times, however,economic liberalisation has resulted in a spurt in conunercial mail
traffic, requiring a dflerent orientation, that has been brought out elscwhcre in this
report. Recognising the responsibilities of Members of this Board, in the new
paradigm, we recommend that the scale of pay of the Members of the Board
should be upgraded in the replacement scale of pay corresponding to the pre-
revised scale of Rs.7600-8000.

~.'hiefl'ost 48.88 Postal Operations arc organised into 19 Postal Circlcs hcadcd by
,\ 1astcr.c.( ~ e m v d
a Chief Post Master General each. In seven circles this post is opcratcd in thc HAG
level whereas for thc remaining twelve circles in the SAG lcvcl. Kccping in vicw
the unique characteristics of high density and high per capita usc of postal and its
agency senices and concentration of pcrsonncl, wc fccl that a highcr order of

542
 supervision is required. We recommend the upgradation of three
-ow. .U1

posts of Chief Post Masters General, namely at Mahatashtra, Tamil Nadu

and Madhya Pradesh in the replacement scale of pay corresponding to the
pre-revised scale of Rs.7300-8000. We also recommend operation of the 7
posts of Chief Post Masters General in the replacement scale of pay
correspcrtdiq io the pre-revised scale of Rs.7.3~~-
1600.

Better 48.89 The Service Association has also represented that a factor
o/ contributing to stagnation in the Service is due to lack of captive ex-cadre posts
Indian Postal
Service under
requiring thcir expertise at least in the fields of conununications and movement of
centrl/
slafllg goods and services. We note that some of the Accounts, Revenue and Railwa!.s
Scheme Senices have h s h d of a component for their rcspective cadres. W e are also of
the oy;riion that Postal and Mail expcfi:isewould be of immense use in services
relating to both the abovc fields claimcd by thc Service. We accordingly
recommend that Ministries and Departments concerned should consider
Indian Postal Service officers on priority for manning such positions.

INDIAN POST & TELEGRAPH ACCOUNTS AND FINANCE

SERVICE

Introductioti 48 90 The Indian Post & Tclcgaph Accounts and Finance Service has
b a n assigned the task of providing financial advice and financial management to
the Dcpartmcnts of Posts and Teleconimunxations

MemberFitmice) 48.9 1 One of the major demands madc:by the Service Association \\.as
Telecom thc encadrcmcnt of the post of Mernbcr (Finance), Telecom Commission and
Commission and
Financial
revi\*al of the post of Financial Advisor in thc Postal Services Board and its
Adviser, Postal cncadrcment in the service. We feel that the Service is too young to provide an
Services Board officer having the requisite seniority to fill the post of Member(Financx) which is
in thc pay and rank of Special Secretary to the Govt. of India. However, this post
could be considered for encadrement in future when the service officers with the
requisitc eligibility, background and experience become available in-house.

Revival of h e 48.92 The post of Financial Advisor in the Postal Services Board was
pos1 o/ downgraded to the level of Joint Secretary earlier due to non-availability of suitable
b4ember (Finance)
as a cadre post
officcrs of the cadre. On account of the vast modernisation programmes being
undertaken in the Deptt. of Posts which involvc much larger investment decisions
than hithcrto coupled with an orientation to a markct situation etc., we recommend
for the revival of the post with due upgradation as MembertFinance) in the
Postal Board in the replacement scale of pay corresponding to the pre-revised
scale of Rs.7600-8OOO as a cadre post of the Indian P&T Accounts and
Finance Service.

Future structure 48.93 The Service Association has rcqucsted for maintenance of thc
of the service present structure of this service in the cvcnt of Corporatisation and Privztization
of Tclecom Sector, i.e., thc status of its officcrs of this Service as Governmcnt
sen ants

48 9 1 The Department of Telecommunications has gone on record to

state that thcrc is no firm polic). dccision on corporatising the entirc Tclcconi
nctivork It has furlhcr been statcd b!. them that thc advcnt of private operators to
 supplement theexisting network is unlikely to have an adverse effect on the career
prospects of the officers of the l n l a n P&T Accounts and Finance Service.

I INDIAN RAILWAYS ACCOUNTS SERVICE (IRAS) I

48.95 The Indian Railways Accounts Senice plays a pivotal role in the arena
of fmanciai management and management accounting network of Indian Railways.

Gicadremettl of 48.96 The Financial Commissioner (Railways) enjoys a special status in the
the post of Ministry of Railways. The in-depth knowledge of multi disciplinary working of
Financial
Comniissiotiu
Indian Railways is essential for manning the post. The IRAS is now a well
(.%?r!wa.vsJ established semice and it would be best of combination of involvement, knowledge
and independence if the post of FC (Railways), which is hitherto an ex-cadre post,
is exclusively manned by theoficers of IRAS. We recommend its encadrement
in the IRAS.

38 97 The Addl. Members in-charge of budget and finance i n the

Railway Board have to monitor the performance of the Accounts Departments of
Zonal Railways. besides interaction with the General Managers on multifarious
issues We recommend upgradation of both the posts of Addl. Members in-
charge of Finance and Budget in the replacement scale of pay corresponding
to the pre-revised scale of Rs. 7600-8OOG.

48 98 We have been moved for the upward revision of :he pay scale of
the cadre post of Financial Director (L&FE). In recognition of higher duties and
responsibilities assigned to the post. we recommend that this post may be
operated in the replacement scale of pay corresponding to the pre-revised
scale of Rs. 7300-7600.

Re-designatiott qf 48.99 Re-designation of the cadre post of Chief Cashier in Zonal

posa of Chief Railways as Deputy Chief Accounts Officer(Cash) has been sought. We feel that
Cashier in Zonal
Railways
the proposed re-designation would be in conformity with a host of similar
other designations in vogue in the Indian Railways.

A dntinistrative 48.100 With a view to having independent Financial Advice, till sometime
control of Sack, the administrative control of Finance Officers in Railways was with the
Finance Oflcers
senior officers of their own stream irrespective of their deploJment or postings
even in thc functional Divisions or Zones. This included the writing of ACR's
besides other things. This tradition was given up in order to integrate financial
stream with the General Management in the Railways. Under this scheme all the
posts of General Manager,A M . General Managers, Divisional Railway Managers.
Senior Deputy General Managers, Deputy General Managers etc. have been kept
as es-cadre posts for manning by the suitable officers of the eight organised Group
'A' services of the Railways including the IR4S. This integration, inter-alia,
brought the Fin*& Wing under the full administrative control of the concerned
Divisional or Zonai heads for all purposes including ACR writing.

48 101 It has been brought to our notice that p e n the naturc of their lob as
internal auditors and financial ad\xers !here is some prqudicc against 1R:IS
officers particularly in the evaluation of their suitability for holding general
nianagcment posts in Railwavs WC appreciate c necd to full! integrate thc
 finance officers in the mainstream of the administration. But at the same time we
are aware of the critical need to enhance the credibility c f the Government
departments and agencies by ensuring their accountability to the people. In order
to achieve the twin objectives of integratin? railway finance officers into the
mainstream and ensuring their professional independence,we recommend that the
annual confidentiai report writing system be modified in a manner that the
accepting authority of the report is always a finance officer in the hierarchy.
Accordingly. wherever accepting authority is the executive officer, the same be
modified to make appropriate finance officer as the accepting authority.

I INDIAN RAILWAYS PERSONNEL SERVICE (IRPS) I

Introduction 43.102 Indian Railways Personnel Senice is a unique service as it is the
only senice amongst the Central Group 'A' Civil Services catering exclusively to
the Personnel Management discipline in the Govt.

Encadrernent of 48 103 It has been brought to our notice that while officers of IRAS and
posts of IRTS have their established channels of promotion to the posts of Additional
hfernber(Stafl
lrnd Additiotial
Member and Member in their resyecu\ c streams, the Officers belonging to IRPS
h4enrber(Stafl are devoid of such in-cadre promotional akcnues We recommend the
encadrement of the posts of Member and Additionat Member (Staff) in IRPS.

Upgradation and 48.104 The Executive Director Establishment (IR) is responsible for
re-desikiotion nf maintaining good industrial relations all over Indian railways. He is required to
Executive
LXrector(Es11.-IR)
frequently interact with both the major emplo!ces' federations on behalf of the
Railway Board and deals with industrial relations policy at the Board level. We
feel that this job should be handled at a fairly senior level by officers having
sufficient maturity to deal with such sensitive issues. We recommend the
upgradation of the post of Executive Director(Estt. 1.R) in the replacement
scale of pay corresponding to the pre-revised scale of Rs. 7300-7600 as
Additional Member (Estt.I.R.).

Earlyfinalthtion 48.105 It has bea,demanded that the rules of recruitment, induction and
of recruitment seniority of IRPS have not been properly defined, as a result of whch officers
ond promotion
rules
belongng to other Group 'A' Railway Services have been allowed to join the IRPS
at various stages. Even the o f f e r s belonging to the Group 'B' Services like RBSS
have been giicn option to switch over to IRPS with seniority of their Group 'B'
services in Group 'A' for the total length of their Group 'B' service, beside the
promotion from various Group 'C' service as provided under Railway Rules on the
basis of vacancies in the Zonal Railways. In order to streamline the cadrc
ahnistration. we recommend early finalisation of the recruitment and
promotion rules by the Ministry of Railways as p'er the guidelines prescribed
by the'DOPT.

INDIAN RAILWAYS TRAFFIC SER\.*ICE(IRTS)

Ititrodiictioti -18 100 The officers of this Scn icc arc responsible for management of
transport scn ices, busmess dei elopniciit and gcncratiod collection of reiwnics 111
thc Indian Railways
I~trtrcalsp~it
oJ' 48,107 The variety of h c t i o i l s performed by tius Service officers covcr
Inlo IWo
two dstinct streams, i.e., Operational and Commercial. Creation of a separate post
sfreanis
of Member (Commercial) at Board's level and additional posts of ADRMs to look
after the commercial matters at Divisional level ha\re been demanded b?, the
Memorandists.

48.108 We observe that the two streams haye been carved out for the
purposes of administrative convenience only and there is complete intcr-
changeabilityof officers betwen them i.e. the traffic officcrs can work iii operating
as well as in commerci@wing. We feel that the proposed vertical split in the cadre
is neither justified nor appropriate.

Upgradatioii c$ 48 109 The Additional Members in the Railway Board are required to
ihree potts of monitor the performance of PHODs in the Commcrcial and Traffic dcpartmcnts
:lddi!roircil
.ileiiiber
of the Zonal h i w a y s . In order to improve the managenal effectiveness at thc top
management level we recommend the upgradation of three posts of Additionaf
Members in charge of Commercial, Commercial and Tourism & Traffic
T r a n s p o r t in the Railway Board in the replacement scale of pay
corresponding to the pre-revised scale of Rs. 7300-8000.
Director 7rc!fic 48 110 Traffic Research Directorate of the RDSO is pro\ iding support
Reseorclr to all the Zonal Railways and is presentl) headed by a Director in the S.4G grade
Directoraic
Rllso Present day transportation research activities require specialised inputs in the field
of-operational research Upgradation of the post of Director of the Traffic
Research Directorate, RDSO has been sought on the ground that the \ahable
expenence gamed by the officm should not be lost to RDSO merely on the ground
that they have to be moved out on thelr turn for promotion to Ihe next higher grade
W e recommend this upgradation.

I INDIAN REVENUE SERVICE (INCOME TAX) I

Introduction 48 111 The Indnn Revenue Service manages the administration of Direct
Taxes m the country They are responsible for admlntstemg w d e gamut of fiscal
laws like the Income Tax Act, Wealth T a s Act, Gift Tax Act, Interest Ta\ Act.
Expendtture Tax Act, etc. Theu immediate objective is to collect direct ta\es and
to detect and deter evasion The Central Board of Direct Taxes is the ape\ bod!
dealing with the matters pertaining to Direct Taxes It comprises of a Chairman
and five other Members
Admnfsf~ufiveand 48,1 12 Grant of complete administrative and financial autonomy to the
frnonctal nuinnotti>-
for CBD7 CBDT along with the status of a separate Department of Direct Tascs on the
pattern of Railway Board has been advocated by the Service Association. Having
carefully considered the issue in its totality we feel that the proposal to create
a full-fledged Department would amount to a major systemic change and is
neither appropriate n o r justified.

( p~rcldcltrolrof 48 1 13 Upgradation of the post of Chairman of the CBDT from its

lllc' [)<J\l\ <d present status of es-officio Special Sccrctan to that of Principal Secretan to the
('liairriioii mid
\ Imihrrt I,/ Ciovt of India in the pa! as that of the Cabinet Secretan along n i t h its
( 'Hi17 cncadrcmcnt has been adjwatcd by the Sen ice Association We ha1 c also rccei\ cd
 proposal for upgradation in pay and status of five Members of the CBDT to that
of a Special Secretary level, duly reviving the post of Member(Judicia1) in the
CBDT.

48 114 The posts of Chairman and Members of CBDT are the top level
Departmental posts which could be occupied by an IRS officer. In t u x xith our
scneral approach and in order to streamlinc the administrativa sttudture of sarious
Boards in the Government, we recommend the replacement scale of pay for the
post of Chairman, CBDT and its encadrement in the IRS. We also
recommend the upgradation the post of Members in the repiacement scale of
pay corresponding to the pre-revised scale of Rs.7600-8OOO and their
encadrement in the Service.

Revival ojtlie 48 115 Members of CBDT arc responsible for (a) Investigation (b)
post of Income Tax ( c) Personnel and Vigilance (d) Tax policy and Legislation (e)
.llewiberCJudiciall
it, CBDT Revenue and Audlt. Till recently there used to be a post of Member (Judicial) who
was responsible for all matters relating to tax litigation in Supreme Court besides
thc supervision of Gift, Wcalth and other direct tases work at the Board level In
addition, he ussd to supervise the work of all Chief Commissioners of one Lone.
In 1994, tlus post was abolished as part of an economy drive and his work was re-
allocated among the remaining five Members Ir! view of the increased work-load
with the passage of time both in thc field of revenue collection as well as
adrmnistrationof tax laws, it would be desirable to revive the post. Accordingl! .
we recommend the revival of the post of Member(Judicia1) in the CBDT in the
replacement scale of pay corresponding to the pre-revised scale of Rs.7600-
8000 along with its encadrement in the IRS.
Chiefi 48 116 The Chief-Commasioners of Income Tax are responsible for the
Cornrnissioner~res
of Income Tar overall administration of Field Officers and for meeting the action plan targets
relating to collection of taxes, completion of assessments, expenditure budget,
public relations, filing of reference applications in the High Court, prosecution of
tax-delinquents etc. Presently, there are 33 Chief-Commissioners of Income Tax
in the Department. On an average each one of them supervises about 8 to 10
officers of the Senior Administrative Grade level. This span of control may not be
conducive for effective supervision and control as close supervision and guidance
even in individual cases at times becomes necessary. In order to achieve this, a
post of Chief Commissioner each for States which are left out without having it
has been demanded. Having considered this issue, we recommend the
upgradation of a post of senior most Commissioner each in Orissa, Guwahati,
and Haryana regions to that of Chief-Commissioner in the replacement scale
of pay corresponding to the pre-revised scale of Rs.7300-7600.
Creation of an 48 117 The IRS Association has highlighted the requitement of an
.4nnoured exclusive Armed Security Force for the Departmental personnel to providc
Security Force
protection to them specially during searches as their experience, in general. uith
the Statc Police or other para-military police has pot been happy

48 118 Most of the Departments of the Central Govt./service officials arc

rcsponsiblc for the enforcement of somc Act or the other wherein raiddscarchcs arc
takcii rccourse to. We feel that it would not be appropriate either
administratively or financially to create a Central Police Force for exclusive
use of a particular Department. A better coordinatiofi of the officers of thc

5.47
 Income Tax Department with local administration would be a more appropriate
preposition instead.

48.1 19 IRS officers are.designated as Asqistarit Commissioner in the

Junior Time Scale. On promotion to the Senior Time Scale, they retain the same
designarion. This is changed to Deputy Commissioner at Junior Administrative
Grade level only. It has been demanded that Senior Time Scale posts which are
considend to be non-functional promotional posts of ACITs may be re-dcsipatcd
as Add. Deputy Commissioners \kith thc same statutoy powers as those of ACITs

Non-junctrorinl 48.120 It has been observed that like IC&CE Senrice, in Indian Revenue
rank of Service, too, the promotions from JTS to STS dre non-functional and thc officers
Addl Depugs
Comm~ssiomr
continue to perform the same job for a continuous penod of nine years or more with
the same designation. We recommend the introduction of a non-functional
rank of Additional Deputy Commissioner corresponding to STS level in the
Service.
Encadremriir of 48.12 1 It has been demanded &at all Gr 'A' posts 111 CBDT including the
uNGroup 2 ' post ofJomt Secretary(Ahtrabon) be encadred in the IRS. Posts in the CBDT
POSIS OjCHD" Ill

IRT have been classified as 'technical' or 'non-technical' and only the non-technical
posts are filled under Central Staffing Scheme In our opinion, it would neither be
desrable nor possible toeannark posts covcred under the Central Staffing Scheme
foi any particular service. There are some technical posts with Secretarial
designations in CBDT which are also covered under Central Staffing Scheme but
whde firling such posts preference is given to the officers of IRS We ha\ c alread!
recommended the encadrement of the posts of Chairman and Members of CBDT
III the IRS Cadre. A proposal to post one officer of each Gr 'A' Central Sen ices
as Deputy Secretary/Director or Joint Secretary LI! the concerned Ministry to look
after the work of cadre control has been separately recommended by Commission
Hence,we do not recommendencadring all the Group 'A' posts of the CBDT i n the
Service.

INDIAN STATISTICAL SERVICE

Introduction 48.122 Indian Stat~stnlService was constituted by encadring statistical

fbncuon posts in M a e n t MmistriedDepartmentsof Government of India into the
service. Slnce 1984, Department of Statistics. ad\ ised by the ISS Board. has becn
functioning as the Cadre Controlling Authonh. Prior to this, cadre control
functions rested with the Department of Personnel and Training There has been
no cadre review since the inception of the senice in 1961 There is an acute
s t a m o n ~-r thehservice which has led to considerable amount of litigation and
t h ~ dhas adversely affected the career prospects and morale of the ISS officcrs o\ cr
. the y w s
Eiicadremei~rof 48,123 hidm Statistical Scrim Association have demanded cncadrcrncnt
Secrets?. of the post of Secretary, Depnnment of Statistics into the ISS. The Association-
Deparmwiir of
Stalrstics
haw argued that the job assigned to thc post of Secretan is primarily technical cilld
spccialiscd in nature \vhich would bc. bcttcr pcrformed by an in-house conipctcni
officer. While it may not be possiblc for us to suggest encadrcincnt of thls post
into the Indian Statistical Scnice. w e recommend that suitable officers
 belonging to Indian Statistical Service may also be considered for manning
this post.

Upgradation arid 48, 24 The post of DG(CS0) in the scale of RS.7300-8000 although an
encadremen'of cxcadrc post has been held by ISS officers in the past. The ISS Association have
DG.cso
demanded that the post of Director Gencrd. Central Statistical C ~ ~ a ~ i s ~ ! i c x ,
should be upgraded to the level of Special Secrctary and encadred into ISS. In view
of the hgher responsibilities attached to the post we reconmend that the post may
be given the replacement scale of Rs.8000 fixed and encadred in the Indian
Statistical Service. The DG (CSO)would be ex-oficio Special Secretary to the
Government of India.

48. I25 The National Sample S i n e y Organisation is presently headed by

U p ~ u d n " o rdl a Chef Executive Officer in the pay scaie of Rs 7300-7600. The ISS Assoclatioii
CEO in .VSS
have demanded upgradation of this post to the scale of Rs.7600-8000. We,
however, recommend that the CEO (NSSO)be given the replacement scale of
Fb.7300-8OOO.

Upgradation of 48,126 The ISS Association have also put forth the demand for
'eve'Pos*s
upgrdahon of several SAG level posts in the Central Statistical Organisation and
CSO aed ASS
Nahonal Sample Survey Organisation into the HAG level (Rs.7300-7600). Given
the size of organisation and the responsibilities and duties attached to €he posts of
Director (National Accounts Division) and Directcr (FOD),we recommend the
replacement scale of Rs.73OO-76OO for these posts. We also simultaneously
recommend upgradations of two non-functional selection grade posts, one
each in the National Accounts Division and Field Operations Division to the
SAG level in the replacement scale of Rs.5900-6700.
Extension ofFCS 48.127 To streamline their career progression and given the technical
@Iss nature of their job contents, ISS Association have proposed to us that Flexible
Complementing Scheme should be extended to them. As we have confined
Flexible Complancnting Scheme to the Research and Development professionals
in the scientific category, we are unable to accept their demand for Flexible
Complementing Scheme.

Tromfer of 48.128 Programme Evaluation Organisation is currently under the

P.EO I0 administrative control of Planning Commission. ISS Association have suggested
Departmen1 of
SIallSllCS
that this organisation be transferred to the Department of Statistics. We feel that
the Programme Evaluation Organisation needs to be moved out of the
Planning Commission as it is not proper for any evaluation organisation to
be part of the set-up that recommends and designs the programme. We
therefore, recommend that the location of the PEO may be examined by the
Government separately.

Extension of 48.129 It has been alleged by the ISS Association that for want of lcgal
coverage " I d and legislative teeth, the statistical.systeni has been unable to provide timely and
scope of
CoIIec!ioti v j
tcliable data. They have proposed that the coverage' and scope of the csisting
sIalislics,.lc, legislation i.e. the Collection of Statistics Act. 1053 should be widened to embod!.
1953 the entue nor,-agricultural sector of the cconoiny. This would enable thc officials
to derive infomation from the conccrncd agencies in time, as they would be bound
b!, the law to provide the sanic. We are of the view that there are various
 aspects of the Collection of Statistics Act which make this a sbmewhat delicate
proposition. The expansion in the jurisdiction of the Collection of Statistics
Act has to be considered carefully in the light of the arrangement for and the
cost of the associated enforcement machinery. The cost of enforcement would
rise with the coverage of the Act ro a large number of small and dispersed
cstrb1islmcr;ts. I i r CIA Luniext, it is suggested that the whole matter shouid
be gone into by the Government and decision taken after due examination.

THE INDIAN TRADE SERVICE

Itltrodur trot1 48 130 The Indian Trade Senice (formerly Central Trade Service) was
created to cater to the requirement of a specialised cadre of officers to man the
Import-Export Trade Control Organisation In tune with the cconomic
liberalisationof the In&an economy. the Imports and Exports (Control) Act, 1947
was repealed and subsututedby koreign Tra& jZvclopment and Regulation) Act.
1992. Under the new Act the Director General of Foreign Trade (DGFT) is
responsible for advlslng the Govt m formulating the Export arid Import Policy and
for carrying out the policy objectives. With mcreasing emphasis on relaxation of
statutory controls, an increasing need is felt for augmenting the developmental
role for promohq India's Foreign trade. Since the Indian Trade Service continues
to be solely utilised by the DGFT, some basic re-structuring becomes the need of
the hour.
Recommendorroqc 48.13 1 Having carefully considered the demands made by the Service
on key issues ond
,mw,,on,poJ,s Association and in the above context, we recommend the following:-

a) The Directorate General of Foreign Trade should be

revamped into a nodal export development and promotion
agency.

b) Upgradation of the post of Export Commissioner in the

replacement scale of pay corresponding to the pre-revised
scale of RE. 5900-6700 and its encadrement in the ITS. The
cadre officers may start manning this post after expiry of tenure
of present incumbent.

c) Upgradation of the post of Joint DGFT(Po1icy) and Joint

DGFT(Admn.) as Additional DGlT in the replacement scale
of pay corresponding to the pre-revised scale of Rs. 5900-
6700.

d) Relocation of six posts of Deputy DGFT from the DGFT

headquarters to the Indian Commercial Missions/
Commercial Sections of Indian Embassies in the countries
where the utilih of these officers is maximum so as to cnablc the
existing set up to get the benefit of best technical inputs The
officers should be posted at appropriate level with commcnsuratc
representabonal status thereof
De-reservation of 48.132 An unprecedented reservaticn of 40% cadre posts in JAG/SG
cadrePusLrin level of ITS exists for deputationists under the Central Stafing Scheme. The
JAG/SGlevel
Indian Trade Service has been constituted as an Organised Group 'A' Central
Service and there seems to be no special reason for keeping a specific reservation
of 40%JAG/SG d r e s posts of ITS fot the Central Stafiing Scheme in violation
of general guidelines of DOPT on the matter We recommend amendment in the
existing cadre rules so as to enable the cadre officers to h d d all the cadre
posts in the Service.

55 1
 Anntre 48.1

OF ORCANISEDGROUP A CL
- CIVIL SERVICE.$J)I$CUSSED IN C W E R 48
s.J%!

1. Indian Foreign Service 630 I09 234 111 I26 28

2. Indian Audit R: Accounts 874 409 219 I38 x9 17

Senice

3. Indian Broadcasting 1037 448 397 159 33 -_ -

(Programme) Service

4. Indian Civil Ascoutits Servtcr 199 70 68 36 20 5

5. Indiancost .4ccounIs Sa\ice I57 84 51 In 3 1

6. Indian Customs & Central 1710 447 84I 281 I19 18

Excise Scrvicv

7. Indian Defence Accounts 412 I98 107 65 37 5

Service

8. Indian Defence Estates Service I34 43 36 36 15 4

9. Indian E c o ~ i Service
c 515 139 I88 163 25 -
ss
10. 493 203 . 105 27 2 1

11. 1782 417 606 492 249 17

12. 172 232 89. 74 '1 -

13. 624 I29 342 128 24 1

14. Indian Railway Accourrrs 1035 557 263 144 64 6

service

15. Indian Railway Personnel 704 433 163 19 29 .-

service

16. lndian Railway Traffic S m i c e 1516 821 329 23R I12 IS

17. Indian Revenue Service 3294 1046 1096 790 328 33

(lncomc Tuc)

18. Indian Statistical Service 529 260 143 116 9 1

19. Indian Trade S m i c e 202 73 110 I8 1 -

** Includes posts of JAG also

SS Inclues &postsa1the SAG leuel which hue not been operahna1isc.d

552
 I INTRODUCI'ION I
49.1 The Central Civil Services Group 'B' are the second'level of
command structure among the broad categories of Central Civil Services as
Qscussed in the preceding chapter. Some of them are regular Group 'BSmices
and others are isolated posts in Group ' B scales of pay. In thls chapter, we shall
only consider a few general issues concerning Group 'B'Services. Specific issues
pertaining to individual Group 'B' Services hare been discussed in the relevant
chapters. The only exceptions are the Civil and Police Semicts of the Union
Territories, which are being discussed in some detail.
Growth in 49.2 The growth in the number of persons belongin8 to Group 'B
Numbers
scales of pay may be seen from the following Tabk :

Table : Number of Group 'B' Employees in the Central Government, 1957-

1994

Year Number Annud Compound Rate of

(in l a b ) Growth over previous benchmark

1957 0.19
1971 0.46 6.5.
1984 0.80 4.3
1994 1.36 4.9

Source: Data collected by various CPCs

Hole oJGrowth 49.3 It is clear from the above Table that the very high rate of growth
between 1957and 1971 was moderated somewhat in later decades. Basically. the
hgh rate indicates a shR towards an officer-oriented system of administration, and
to that extent it is not unwelcome. Part of the reason could be the reclassification
of ccrtain Group 'C' jobs as Group 'B'.

553
Arbitration offices, the matter was referred to the Board of Arbitration (BOA). The BOA
while rejecting the demand for absolute parity directed that stenographers Grade
I1 in subordinate offices should be placed in the pay scale of Rs.1400-2600 w.e.f.
1.1.1986. The Award was implemented and orders were issued on 4.5.1990.

CA T decisiotJ 46.3 1 The pay scale of Assistants in the Central Secretriat Service (CSS)
and Stenographers rn the CSSS was revised by the Government on 3 1.7.1990,
effective from 1.1.1986. Some of the AssistantsKrime Assistants and
Stenographers Grade I1 working in the CBI,Directorate General ofJncome Tax
(Investigation), and Directcrate of Field Publicib. filed a number of petitions before
the Principal Bench of the Central Administrative Tribunal seeking benefit of the
orders dated 31.7 1990. Rejecting the contention of the Union of India that
Stenographers Grade I1 and Assistants in the non-saretartat offices could not be
compared w i t h Stenographers Grade ‘C’of CSSS ‘and Assistants of CSS because
of different classification, method of recruitment, nature of duties and
responsibilities and eligbdity for promotion to higher gradc, the CAT directed the
Union of India to place the petitioners in the pay scale of Rs 1640-2900. The
judgement of the CAT has been implemented.
Present 46.32 The comparative position of stenographers in the secretariat and
positron
offices outside the secretariat as it existed at the time of constitution of the Fifth
CPC is as under:-

Secretariat Non-Secretariat

a) Stenographer Grade ‘ D a) Stenographer Grade 111

(Rs.1200-2040) (Rs.1200-2040)
b) Stenographer Grade ’C’ b) Stenographer Grade I1
(Rs.1640-2900) (R.S. 1400-2300/
R.S. 1400-2600/
Rs.1640-2900)
c) Stenographers Grades c) Stenographer Grade I
‘A’ and ‘B‘(Merged) (Rs.1640-2900)
(RS.2000-3500)

d) Principal Private d) Senior Personal

Secretme Assistant
(RS. 3000-4500) (Rs,2000-3200)
e) Private Secretan,
(Rs.2000-3500)

0 Principal Pnmtc
Secretary
(Rs.3000-4500)

DrltlcIlrdc 46.33 Associations rcprescnting stenographers h a w urged before us that

there should be complcte parity bctween stenographers in non-sccrctariat offices

5 04
~ ) / ~ f ~ I ) O S l J ~llj t/ H I
tiumhzr.t
jc)4 Wc havc alrcad! sct a targct of 30% rcduction i n all othcr
Scniccs In tunc with the ovcrall stratcgy, it is recommended that there should
be an across-the-board 30% cut in the Central Civil Services Group 'B'
cadres also This can bc achicvcd by adopting a niultr prongcd stratcgy of lcsscr
annual intalrc. abolition of vacant posts, compulsory rctircmcnt of corrupt and
incompctcnt officers and scnding pcoplc homc undcr thc voluntary rctircmcnt
schcmc with thc goldcn handshakc

Rccruitnient 49.5 Recruitmcnt to Group ' B scrviccs is gcncrally madc through a

I hcedures mixture of ducct reuuitmcnt and promotion. Group B' cadrcs of thc Railways arc,
howvcr, fillcd up entirely by promotion. Whcrcvcr dircct rccruitmcnt is rcsortcd
to, it is done through the UPSC and thc Staff Sclection Commission.
~-
GENERAL ISSUES RELATING TO CROUP 'B' SERVICES

Career 49.6 Currently, the career progression of thc various Group ' B
Progressimi Services ISqutc variable. Some of thc Grogp 'BScrviccs, as for cxamplc, in thc
Income Tax Department and the Customs and Central Excise Department, arc
feeder Services to the corresponding Group 'A' Scmiccs. Others like the Central
Semtatiat Service, Railway Board Seadariat Service, Armed Forccs Headquarters
Serviceetc.have chancesof promobon in thcir offices and some of them havc even
reached the levels of Joint Secretary,Additional Secretary and Secretary. Some
Group ' B Services are feeder to the All India Services, as for example the Delhi
Andaman and Nicobar Civil Service and the Delhi Andaman and Nicobar Police
Service. There are other Group '3'Services which do not have good chances of
promotion and tend to stagnate fof a long time.

Demands of 49.7 Most Associations of Group 'B'services have come up with

Arrociot'ms
similar ideas for improving theirchances of carem advancement. Their suggestions
are as under :

a) Most of them have demanded a Group 'A' status for themselves.

They do not see any reason for the distinction between Group 'A'
and ' B Services to perform the same or similar tasks, and would
like the Commission to do away with the artificial distinction.

b) The second option favoured by them is the grant of the Junior

Time Scale of the Group 'A' Savice right away, instead of having
to wait for being promoted in accordance w ith the laid down
procedure, on occurrence of a vUr~.c;' from thc promotion quota.

c) Many of them have a feeling that, as and when they arc promoted
to the Group 'A'
Service,they should not havc to pass through thc
Junior Time Scale but should be directly inducted into the Senior
Time Scale. They are encouraged in this demand because of thc
present position where in somc Group 'B' Services such a carcer
progression is already pcrmissiblc.

d) In somc Group 'A' Scrviccs, Govcrnmcnt havc dcciaca to rcducc

thc induction of direct rccruits but thcrc is no corrcsponding
rcduction in thc numbcr of vacancics in thc JTS arising cvcry

554
 \car. Thc cadrc controlling authoritics insist that thcy woul
ollow thc pronidion of only that numbcr of Group ' B' candidatc
as arc pcnnissiblc acuxdmg to thc prcscribcd pcrccntagc of posl
to bc fillcd in by promotion, not as pcr thc actual vacancics but i
rclation to thc numbcr of direct rccruits taken. Thc Association
havc dcmandcd that full bencfit of promotion should bc.allowc
to thcm against the promotion quota. Some haw gonc as far 8
to demand that thcy should also be promoted on an ad hoc basi
against thc posts not fillcd up from the direct raruit quota. 1
few, who arc bcing given such ad hoc promotions, want hi
promotions to bc on regular basis.

Our 49.8 We have examined these suggestions and OUI

recomnwuiarrorts
recommendations are as follows :

a) We are not in favour of abolishing the Group 'B' Service!

and converting them into Group 'A* Services. Group 'B
Services represent the fruition of the desire of those recruited tc
Group 'C Servicesto be part of an officer cadre. There are largt
numbers involved and they do perform a twin role - on one side
they provide promotion avenues and on the other they have a
supervisory functton. In the new classificationof Services, thej
are bcing called Supervisory Personnel.

b) We also do not favour wholesrk induction of Group 'B'

Services into the .ITS of Group *A*. If all Group 'BServices
are granted that scale, it would inflate the number of o f i w s in
JTS to an unnatural extent and all the calculations relating $0
model cadre structure would go awry.

c) There is no justification for direct indud-on of promotees

from Croup 'B' Services into the STsnof Group *A'. We have,
in fact, taken a policy view that there &add be a gradual
movement !?om the Group 'B' scale of Rs.2000-3500 to the STS
of R~3OoO-4500.Such Smices/eadreswhere direct progression
was permissible are now beiig asked to move through either the
JTS or a new Group 'B' scale of Rs.2500-4000.

d) AS regards ule pramotion of Group 'B' officers to Group 'A', we

feel that the policy being followed by the cadre controlling
authorities to limit the number of promotees, taking into
account the number of direct recruits, is the correct one.
Departments which are granting them promotions based on
vacancies or against the unfilled direct quota need to change thew
promotion policies

49.9 We have, in our own way, tried to improve the chances of

promotion of Group 'B' Services. This has bccn attempted in a numbcr of ways.

a) In all Group 'B'Services, the Assured Career Progression

Scheme has bee-nintroduced. As against a rcquircd rcsidcncy

: 555
 pcnod of I2 ycars and I 0 ycars for Group ' D and ' C' cadrcs, thc
rcsidency rcquircnlcnt has bccn kcpt at only 8 ycars for Group 'B'
cadrcs.

b) For the Central Secretariat Service, Railway Board

Secretariat Service, Armed Forces Headquarters Service etc.
we have created a new rung in the scale of Rs.2500-4000.As
a result, 25% of those in the scalc of Rs.2000-3500 w i l l
immediately movc into the higher scalc of Rs.2500-4000.

c) For the Railway Services,the scale of Rs.2375-3750has been

surrendered to Group 'C' cadres and all Group 'B' cadres
have been moved up to Rs.2500-4000.

d) Services like the DANICS, DANIPS, Pondicherry Civil

Service and Pondicherry Police Service have been upgraded
to Rs.2W000,and they have been given a fourth pay scale
of Rs.4500-5700for further career progression.

ISSUES RELATING TO CIVIL AND POLICE SERVICES OF UTs

AND NCT OF DELHI

49.10
C.T. Civil Service The U.T. Civil Service (DANICS) and U.T Police Service
@Ax*cs)und (DANIPS) cater to the middle level civil and police administration needs of the
U.T Police
Service (VANIPS)
N.C.T.of Delhi and UTs of Andaman and Nicobar Islands, Lakshadweep, Daman
& Diu and Dadra & Nagar Haveli. The total authorised cadre strength of these
services is 398 and 355 respectively. Posts in both these services are interspersed
among three grades of pay, viz., Grade I1 (Entry Grade): Rs.2000-3500; Grade I
(Selection Grade): Rs, 3000-4500 and Junior Administrative Grade : Rs. 3700-
5800. The posts earmarked-underGrade I and JAG are classified as Group 'A'
posts. The recruitment to the Entry Grade is made by direct recruitment and
promotion from amongst suitable officers of the feeder grade.
Pondrcheny Civil 49.1 1 The Pondicheny Civil Service and the Pondicherry Police Service
Service & provide the middle level of Civil and Police administration in the U.T. of
Pondrcheny
Police Service
Pondicbeny and are the feeder services for the AGMUT Cadre of respective All
India Services. Their cadre strength is 62 and 14 respectively. On the pattern af
DANICS there are threegrades of pay for the Pondichemy Civil Service as against
the two grade pay structure in case of Pondicheny Police Service. Fifty percent of
posts of Entry Grade (Rs. 2000-3500) in both these services are filled by the
Combined Civil Services Examination conducted by the UPSC and the rest by
promotion.

Demands 49.12 All the above mentioned four Services have demanded an Entry
Grade of Rs.2200-4000 and standard Grades of pay upto Rs.4500-5700 on the
pattern of most of the State Governments including the neighbouring States who
have already created such promotional avenues for their corresponding cadres
These services are feeder to the AGMUT cadre of thc respective All India Services.
The AGMUT cadre of AIS comprises of two distinct categories for the purposes
of feeder Services to *e AIS, namely the participating States and UTs including
N.C T of Dclhi. The participating States arc Arunachal Pradesh, Mizoram and

556
 Goa whilc thc Union Tcrritorics arc Andaman B Nicobar Islands. Pondichcy.
Chandigarh. Lakshadwccp, Dadra B Nagar Havcli. Danian B Diu and N.C.T of
Dclhi. R' IC Statc CiviVPolicc Scrviccs of all thrcc constitucnt Statcs hay, url r ; n Q
scalc of Rs. 2200-4000. Thc U.T. scgmcnt of AGMUT cadrc has four &inct
fcodcr Scrviccs, namcly. thc U T, Civil Scrvicc, thc Pondichcrry Civil Scrvicc, thc
U.T. Policc Scrvicc and thc Pondichcny Policc Scrvicc. Thc U.T. of Chandigarh
is bcing rnanncd by dcputationist oficcrs from thc Statc Civil Scrviccs of Punjab
and Haryana. In ordcr to strcamlinc Ihc pay structure of Lhc f d c r Civil and Policc
Set%&, we recommend the entry grade of Rs. 2200-4000 followed by the
grades of Rs. 3000-4500,Rs. 37W5000 and Rs. 4500-5700 for these Services.
Our 49.13 The inlfoduction of a ncw gradc nmssitatcs somc re-structuring
recmmcndabons.
pay scaler of b e cadres involving intcrspcrsing of cxisting posts among different grades of
pay. We recommend the foliowing'tevised uniform grade structure for these
Services:-

Grade Scale of Pay Eligibility for

Functional Promotion

Grade IV service Rs.2200-4OOO Entry Grade

Grade I11 service Rs.3000-4500 8 years of total service

Grade I1 service Rs.3700-5O00 13 years of total service

Grade I service Rs.4500-5700 18 years of total service

Distribntion of 49.14 We also recommend the following inter-grade distribution of

P- posts in these Services:-

Grades UT Civil UT Police Pondicherry Pondicherry

of Pay Service Service Civil Service Police Service

Rs.2200-40oO 218* 213" 36* 7

Rs.3ooo-4500 75 71 11 4

Rs.3700-5000 75 44 10 2

Rs.4500-5700 30 27 5 1

Total 398 355 62 14

(* including cxisting.numbcr of authoriscd Rcscrves)

557
I'rlmIollfJlr yctotca 49 I j Thc All India Scrviccs (Appointmcntby Promobon) Rulcs provide
for a promotion quota of 33 33% of scnior duty posts plus Ccntral dcputation
rcscncs for thc rcspcctivc fwdcr cadrcs It has bccn dcmandcd that thc statc
dcputation. Icavc and training rescrvcs should also bc counted for thc calculation
of promotion quota, and the pacentage should be raised to 50%. We fwl that this
is a larger issue whch cotlcems all the f&r cadrcs to thc AIS. Thcre is no rcason
to intcrfcrc with the present arrangement. We recommend that the status quo
be maintained.
Jortrt Select I,l.sl 49 16 It has been argued before us that to the detriment of the intcrcsts
of thc UT Civil Service and UT Police Service, from 1988-89 onwards, thc
Ministry of Home Affairs have resorted to promotion of officers on notional
allocation basis Th~shas enabled the Mlnlstry to arbitrarily earmark the promotion
quota vacancies for different constituents of the AGMUT Cadre, which bears no
rclabon to the strength of different feeder Cadres The Service Associations have
dcmanded swwhmg over to the 'Joint Seniority' system for such promotions We
feel that the promotions to the respective AIS, AGMUT cadre should be made
on the basis of a 'Joint Select List' drawn batch-wise by including suitable
oficers of all the constituent feeder cadres
Eonnorking olex 49.17 The National Capital Territory of Delhi is one of the constituent
cadre posts units of the AGMUT cadre of IAS. One of the major grievances of DANICS
officers has been that all the middle and top level ex-cadre posts in Delhi
Admhstration are being filled by either the IAS officers of the AGMUT cadre or
by oficers on deputation from other cadres. This practically leaves little room for
their officers to man even the middle level administrative posts in Delhi. We feel
that all senior/top level ex-cadre posts in the National Capital Territory of Delhi
should be manned by the officers of the IAS (AGMUT Cadre) and the middle level
ex-cadre posts by the DANICS officers. Accordingly, we recommend
earmarking of all seniodmiddle level ex-cadre posts under Delhi
Administration for the IAS (AGMUT Cadre) and the DANICS respectively.

558
 50

Introduction 50 1 The organised engineering cadres are employed in almost all important
depaitmtmtdministriaof the Central Government. The Engineers are involved in
diverse activitks of manufacturing, maintenance and operation of systems. Major
departments in which the engineering workforce is engaged are Railways,
Defence; Communications, Water Resources, Power, Surface Transport, Urban
Affairs & Employment (CPWD), Commerce (DGSBrD), Industry, Science and
Technology (Survey of India) and Mines (Geological Survey of India).

There is a wide variety in the functions and profile of the ministries and
departments in which the engineers are engaged.

Role of engineers 50.2 In the context of fast changing economic policy regime in the
Governmen' country and the imperative need to redefine the functions,and role of the Central
Government, we commissioned IIT, Delhi to study the 'Role of Engineenng
Personnel in the Central Government'. Indian Institute of Technology, k l h i in
their report formulated following concerns in the light of the present national
condtion :

"a) The nature of the engineering job in terms of its output is such
that it is verifiable in an absolute sense (in terms of visibility) and
in a relative sense (in terms of tangibility of outcomes and
appmtness of failures). The issue therefore is about the nature
of autonomy required and whether the requisite autonomy vests
with engineers to function adequately.

b) Of the engrneering departments studied, the Military Engineering

Service(MES) was entirely under the Central Government, the
Ministry of Surface Transport and Railways fall under the Central
Government whcrc privatisation initiatives leave role spaces for
both the Governmcnt and the private sector There are
cnginccring dcpartmcnts in the concurrent list of the Constitution
- typically Water and Power This raises issues of the nature of
linkagc bctwecn central cngineering functions and statc
cnginccring rcsponsibilitics All in all, the nine dcpartmcnts have
 littlc in common srti'c that thcy arc all conccrncd \\it11 sotnc
cnginccring act iv it ics

Regulatory and policy-making functions of thc Cciitrrtl

Go\wnmcnt cngmccrs arc now in largcr profilc than ever bcforc

Given he changed cconomic.sccnarioand organizational rcalitics

in the Government, the pcrccivcd quality of life arising out of
employment in Govcmmcnt can act as m important attraction or
deterrent in drawing competcnt cnginccrs to thcsc scrviccs.

Given that the pay scale has protocol valuc in the Govcrnmcnt,
the issue of possible dclinking of pay scale promotions to
responsibility promotion remains one of the complicatcd ones.
Zdent*ing, rcwardng and nurturing compctcncc is the heart of
the survival of a profession.

Engineers, typically, also work in a 'project mode' while the

corresponding Government machinery operates perhaps as a
bureaucratic monolith grossly in need of redesign. The redesign
will need to be in a matrix mode accounting for the special
features of-the activity in question. The engineering activity -
project or programme or maintenance - needs a design of decision
making which is -responsive to concerns of the operating
technology. What is reqvired therefore is exploring the
possibility of creating a "system caveat" to respond to the needs
of an engineering function.

Since the Government engineers'job entails technical as well as

non-technical issues, the issues of competence in terms of a
specialist and generalist gain attention. Left unaddressed they
quickly degenerate into petty squabbles of "who reports to whom"
or "who calls the shots The 'generalist' vs 'specialist' debate can
be only one of a limited mileage and the real issue of personal
competence of the incumbent becomes pervasive. The system
design must account for this."

While analysing the present national economic scenario, the report

makes the following significant observations :-

"The facts of the casc are that reforms have not altered the extent
of hierarchy ip specific groups nor has the Government made any effort to
change the status of such groups. An attractive tax package and an access
to imports have been o f f d to the professional and urban middle classes.
The prosperity of the former has not been harnessed for national
development by making it amenable to income tax. The unionized worker
continues to be a definitive variablc in the industrial policy almost to the
neglect of the issues of skill formation in a manncr which is growth
oricntcd. The dominant proprictq class, thc industrialist, the rich farmer,
and the professionals alikc sccm to bc wcll poiscd to get the best out of thc
deal of the reform. The fiscal disciplinc which should havc comc in has

560
 not tcrkcn placc. and truc compctition in thc domcstic marlict has bccn
rcstrictcd dcspitc relativc erosion of monopolics whilc pio!cction of thc
domcstic capital is still a mattcr begging attcntion. Liberalization of
forcign direct invcstmcnt to financial scctor rcforms is of coursc much
projcctcd. But how far this alters thc rolc of thc Ccntral Govcmmcnt. as
far as thc actual running of thc Govcmmcnt is conccrncd, in tcrms of thc
specifics remains really an impondcrable question.

The conflicting preferences and compulsions seem to highlight a

fairly simple situation, namely a higher than optimal fiscal deficit, GDP
ratio, adversely is affecting thc reforms all along thc linc. Thcrc is a clear
upsurgc in unemplaymenl, the inevitable fallout of thc rcforms in thc short
run cannot be wished away, whilc talking of long terms gains."

The report further notes highly sensitive concerns related to

broadcasting and development of remote areas which cannot be abdicated to
private forces and pred~dsthat what is likely is that there will be a reduced role
of the Government in operational decisions of various engineering
departments with partial phvatisation of some departments but with the
Government continuing to control the kev activities of these systems.

50.3 The distribution of Group 'A' Engineeringposts in different scales of pay

in major Departments and Ministries is given below:-

Ministry/ Total
Dcparhnent
4000 4500 SO00 5700 6700 7600 8000 (fired)
- - - _ - - - - I _ -

CPWD 154 640 174 103 43 03 - - 1117

Ministry of
Defence 249 516 141 174 17 01 I - 1098
Civil (BBrR) 52 55 33 - 02 - - - 142
Arch. Wing 174 158 31(=) 03 - -- - 36fj
Survey Wing

Indian Naval 45 31 28(-) 01 - - - 105

Armament Supply
Organisation
Ordnance Factory 352 556 481 - 208 06 09 01 1619
Board
Border Roads 406 143 16 29 09 02 - I 605
Organisation
Ministry of 42 87 35 25 17 02 dl - 209
Surface Transport
(Roads Wing)
Minishy of I L H
AIK 803 568 143 (=) 02*24)6 02 -- - I542
I) I) 252 218 29 04) 01 - - 504
Ciril Survey 77 I 60 14 - - -- - 845

56 I
 Ministry of' Watcr
Resources
C'WliS 2x9 260 I01 ox 33 04 0I -- 756
CI'IS I76 210 *Ill( ) 35 06 0I _- 539
Ministry of'
Kaihvavs
ClVll 1363 647 469.) 2645
Mechanical 790 27x 322 ) 1609
Elcctrical 672 337 318 )(H) 1412
S&T 493 29 1 I91 1 I044
Stores 346 23 1 122 1 I59
Department of
Science and
Technology 92 154 74 327
(Survey of India)
Ministry of Mines
GSI (Mech.) 10 17 06 34
. (Drilling) 73 34 19 128
Ministry of
Communication
Telecom 62 1 2268 520 (=) 3665
Telecom Factories 28 29 10 -- 70
P&T Civil Wing 23 87 455 -- 600
Ministry of
Commerce

Inspection 48 46 21 05 01 or@ -- I22

Supply 37 43 28 10 02 _- -- 120
Wireless Planning 65 20 06 02 01 -- - 94
and Coordination
Wing (Department
of Telecom).

Total 8516 8103 3967 401 1111 129 17 04 22188

* R~.5100-5700
S Rs.5900-7600
(#) Rs.37004500 + Rs.4500-5700
@ Rs.7600 (fixed)
(=) including Rs.3700-5000 and Rs.4500-5700

Most of these posts have been encadred in nineteen organised

services. The cadre structural ratios and threshold analysis for promotions to
hgher level posts of these organised services as on 1.7.1995have been mentioned
in the discussion on individual Services below.

Srarus aridHole 50.4 . The memoranda reccivcd by us from engineering cadres rcflect,
oflywinrefs: with a few exceptions, a universal sense of frustration and deprivation in respect
Perceprion
of carecr progression and role in decision making. This perception is very acute
among Group 'A' E n g i n m g Serviccs when they compare themsclves with Group
'A' Civil Services and All India Scniccs. The All India Federation oTEngincers
rcprescnling the Associations of Group 'A' Enginccrs and the Institution of
Engineers have articulated the grievances and demands of Group 'A' Engineers.
Important issues highlighted by the Fedcration and the Institution in their

562
 nicmoranda and at thc trmc of oral ci,idcncc bcforc us arc sumniariscd bclo\\ -

Erosion in thc status and conscqucnt csodus of Enginccrs to non-tcchnical

strcams.
Thc prcscnt di ffcrcntial bctwccn Enginccring Scrviccs and gcncral Civil
Scrviccs and thc colonial attitudc of trcating cnginecring as ausiliarl\.
scrvicc nccd to bc addrcsscd urgcntly.
Rcalistic and pragmatic thrcshold lcvcls for carecr progression should bc
formulated and structural ratios bascd on cadrc rcviews should be applied
uniformly to all scrviccs.
Obliteration of diffcrentials and disparities in pay structure and promotion
prospects so as to achieve equality amongst equals as cnshrincd in our
constitution. Thcrc should bc a unified salary structure for IAS, IPS and
othcr Group 'A' Services. A system should be evolved whereby pay parih.
is maintained between engincering services and IAS, IPS, etc., belonging
to thc samc year of examination.
Formulation of a Unificd Civil Scrvice and initiation of job evaluation
tcchniques for allotmcnt of jobs at scnior executive level and for
advancement to higher grades.
Formulation of a pragmatic pay structure commensurate with the pa? of
executives in the corporate sector so as to allow an honourable and decent
standard of living free from want and economic stress.
To ensure equaVequitablepromotion opportunities for the personnel in the
:n:ngmeering services, a statutory authority for cadre review of engineering
services headed by an eminent engineer should be established.
All policy making positions in government should be open to members of
the engineering services. At present because of the invidious eligibilih
:riteria engineers are not being considered for such posts.
The government's strategy for human resources development should
include inter-Wage of career planning, career management and technical
managerial training programmes for members of the engineering services.
Engmeers should be sponsored for higher studies and research to keep in
touch with the latest technological developments. Suitable professional
pay and allowances should be given for higher qualifications.

Problemsfaced 5 0.5 The All India Federation of Engineers has further pointed out
by certain problems faced by Engineers. These are:

- Ineffective planning due to non-participation of Engineers.

- Inadequate delegation of ahinistrative and financial powers.
- Performance of same work by various departments/organisations
due to concept of ' Attached' and 'Sub-ordinate' ofices which are
considered inferior to the main Ministrics.

50.6 Thc Federation has suggestcd that therc is nccd for setting up a
nodal department for Enginccring Organisations. This department must exercise
control over physical planning, financial association, rccruitmcnt, promotion.
training as \veil as inter-dcpartmcntal transfers and posting of pcrsonncl including
cnginccrs and tcchnologists. bcsidcs standardisation of specifications, codes, rulcs
and proccdurcs and thcir updation.
 50 7 A comparativcstudy of slnrctural ratios and thrcshold analysis of
Ccntral Group 'A' (Non-Technical), Ccntral Group 'A' (Tcchnical) and All India
Scn4ccs rcvcals thc following-

1) With the csccption of one or two dcparlmcnts. thc Enginccring Scrviccs

.arc lagging bchind Civil Scrviccs and All India Scrviccs in rcspcct of
carcer progression;

ii) Thc promotion threshold lcvels for Senior Administrative Grade (SAG)
and above are part~cularlydisadvantageous to Engineering Services This.
characteristic, howevcr, is shared by Central Group 'A' won-Technical)
Services with Engineerihg Services vis-a-vis All India Services.

Engineers in Civil 50.8 It is presumably due to better career progression and status that
service^ there is a growing tendency among the Engineers to compete for and join the Civil
Services. The available statistics from 1984 to 1986 indicate the following in this
regard :-

Civil Services Examination

Year Total No.of Qualified No.of Engineers qualified
Candidates (%age of total in Brackets)
1984 8 14 132( 16.22)
1985 790 128( 16.20)
1986 856 168( 19.63)
(Source: Report of the Committee to Review the Scheme of the Civil Services
Examination, 1989, UPSC)

50.9 IIT, Delhi study referred to by us above, makes the following

observations:-

"Until the early years of independence till ~ O S ,Central Engineering

Services offered coveted opportunities to engineers in terms of : social
status, quality of life, career progression and professional challenge.
These services attracted the best amongst the civil, electrical and
mechanical engineers. There is clear evidence that there has been a
progressive erosion of the attractiveness of the central engineering
services. The best are no more attracted to these services and those who
joined the services in the past have a general sense of unfulfilled
expectations and dernoralisaticm. They are concerned about lack of 'parity'
with Central Civil Services (IAS and allied services) in terms of career
progression, but more importantly, about the subservience to
administrativeand financial wings of the ministries and departments. This
gives them limited space for creative work and professional satisfaction.
The multi-layered decision making process results in large response time
in decision-makmgwhich kills many initiatives and innovations and brings
a bad name to the engineering profession. The net result is that while
engineering is still a coveted choice with (!0+2) students, the central
engineering services are not.

The cngineers in departmcntdministrieswhich have a higher level

of autonomy and authority, such as, Railways and Tclecom. have a hizhcr

564
 Ici cl of satisf;ictioti ;IS coiiiliarcd lo cngiiiccrs 111 olhcr
dc~~nrtiiicntslmiiiistrics "

5 0 I0 l h c nunibcr ofcng~nccrsaspiring and ~oiningCii11 Scr\ ices IS

sigiificant Whdc thcrc may bc nothing wrong pcr sc in tcchnical pcrsonnci ~oiiiing
CI\iI Scniccs. this trcnd ncvcrlhclcss is no1 Ic? hcalthy in thc light of thc fact that
thcrc would bc almost fifty pcrccnl avcragc gap bctwcn thc rcquircnlcnt and
out-turn of dcgrcc holdcrs in Enginccring and Tcchnology in thc country during
IOO3-2000 as cstimatcd by thc Institute of Applied Manpower and Research,
New Delhi.

Requirement of Degree Holders in Engineering/Technology

Year Total Annual, Out-turn during the year Cumulative Gap
requirement (estimated)
during the year

I8400
I995 48390 56660 26670
1996 5 1300 56660 32030
I997 54370 56660 34320
I998 54370 56660 33340
I999 57640 56660 28900
2000 61 100 56660 20800
Annual
Average 56260
27780(49.38%)
(Source: lnstitute of Applied Manpower Research, New Delhi).

Our 50 11 We have given due consideration to the problems and demands

recommetrdarions
raised by the Engmeers. We have recommended following measures in general for
improvement of career prospects of Group 'A' Services (including Engineering
Services) -

Carcer A minimum benchmark model cadre structure

Probwession

Time Bound Assured Career Progression(ACP) upto Non-Functional

Selection Grade(NFSG) posts.

Mandatory/Justiciable periodic Cadre Reviews.

50 12 Further, we have kept in view the need for retaining talent in

government while deciding the pay scales of Group 'A' Engineering posts.
We are convinced that the pay structure and other facilities/allowances
recommended by us for Group 'A' Services (which will be applicable to
Engineers as well) will, to a great extent, satisfy the aspirations ,of officers in
government .

50 13 The provisions of assured career progression upto Selection

Grade level recommended by us would bring a measure of parity among all
Group 'A' and All India Services. We, however, do not think that the concept

565

\bcirl
I*'ir~iircvriti~
Ikpir/titi*ii/
h i t i i r i K arid
shil' I c d f J r t r ' i '
of 'Botch Parity' put forth by the representatives of the Engineering Services
is feasible of implementation.
5 0 14 Although some of thc Central Eiigiiiccriiig Scnxxs arc too
spccialiscd, thcrc is a clcar case for an All India Eiigiiiccriiig Scrvicc for hosc
gcicraliscd cnginccnng scniccs that arc ~~niiiionboth to thc Ccntrc and thc Statcs
Tlic Govanmcnt could bcgln by amalgamating thc posts of cnginccrs looking aftcr
roads. buildings, irrigation and public hcalth schcnics Such an AIS would
automatically wnfcr status and prcstigc to thc Enginccring Scniccs in gcncral
50 IS Wc havc considcrcd thc issucs on unificd salary structurc and
Unificd Civil Scrvicc in rchant Chaptcrs of our rcport Similarl!, thc largcr issuc
of rc-structwng the govcrnmcnt machine? in thc light of cmcrging cconomic
imperativcs has been dcalt wth scparatcly in the r c h ant Chaptcrs However, we
do not think that the proposed creation of a nodal department for engineering
organisations is feasible due to high degree of diversity among government
departments and the need for them to control their resources
5 0 16 We are of the vicw that training and updation of skills and
knowlcdge arc very crucial for all government officcrs in a modem technological
norld We find that in some cngincering cadres (as in Railways) no training
rcserve 1s prouded We recommend that the training reserve within the limils
suggested by us in the model cadre structure be provided for all Engineering
Services. We also recommend that the government consider including the
engineering services in the Foundation Course for all Civil Services. We also
endorse following suggestions made by IIT, Delhi in their study in this regard
for acceptance of the government:-
An initial training module covering orientation to Central Government
rules/regulations/proceduresand management principles and practice,
should be organised for all engineers selected to Central Engineering
Services.
The in-service programmes of life-long learning through short and
long-term training modules, covering both the technical and the
management aspects, should be organised and made a pre-requisite A
long-term module oftraining, should be made an essential requirement for
every promotion Training programmes should be designed to be
consstent wth the level of knowledge and skill required, which should be
identdied The programmes should covcr tcchnology, planning, interface
management. development process, legal aspects, information tcchnology,
ctc
The performance during training should be documented and
considered in career progression.
Higher education leading to advanced degreesldiplomas, and
participation in conference/seminars/symposia should be supported
and encouraged.
566
 Membership of professional bodies should be encouraged by way of
reimbursement of membership fees.

SO 17 Wc havc rcccivcd a suggcstion that thcrc should bc rcgistration

for cnginccrs as for doctors and la\vycrs bcforc thcy arc allowcd to takc up
profcssional activitics and that thc kcy posts of cnginccring and tcchnological
dcpartmcnts should bc manncd by such cnginccrs and not by gcncral ofhccrs We
coqsider this suggestion for accredited engineers to be a good idea and
endorse it for acceptance of the government. However, we are of the opinion
that the selection of engineering officers for key posts in engineering and
technological departments should follow the normal rules and no special
consideration can be given to accredited engineers in this regard

50.18 The All lndia Fedcration of Enginccrs havc rcprcscntcd to us for

following allowances for cnginecrs:-

Post Graduate Allowance

(a) As in the case of medical profession. a monthly allowancc of Rs.500.

Rs.750and Rs. 1,000 for acquiring rcspcctivcly a post-graduate diploma:
a post-graduate (M.Sc./M.Tech./M.E./M.I.E.) degrce and a doctorate or
fellowship of the Institution of Enginccrs.

Design and Planning Allowance

(b) A monthly Design and Planning Allowance of Rs.1,500, Rs.1,000, Rs.750

and Rs.500respectively for SAG Officers, JAG Officers. Senior Scale
Officers and Junior Scale Oficers.

Field Duty Allowance

(c) A Field Duty Allowance on the same scales as the Design and Planning
Allowance for those engaged on field duties, involving additional physical
effort and skills as well as mental strain.

Extra Duty Allowance

(d) A monthly Extra Duty Allowance of Rs.1,250,Rs.l,OOO, Rs.750and

Rs.500 respectively for SAG, JAG, STS and JTS Officers since an
average field engineer performs four hours daily of overtime work.

Permission for Consultancy or Non-Practising Allowance

(e) In order to erisure the availability of the specialised knowledge of

engineers to the society at large, the present restrictions on engineers
rendering consultancy scntiqs should be removed ahd grcatcr freedom and
flexibility provided. If this is not possible, a Non-Practising Allowancc
equal to 50% of thc pay without any ceiling should be paid.

567
 Reimbursement of fees for membership of professional bodies

(1) Iccs paid by cnginccring pcrsonncl for acquiring mcnibcrsliip of ;irious

profcssional bodrcs (Iiistitutc of Enginccrs. Indian Road Congrcss. clc )
should bc rciniburscd trcatrng such mcinbcrship as an additional
qualification

(8) Convc!*ancc allo\vancc

Oiir ~ih.\c*ncl/~otis 50 19 Wc makc thc following obscn:ations/rccommcndations on thc

trtrd dcmands of thc Fcdcration for various allowanccs -
r0c f ~ l l l f l t l ' ~ I f k J l i ~ J l l . ~

The general scheme to grant lump-sum incentive for acquiring higher

qualifications in government for Group 'A' will be available to all
Croup 'A' Engineers in government.

Design and Planning allowance for officers posted in Central/

Headquarters Planning/Design Wing may be granted at the following
rates:-

Designation Existing (Rs/p.m. ) Proposed (Rs/p.m.)

Chief Engineer Nil 1,250

Superintending Engineer 500 1,000
Executive Engineer 400 750
Asstt. Executive Engineer Nil 700
Assistant Engineer Nil 600
Junior Engineer 200 300

- Transport Allowance for Group 'A' officers as recommended in

general will be available to Engineering officers.

- General provisions for reimbursement of fees of Group 'A' Officers

for membership of two professional bodies be made applicable to
Engineering officers.

- We do not consider demands for other allowances to be justified.

SUBORDINATE ENGINEERING CADRES-1 -

50.20 We have analysed in detail the recruitment qualifications and

promotion pattern of employees in the subordinate engincering cadres in different
M inistricdkpartments :
 P E C R UlfMENT QUALIFICATIONS - COMPARISU N - GAZE=
* *
AND GROUP B F N C INEERINGSFRVICES
PcyScJc Rulwys Dcfcocc COmmmic.tirm Uhm ARun Wonncdim & W d n Reearces & Power Carmcrcr SurCue Trmrporl Sursry of Gcoloprd
(Ilr 1 T~lecom P&T Civil [CPWD) Brodruliry W r r Pow- BRES CESRo.6 Inda Smr)of
bdia
MrcblDrillW

1400.2300 DR 6O%to7JK DR 2JYelo9oK Diplonu DR 97% w- IE Diploco. JE(Diploclu) DR@iplonu) DRZJ-4oH Diploma ladnmcdi~clRomoticm
(Diplm) R. 10s. lo 7JYa DR 13 113% (Diploma) DR 100% (Dip.) Also by Tr. of R.60 -75% (DR IOOK) W e with of A r t i s m s
R 25Ca4oK DeprtExrm LDCE 3% Ddbmm (Diplome) Mu)u md
Tr&in&l)~/2yn 16 20% with DR Qwl. DR 8oH (Dieloma\ Scimr G v h a
Pr. l O n ; ' h I & tes io feeder
ca&er(lL. 1400-
2600)
1600.2460 R. loOn R. I W h (in NA NA NA R. 1oOn NA NA
OPs md N W O
dY)
DR 1-
1640-2900 NA R. IOOH(AtF3) DR 50% Time B m d Time Bowid in QviVElect NA NA DR2W
UXE5o%ioJycn Jycm Tim B d in Diplmnm
(Science 5ycm (Drilling,
Gmcbera Pr. 1001;
depubnedly R. loOn (Mtch)
qwli6.d
)rl.binJ**l)
2000-3200 DR 20% Pr. 75% O R d y NA NA NA h.tbm.0 HdD'Ma NA
crdurr
2000-3500 NA Pr. 100% Mu Gr'B'Pmaul dviYelcn Pr. 1wK
p m n d i o a i o 15 DR 4oHCESE
ynifno~pram-R. 60%
t.edo0-r (JE+DA+ ((Lr 'B') ( w l yW d
buir Dmm) 1wHPr.h
F a nplrpro- llvp wist
llD(io0 :5oK
Sdectios; 5 o H
IDCE
2373-I500 R. lwK Pr. I W m O h NA NA NA NA
NASO
2375-3750 Selediico NA NA NA NA NA NA NA NA NA
Warp W
22004OOO DR 6oHCESE DR I O O % M u DR 5OHCESE D R 100% DR IOO)((CESE) CiviyElrd DR 60$(CUE DR JoH DRJoH
R. 4 o H DR 6ow OFe R. JOH DR IOOH R. 4oK CEBH R.JoH
R n O D 4oK R-m f&ppb
DR 662l3HNA90 wisr)
R:33 113%

30004500 R.lOOY. )66U%R.AEE R.lOOK RlOnAEe R . $ o H m R.AEE R.?% R. lOan Fr. loOn
Mu p3 113% R. AE Pr. 5 o n AB' 5oH Ae R.AE TODU96
I: J o K R A A S 9
N W O 130% R. Sr. Fa-
 SUBORDINATE ENCINKERI'VC SERVICES : PROMOTION PATTERN

46.94 Yer

ML Nil 356 59 16.57 Yea

1360 76.4 3334 1417 425 Yn

139 60.8 2059 NA -- No

lb4 60.39 1307 40(+118DR) 3.06 Yes

609 57.29 1672 120 7.18 No

85 (21) 41 47 53.29 132 21 15.91 so

TechcdC.drr

B 6 - ' i 8604 (3730) 7129 7129 82.9 13733 1193 7.38 No

Buildi~&Ro.b 1060 (424) 612 551 52 1672 I26 7.54 No

JMtcbd
E I e ~ c&
Cd 126 (57) 169 152 67.3 395 53 13.42 No
D m of Science&Teclmol~
1447 -- 1447 j39 24.81 Yer
s v v c y of Irdr. (h.
1400-2600)

Minim of Surface
nodBW I N

Civil Engmccrias 56 43 43 76.19 99 . 2 (+9DR) 2.02 Yes

570 :
 Dcpwneoi

Civil 1096 Ni 1
SurVcyOfWah
Eltcoicd
- tPo.dnnoad.
rlpolsoQ
ofRrZo0o
-3Joo in 15 ya

3109 3109 54.12 14599 IOU 7.41 No

208 - - 208 230 100.58 No

It 44 - +
6t(IU)
94(?Ja1
30
(Td61poen)
19.48 No
Eqsb fecdm
byopcioa)

- m.n
--
2W61 -10230 2M61 14500 NO
Telrcom -.
TelecmFactoh
PM’Civil W g
445
2224 - p.r 4.:

s a l e of 1640-2900 in loOn
445
2224
81
1569
1935
70.5s
No
Y-
-Rrzooo-3500
Jlrrr
P d prcmotion
in 1s
b
ycm
(c+rCpiDkcbW*

M i n i m of Wplrr R-c

Mrpvav o f Pow([:
113 NIL - 914 330 36.10 No

of Rulw.yl
- 171 - 171 92 53.v No

CivilEa(li0caig
MedmnicdW 13331 (9337) 9720 8925 66.91 23058 1132 4.91 No
flcccricd J%giacrriag 22103 (I6S77) 19393 18101 81.90 414% 799 1.93 No
Sigvl mddeleroa~ 9127(U45) 1162 not n97 16889 ui 285 No
-erios 4891 (2201) 3968 3662 14.U 8859 330 3.n No
2 -Dcproad
409s (1364) 3229 3229 nu nu 322 4.4 No

:371 :
 Bascd on h c anal!sis abovc, \\c hn\x iiiadc !'ollo\~iil~
important
findings -

Diploma Engiiiccrs (Civil & Electrical) in ('PWLI. P&T ('11 11 Wing. All
India Radio/Doordarshan undcr thc Miiiistn of liifoniiation and
Broadcasting gct highcr pay scalc (Rs 1040-2000) in a tinic bound
nianncr.(S JTS) and subscqucntly pcrsonal proniotion to thc pav scalc of
Rs 2000-3500 (15 \.rs ) This pattcm has rcccntl! bccn introduccd in
Building and Roads Wing of Mililac Enginccring Scnicc

Thcrc is partial dircct rccruitmcnt of Enginccring Dcgrcc holdcrs i n thc

pay scalcs of Rs 2000-3200 and Rs 2000-3500 undcr thc Ministrics of
Railuays, information & Broadcasting and Commcrcc

In following MinistrieslDcptts. Group 'B' arc dtrcctly promotcd to Group

'A' STS :-

Dcfcnce (Some organisations). P&T Civil Wing. CPWD. I&B. Surfacc

Transport (CES Roads), Suwcy of India

There is large variation in the pattern of promotion within Group 'C' and
from Group 'C' to Group 'B' posts.

The best three orgmsations III respect of promotions \tithin Group 'C' arc
- CPWD, P&T Civil Wing , Ministy of I&B (Civil & Elcctncal) Thcsc
three organisations hake scheme of time bound promotions Thc Worst
Three organisations are - Border Roads(B&R), I&B (Broadcasting),
Indian Naval Armament Organisation

The best three organisations in respect of promotions from Group 'C' to

Group 'B' are :
- Inspection Wing of DGS&D, Deptt. of Telecom, P&T Civil Wing The
Worst Three organisations are . - Railways, Roads Wing (Ministry of
Surface Transport), Architectural Wing (MES)

Demands and 50.2 1 The demands and grievances of the subordmate enpeering cadres
Grievames: have been articulated by the Federation of Diploma Engineers. The Federation has
Low Pay Scale
made the following important submissions before us:-

The pay scales and the status ofthe engmcers has been brought down over
a period of time, the maximum damage being donc by the Fourth CPC
which granted the pay scale of Rs. 1400-2300 to Junior Engineers (Jes)

Thc recommendation of thc Job Evaluation Committcc (sct up by thc

Ministry of Urban Dcvclopmcnt) that the Junior Enginecrs pcrformcd
more arduous dutics in\lolving highcr rcsponsibilitics as comparcd to
Draftsmcn Gradc I wcrc ignorcd and h c Draftsmcn Gradc I wcrc givcn thc
pay scalc of Rs 1600-2660 Howcvcr, aftcr a grcat dcal of agitation the
Junior Enginccts of CPWD wcrc givcn follouing scalcs

572
 Rs 1400-2300 at the c n t n Icvcl
Rs 1O4O-2!lOO aftcr 5 !cars of s c n x c
Ks 2000-3500 nlicr 15 !cars of total S C ~ I C C

Thcsc pay scalcs \\crc. ho\\cvcr. not cxtcndcd to the Junior Engiiiccrs
\\orking in othcr dcpartmcnts In thc mcantimc, the Suprcmc Court ol
India anardcd thc highcr pa! scalc of Rs 2000-3200 to thc Enginccring
Assistant; of thc Ministry of Information and Broadcasting \\ho ncrc
carltcr cquatcd to JEs Thc Fcdcration dcmands that JEs should bc git cn
thc initial pay scalc of Rs 2000-3200 i n prcscnt tcrms

I Imr-h1>loId Thc timc-bound pay scalcs awardcd to JEs of CPWD should bc cstcndcd
kr&r p vscah to all JEs Following timc bound pav scalcs bc granted in prcscnt terms -

Initial Pay Scalc RS 2000-3200

Aftcr 5 ycars of scnwc Rs.2200-4000
Aftcr 12 ycars of s c n x c Rs 3000-4500
Aftcr 17 years of s m i c c Rs 4 100-5300

Thc Fcdcration would also suggest grant of a running pay scalc

for Diploma EnginccrdJunior Enginccrs.

:ldversrrrnpac! of - Implcrnentation of cadre rcvicw proposals in respect of Group A' posts

Group :-I * Cadre results in reduction of Group 'A' posts at the lowest level, advcrscly
Rersen
affecting the promotion prospects of Group ' B officers and consequently
of the Group 'C' enpeers. Periocfic cadre reviews in respect of Group ' B'
posts and of Group 'C' JEs should also be undertaken simultaneously

Quota in Group For promotion of JEs 80% posts of Assistant Engineers should be filled
:1 'posLs up on the basis of seniority and remaining 20% by Limited Departmental
Competitive Examination (LDCE).

Further 50% posts of Executive Engineers should be reserved for Diploma

Engineers (promotion from AEs to EEs)

Thirty (30%) percent posts of Superintending Engineers should be

reserved for Diploma holder JEs (promotion from EEs to SEs).

L'nijom Service There should be common senice conditions for Diploma Engineers all
Condiiions and over the country in respect of their pay scales, designations, promotion
Ilesipratrons
prospects, status, etc.

Diploma Enginccrs should be designated as Junior Engineers in all

dcpartmcnts including Rail\\ a! s. MES, etc

Junior Enginccrs should be givcn gazcttcd status at initial l c \ d as in

Bihar. Maharashtra, UP, Assam Go\ts grant this status aftcr 5 \cars of
SCI1'lCC

Ncccssary financial and administrativc powcrs likc granting Icavc to

cmployccs, sanctioning of cstimatcs, purchasc powcrs should bc g n cn to
J Es

5 73
 ' ~ w l l l l l ~ ~ tJ/
l l / 1/11.
\ j()2, Wc ha\ c rcccivcd coiiiiiiciits from major Miiiistrics and
" l t l l \ ~ r ' l ' \ "'I
Dcpartmciits 011 thc pa! scalcs of DiplomidJunior Eiigiiiccrs
I )l*l#rclrlclc( 1 1 1/11'
l~tdmi/ioii
Thc Miiirstq of Urban Affairs and Emplo!iiiciit has rccoiiiniciidcd that llic
pa! scalc of Junior Enginccrs at cntn Icvcl bc thc rcplaccnicnt scalc 01
Rs 2000-3200 and thc.scalc of Assistant Enginccr bc grantcd after scnm
of I0 !.cars

Thc Ministry of Ralways has rcconimcndcd a highcr pay scalc as thc scalc
of Rs 1400-2300 is also thc pay scalc of Mastcr Craftsman and Mistrics.
nho form thc fccdcr gradc for promotion to thc post of Tcchnical
Supcn isor Thc Ccntral Admi~strativcTribunal, Ncw Dclhi has dircctcd
Railways to rcfcr this casc to thc 5th CPC

Thc Dcpartmcnt of Tclccom has proposcd a highcr pay scalc for JEs than
that of Dman gradc I (Rs.1600-2660) as thc lattcr works undcr thc Junior
Enginccrs

Militan Engineering Scnicc, Ccntral Watcr Commission and Ccntral

Elcctricity Authority have recommended thc pay scalc of Supcrintcndcnt
(Buldmg&Roads) (B&R) and (Elcctrical and Mcchanical) E&M gradc I
and 11 and the JEs to be given thc samc pay scalc as thc JEs of CPWD

Ow 50.23 We have carefully considered the dcmands of thc Fedcration and

rcconmrc.tldnrio'ls
the views of the administrative Ministries/Departmcnts in the light of our gcncral
approach on the pay scales of different professional/technical groups of staff and
existing relativities between technical and non-technical categories. Wc haw. as
a general rule, decided to improve the initial recruitment pay scalc of diploma
engmen in government. We, accordingly, recommend following pay structure
for engineeri.ng subordinate cadres:-

Pay scales Existing Proposed (in present terms)

(Rs4 (W
1400-2300 1600-2660
1600-2660 * 1640-2900
1640-2900 * 1640-2900
2000-3200 * 2000-3500
2000-3500 2000-3500
23 75-3500 2375-3750
2375-3750 2500-4000

* some of thcse arc graduates in enginecring, othcrs arc diploma holdcrs.

50.24 These pay scales will apply mutatis-mutandis for diploma

engineers in different cadres depending upon the availability of specific
existing pay scales. We have also recommended specific pay structure for
different engineering cadres.

~'rfJnllJhiJt1 50 25 Wc have cvolvcd a timc bound Assurcd Carccr Progrcssion (ACP)

,chenrr
Schcmc in gcncral for Ccntral Govcrnmcnt cmployccs This would bc availablc to
Diploma Enginccrs in govcrnmcnt In CPWD. Diploma Enginccrs, prcscntl!

574
 rccruitcd in thc pay scalc of Ks 1400-2300, arc graiitcd highcr pa! scalcs 01'
Rs I Wi-2900 aftcr 5 !cars of scrixx and pcrsonal proiiiotion tc thc pa? scalc of
Rs 2000-3500 aftcr anothcr 10 ycars of scrvicc I n our opinion, it -is not
desirable or feasible to replicate this pattern of time-bound higher pay scale
and personal promotion in other cadres due to following reasons:-

1) This would dc-link altogcthcr thc availability of posts for timc-bound pay
scalcs and pcrsonal promotion as in CPWD

ii) Total dc-linking of posts and higher pay scaldpcrsonal promotions would
disturb thc misting cadrc structurc whcrcin posts arc availablc at diffcrcnt
Icvcls as pcr functional rcquircmcnts

iii) Non-availabilityof posts in a CPWD likc situation would make it difficult

to work provisions of proposcd Assurcd Carccr Progression Schemc.

iv) The cadrcs which at prcsent havc functional posts at different levels may
bc put at a dsadvantagc wilh rcgard to furlher highcr promotions if ACP
upgradations arc not followcd by rcgular promotions against substantive
posts at intcrmcdiate Icvcls

\) 1 he functional structurc of CPWD which probably does not require posts

of JEs in a hicrarchy may not be suitable for other organisations which
need a hierarchical structurc

Moreover, wc are of the opinion that the provisions of ACP would

obviate the need for introduction of any such scheme.

50.26 We consider the demand for cadrc review of Group ' B' and Group
'C' posts consequent to the adverse impact of Group 'A' cadre review, to be
justified. We recommend that the Government immediately take up all suck
cases with a view to rectifying the adverse impact on Group 'B' and Group
'C' cadres. These reviews, however, will be subject to our overall strategy 01
rightsizing the Government machinery.

Promorion on 50 27 We do not consider it feasible to prescribe a uniform

Seniorigbasis percentage for promotion on seniority basis and by LDCE as demanded, due
to peculiarities of different cadre structures and variation in promotion
patterns noted by us above.
Quola in Group 50.28 Similarly, we consider that the reservation of posts oi
;3 'posrs Executive Engineers and Superintending Engineers for Diploma Engineers
Ursipalions
is not justified on rational considerations.

50 29 The Ministry of Railways has recently changed the

designations of diploma engineers to conform to the common prevalent
designation of 'Junior Engineer'. We have noted and suggested changes in
designations in specific recommendations on different cadres subsequently in
this Chapter. We would, however, endorse the demand of the Federation for
consideration of different administrative Ministries/Departments for
acceptance of common designations of 'Junior Engineer', Assistant Engineer,
etc.
 50 70 In our opinion, the delegation of financial and administrative
powers to Junior Engineers is an administrative matter and must be decided
by individual MinistriedDepartrnents

50 31 Thc Fcdcration has niadc dcniands for Ibllo\+iiig allo\\anccs for

J iiiiior Enginccrs . -

Planiiigg and Dcsign Allo\vancc

Hard Duty Allo\+ancc
Cotnqancc Al loivancc
PrOJCCt Allowancc
Ficld Duty Allowancc

50.32 Our rccommcndations/obscn.ationsarc as under:-

Planning and Design Allo\vancc to EnginccdSub-ordinatc cnginccring

staff postal in CentraVHQs planning-dcsign wing has alrcady bccn rccommcndcd
b\. us

Transport Allowance as proposed by us in general for Central

Government employees would be granted to Diploma Engineers.

Project Allowance at following rates has been proposed by us to be

granted in general to all eligible Central Government employees:-

Pay Range (Revised pay scales) Project Allowance

CRs4 Rs. per month
Below 3000 150
300 1-4999 300
4500-5999 450
6000-8999 600
9000 and above 750

This would cover Diploma Engineers as well.

We do not consider demands for other allowances to be justified.

DRAWING OFFICE STAFF

50.33 The Dra\+ingOffice Staff includes Draftsman, Dcsign Assistant.

Tracers. etc The pay scale-wise brcak-up of posts of Drawing Officc staff in
major Ministries/Departments is as under:-

')5(1- IYX)
'175.1 5JIl I'racer 'IraLcr 'rraccr 'I'raccr 'I racer
(1'1) (43) (276) (141) 111) 54')

576
 I Yman
( i r 111
(h')?)

I Yman IYman
Gr I Cir 1
( I 57X) (223)

('hid Chief
lYmM Estimator
(254) (8) 336

Chief
Wman
(1) I

'I-echOficer
'A
(74)

Tohl 120 973 452 2511 2020 358 1378 395 8147

PAY MINOF MINOF MINOF MINOF MISOF MINOF RLYS TOTAL

SCALES W R S&T POWER AGR SLRFACE C O W -
(Rs) TPT NlCATlON
825-1500
950-1400 l
TWman
6)
975- I 540 Dman (S) Tracer Tracer
Gr IV (16) (13) I77
1200-1800 Dman (5)
Gr Ill
1350-2200 IYman(S)
Gr 11 ( I 330) (5)
1200-2040 Wmm Wman Wman Wman Wman ArSct0m.n
or III GrlIl GI III Gr 111 Gr III
(62) (34) (23) (18) (1120) 1257
13202040
1400-2300 Wman
Gr II
(326) 1954
1400-2600 WlllM
Gr I(207) 207
1600-2660 Wman Wman Wman Wman Wman HcadWman
r I (244) Gr I(80) Gr I(2) Gr I(26) Gr I(64) (i-400) 1816

16102900 H u d Dman
(2) 2
2000-3200 Head D ~ M Head Chief Chief
Dman Dman Dman
(1) (25) (8) (1960) 2332
2000-3500 mice
Surveyor
(359) 359
2375.3500 (I)

Total 633 1896 245 48 118 408 5600 8948

Grand Total 17.095

(*) 40% Posts of the Chief Draughtsman

($) Combined strength of 1330

: 577
/'ctj' S('U/l'.C I !I' 5 (). 3 4 Thc 3rd CPC rcduccd largc nunibcr of pay scalcs and
I )rq/i.vttlw rccommcndcd following fix pay scalcs for Draftsman:-
.Irhifrcthoti
.4 word I .cvcl Pay Scalc(Ks.) Qualilication tor Ilircct Recruitment

I 260-430 Matric plus onc ycar's scrvicc

I1 330-560 Matric plus 2 - year diploma 111 drallstnanship or its
cquiviilcnt.
111 425-700 Matric plus 3 - ycar diploma in cnginccrine or its
equivalent.
IV 550-750 Ikgrcc in cnginccring or its cquivalcnt
V 700-900 Ikgrcc in cnginccringor its cquivalcnt with cxpcricncc.

50.35 The Draftsmen of Ihc Central Public Works Department (CPWD)

dis-satisfied with the pay scales for Draftsmcn, exprcsscd their grievance and the
matter was referred to the Board of Arbitration. The Board awarded the pay scales
of Rs.330-560, Rs.425-700 and Rs.550-750 instead of the then existing threc
scales of Rs.260-400, Rs.330-560 and Rs.425..700to Draftsmen in the CPWD.
The Ministry of Finance issucd orders for general implementation of the Award in
1984. In some departments the posts of Headsenior Draftsmen in the pay scalc
of Rs.550-750 existed prior to the Award, The implerncntation of the Award.
therefore, brought the Draftsman Grade I to the same scalc of pay as that of the
promotion post of Headsenior Draftsman in Rs.550-750. The Fourth CPC only
recommended replacement scalcs of pay for Draftsmen. The Associations of
Drawing Office Staff have brought to our notice the anomaly created by the
implementation of the Arbitration Award.

50.36 We find that in most of the departments, Matriculates with 2 -

year diploma in draftsmanship are inducted in the pay scale of Rs. 1200-2040. In
some departments, enginGng diploma holders are recruited in the cadre in the pay
scale of Rs.1400-2300. The highest promotion grade generally available at present
is Rs.2000-3200. There q e exceptions to this general pattern - the entry grade
in Survey of India, for instance is Rs.975- 1540 and the highest grade available is
Rs.2200-4000under the Ministries of Defence, Water Resources, Agriculture and
Mines. The Associations of Drawing Office staff have brought following more
facts and made demands for our consideration:-

Demand There is no uniformity in the designations and promotion prospects of

Draftsmen in different Ministriedhpartments.

Consequent on the implementation of Award of Board of Arbitration,

certain percentage of posts in Directorate General of Quality
Assurance/Defence, Research and Development Organisation (Ministry
of Defence) which were in the pay scale of Rs 2000-3200 have been
upgraded to Rs 2375-3500 as selectim grade posts Similar selection
grade posts bc created in othcr departments

In many officcs/departmcnts. the post of Draftsmen are isotatcd, with no

highcr gradc posts for promotions. Such posts in diffcrcnt dcpartrncnts
may bc mcrgcd to form a cadrc for irnprovemcnt in promotion prospccts

Thc cligibility pcriod prcscribcd for promotions to ncxt highcr gradcs in

diffcrcnt dcpartmcnts is not uniform.

578
iii/i,r-i),,j),ir/iiii,ii/ j ( )3 7 Wc constitutcd and coin ciicd an iiitcr-dcpartmciital group lo
,It IrImjJ coiisidcr thc problcnis and issucs raised b\ tlic Associations of Drawing Office
Staff Rcprcscntativcs of 2 0 Miiiistrrcs/Dcpartiiiciits participakd I I I thc
dclibcrations of thc group Bascd on thc discuss~ons111 thc riitcr-dcparlniciital
goup and gcncnl pnnciplcs of pap dctcrmiiiation cnunctalcd b\ us. we make the
following recommendatims for Draftsmen:-

There should be identical pay scales for posts with identical

recruitment qualifications. Specific requirements of individual
departments may be taken care of by the respective administrative
ministries, which may, if justified, prescribe pay scales different from
the general pay scales recommended by us below.

i i) Introduction of an additional pay scale of Rs.2375-3500should be

decided by the concerned departments themselves on the basis of
functionaljustification for posts in this scale and keeping in view the
existing horizontal relativities of Draftsmen with other categories of
employees.

iii) Graduate engineers recruited against posts of drawingfdesign office

should be placed in the pay scale of Rs.2O00-3500in present terms.

iv) There should be uniform eligibility criteria for promotions in the

cadre of Draftsmen. The first promotion after recruitment may
preferably be considered after 3 years of service as already existing
in a number of departments.

There should be uniformity in designations and pay scales. We

recommend the following.
Existing Designation Existing Revised Designatioo Revised Direct Recruitment Qualification
Pay Scale Pay Scale
(Rs.) (in present
terms) (Rs)

Draftsman Grade 111 1200-2040 Draftsman Grade 111 1320-2040 hlatric + 2 yrs Diploma in drafts-
manship or equivalent
Draftsman Grade 111
Senior Draftsman 1400-2300 Draflsman Grade 11 1600-2660 Matric or '10 + 2' + Diploma in
Engineering or equivalent
Draftsman Grade I/
Head Draftsman 1600-2660 Draftsman Grade I 1640-2900
Chief Draftsmad
Chief Estimator 2000-3200 Chief Draftsman 2000-3500 Degree in Engineering or equivalent

In organisations where the pay scale of Rs.2375-3500 is

available at present, the revised pay scale of Rs.2375-3750is recommended
for such posts in present terms.

(vi) All the Ministries/Departments except the Ministry of Surface

Transport have opined that the posts of TracerdFerro-Printers are
no longer required. These posts are presently in the pay scales of
Rs.975-1540or Rs.950-1500. We recommend that these posts be
phased out since most of the departments have dispensed with tracing
and ferro-printing functions. The Ministry of Surface Transport may
consider retention of posts for some more time if absolutely

5 79
 necessary.

(vii) We have received suggestions that to motivate young Draftsmen to

go for training in computers, certain incentive in the form of special
pay be given on successful completion of training and to those
Draftsmen who actually work on computers. We have not, as a
general norm, favoured the idea of incentive in the form of special
pay tQ those who learn and work on computers in government.
However, we consider it desirable that all departments impart
computer training to Draftsmen for using computer software like
Computer Aided Design(CAD) and Computer Aided Manufacture
(CAM).

50.38 Wc havc madc gcncral rccommcndations on issucs raiscd by

Fcderations of Group 'A' cnginccrs and Diploma cnginccrs Wc havc also
delineated a comparative position of recruitmcnt and promotion pattcrns of
different engineering cadrcs. We now propose to discuss thc peculiar, individual
problems of diiferent services During the coursc of this cxamination, we have
suggested a few upgradations of posts in specific cases to underline the urgent
need to improve the career prospects in these services. This should, however,
be taken as a symbolic gesture on our part and should in no way be construed
as an exercise of 'cadre-review'. We have also traced the subordinate service
linkage of each individual engineering service and have suggested
introduction of certain pay scales. In some of these cadres the pay scales of
Rs.164O-29OOand RS.250-4OOO have been recommended to be introduced
within the general framework worked out above, in order to have a more
gradual progression and broad uniformity in the pay structure of different
cadres. The posts in such cadres have been proposed to be divided in the
ratio of 50 :50 at the level of R~.16OO-2660/RS.l640-29OO as also at the level
of Rs.2000-3500/Rs.2500-4000. This should be done by individual
departments, where we have not done so. Such bifurcation is necessary to
give the benefit of fucctional promotion. For Group 'A' posts we recommend
pay structure identical to Group 'A' Civil Services posts recommended by us
in the relevant Chapter.

MINISTRY OF URBAN AFFAIRS AND EMPLOYMENT

i> Central Engineering Service(CES)

JTS STS JAG NFSC; SAG HAG

%ageoftotal 10.57 58.77 16.28 9.94 4.12 0.32

Duty Posts
Threshold as
on 1.7.1995 - - 1975 1968 1965 1961

580
 II) ‘Ihc Ccntral Electrical and Mcchanicsl Engineering Scn,icc

JTS STS JAG NFSG SAG HAG

‘%,~scof total duty

posts as on I .7. I995 9 43 61 79 25.04 - 2 83 00

Threshold as on
1.7.1995 - - 1976 1967 1967 Nonc

iii) Thc Architectural Cadrc

JTS STS JAG NFSG SAG HAG

‘%agcoftotal 31.39 48.84 11.63 5.23 2.32 0.58

duty posts

Threshold as
on 1.7.1995 - - 1977 1975 1964 NA

50.39 The break-up of posts in thc scrvices and threshold for promotions
to highcr posts havc becn notcd above, The Association represcnting Central
Engneering Service has brought to our notice the unprecedented stagnation at the
Senior Time Scale(STS) Junior Administrative Grade(JAG) and Senior
Administrative Grade(SAG) levels. They have suggested introduction of
time-bound promotions upto Higher Administrative Grade (HAG) through batch
parity with officers of All India Services and Group ’A’Central Services.

50.40 We find that a very hgh percentage of posts (58.77) in STS is due
to provision of 50% posts at this level for promotion of Group ‘ BAssistant
Engineers for most of whom this must be the culmination of their career. The
threshold levels of promotion present a dismal scenario for the Service. We have
been informed that 4 more posts of -4dd1tionalDirector General (ADG)(HAG) and
13 posts of Chef Enpeers(SAG) in addition to some posts at JAG level are now
available after approval of latest cadre review proposals in 1995. This is expected
to improve the career prospects of the Service. In addition, the general scheme of
ACP upto NFSG would provide further relief to the cadre.

50.4 1 The number of Group ‘A’ posts of Engineers (other than Project
Team) in CPWD depends upon work-load n o i s for creation of Divisions. The
project posts would further depend on the nature and value of projects offered to
CPWD for cxecution. The improvement in career prospects of the Senice would
thus depend a great deal on thc increase in number of divisions and projects.
However, following recommendations are made in accordance with the general
approach discussed above to provide some relief against stagnation to Group ‘A‘
organised services:-

Ow 1) We do not find any merit in the demand for time-bound promotions

ri~cc)t~~~t~~~
5 .t~dn~ioti
upto HAG posts.

58 i
 ii) Two of the existing six posts of Additional Director General in the
pay scale of Rs.7300-7600 be upgraded to the pay scale of
Rs.7600-8000in present terms.

iii) The post of Chief Engineer(Training) in the pay scale of

Rs.S9006700be upgraded to the level of Additional Director General
in the pay scale of Rs.7300-7600.

iv) The post of Joint Secretary(Works and Administration) in the

Ministry of Urban Affairs and Employment should be filled by an
officer of Central Engineering Service Croup 'A', in order to assist
the Secretary (Urban Development) who shall continue to be the
Cadre Controlling Authority.

50.42 The Central Public Works Department (CPWD) has made some
Sfc~rr'n'e'tditt~
suggestions as noted below for our consideration:-
l:'tt@r.er wid1
I.)ept~pIttspzctor
(;ctrtwl of i> To compensate enginccrs for extra timc taken to acquire enginccring
t~l~lict~llll~~, qualifications compared to an ordinan. graduatc dcgrcc, it is suggested
that the Central Enpccring Service Officers be given two ?cars antc-date
\ is-a-vis the officers joining All India Seniccs and othcr Non-tcchnical
Services.

ii) The pay scale 01 the buperintending Enginecr should be equal to the pay
scale of the DIG of Central Para-Military Forces (Rs.5100-6300), in view
of well established parity of equivalence of the Superintending Engincer
with the DIG of Police and the Commissioner in States and that of the
Exqutive Engineer with Superintendent of Police and District Magistrate.

iii) A selection grade be introduced at the level of Executive Engincer (STS)

and abolished at the level of SuperintendingEngineer (JAG).
'Viewsdlhe 50.43 The Ministry of Urban Affairs and Employment has not endorsed the
Ministry
suggestions of the CPWD, made above. The Ministry has suggested that the
existing equivalence of posts in the CPWD, namely Director General of Works to
be equivalent to Secretary to Government of India, Additional Director General to
be equivalent to Additional Secretary and Chief EngineedChief Architect to be
equivalent to that of a Joint Secretary and Superintending Engineer to be equivalent
to Deputy Secretary/Duector should be maintained, The Ministry further maintains
that there is no need for a selection grade at the level of Executive Engineer (STS)
and abolition of selection grade at the level of JAG. The Ministry has not given
any opinion on other suggestions made by the CPWD.
Our views and 50 44 We have examined the suggestions of the CPWD in the light of
recomntenalron %
the fact that barring a few cadrcs, most of the engineering Group 'A' cadres have
an inkiface and relativities wth other Group 'A' Central Civil Serviccs We do not
consider it feasible to recommend different patterns of pay scales for Ccntral
Scrvices (Technical and Non-Tcchnical) for this reason The pay scales
recommended by us for Group 'A' Services in general, therefore, will be
applicable to Engineering Services as well. We also endorse the views of the
Ministry of Urban Affairs with regard to existing equivalence of posts in the
CPWD.

582
 5 0 45 Wc would, howvcvcr. lihc to mahc an cvccption onl\ in thc casc of
SupcnntcndingEnginccrs It is a fact that thc Sccond CPC had alrcady cstabllshcd
a parity bd\\ccn Supcrintcnding Enunccrs aid Conservators of Forcsts by granting
thcm both thc scalc of Rs 1300- 1 HOO This parity was ccmcntcd furthcr b! thc
Third CPC which obscrvcd that “For thc post of Conscrvators of Forcsls we
rccommcnd dic scak which wc havc tccommcndcd for Lhc Supcrintcnding Enginccr
gradc of thc Ccntral Class 1 Enginwring Scrvicc VIA. Rs.1800-2000 For thc
sclcction gradc or Conscrvators of Forcst. thc samc Commission statcd that ”a
scliction gradc of Rs 2000-2250shuld bc introduced for thi: Conscrvator of
Forcsts, on thc samc principlcs as rccommcndcd for the Sclcction Gradc in thc
Ccntral Class I Enginwring Scrvicc ” Bct\vccn the Third and Fourth CPCs. thcrc
was an upgradahon of thc first gradc for CFs to Rs. I 800-2000.Subscqucntl!, thc
Fourth CPC mcrgcd the scalcs of Rs.1x00-2000and thc Scloction Gradc of
Rs 2000-2250and gave CFs thc singlc functional scale of Rs.4500-5700 The
samc treatment in spuit was u n f m a t c l y not accorded to the SEs who wcrc givcn
a JAG of R~37OO-500Oand an NFSG of Rs 4500-5700 Taking into account the
significant role of engineering scrviccs in the nation-building process and the fact
that thc promotion prospects in cngincering cadrcs are rather bleak, we
recommend that the NFSC of Rs.4500.5700 should be converted into a single
functional scale for Superintending Engineers and the scale of Rs.3700-SO00
should instead be the non-functional JAG for Exe.Engineers. However, in
order to avoid too fast a rate of promotion in certain cadres to this grade, it
is further recommended that promotions to the scale of Rs.4500-5700 would
be permitted only on completion of 13 years of service in Group *A’.
Although the above recommendation is being made in the context of CPWD
engineers, it is clarified that this dispenstion will be available to all
Engineering cadres in the Government.

50.46 We find that the average age of entry into Central Civil
Services and engineering Services is the same. We, therefore, do not accept
the suggestion to grant 2 years’ ’ante-date’ to Engineering Service officers.
Electrical and 50.47 The Electrical and Mechanical Engineers of the CPWD have
Mechanical represented to us that the W t o r a t e of the CPW3 is insensitive to the aspirations
Engineers of
CP112) and career problems of Electrical and Mechanical Engineers. The association of
these engineershas alleged that despite phenomenal increase in their work-load and
the contributionof Electrical and Mechanical Wing (E&M Wing) in several fields
of highly specialised nature, the E&M Wing is discriminated against in respect of
creation of posts based on accepted work-load norms and manning of senior
management level posts (ADG and DG) of the department.

50.48 Thc CPWD administration, on the other hand, has contested the
claims of the association and has submitted the following for our consideration:-

1) The role assigned to and expected from the CPWD in the government set
up is that of a body responsible for construction of civil works and
buildings, which neccssarily rcquires a pre-dominant civil cngincering
input.

ii) Thc Ccntral Elcctrical and Mechanical Enginccring Scrvice (CE & MS)
was all along considcrcd to bc a support service in the role assigned to’the
CPWD.

5 83
 iii) In most of thc sophisticatcd iiistallatlons. thc job of' Elcctrical and
Mcclianical Wing compriscs of purchasc of proprictan. or ncar
proprictay. high cost full!. factory asscmblcd. or ncarl! full! factor!
asscniblcd, installations Thc i\orh-load dcfincd for an clcctrical dit ision
is nomially laid do\vn on thc basis of normal routine clcctrical norhs lihc
wring NO&. hich. at b a t constitutcs about 20% of the building cost, and
\I hich ncccssarily demands a widcr jurisdiction and a morc spread-out
uorh fgr an clcctrical division

50 49 Wc haw considcrcd thc issucs raiscd by CE & MS in thc contcvt

of our gcncral ansicty for rcdcfining thc norms for creation of cstablishmcnt in
construction agcncics in gcncral and our appraisal of CPWD worhs lihich \\c hai e
sccn during thc coursc of our visits to various installations and projccts

50 50 We are of the firm opinion that the general management posts

of ADG and DG should be available to all eligible officers o f CPWD
irrespective of their Service This has aircady been incorporatcd in thc
Rccmtmcnt Rules on thc rccommcndations of Ranganathan Committce sct up in
I976 In fact. DGXPWD during official cvidence bcfore us informcd that HAG
p s t s arc a\rulablc to eligible E&M officers of CPWD and no E&M officer could
bccomc ADG so far for want of eligibility qualifications The latest cadrc re\ iev
has projidcd 4 more posts of ADGs It is, thercforc, hoped that thc cligible
Mechanical and Electrical officcrs of CPWD will bc clcvatcd to HAG posts
without any bias or favour, on merits The Ministry of Urban Affairs and
Employment must ensure that there is no discrimination against E&M
officers in this regard.
Nbrk load 50.51 An Inter-Departmental Committee on work-load norms in
.\bmrs: Engineering Construction departments was constituted at our instance. This
Iitter-Departmetrr
a1 Comniittee
Committee has noted the following about CPWD:-

"C.P.W.D. is a department of Central Government operating

through out the country and responsible for construction of all works and
maintenance and repairs of all buildings financed from
Civil- Works-Budget of Central Government. Execution of works and
maintenance of Central Government buildings is done by the divisions of
the C.P.W.D. The C.P.W.D. have Civil, Electrical and Horticulture
Dwisions and Architectural units. On Civil side of the C.P.W.D., there are
i) Construction Divisions, ii) Maintenance Divisions and iii) Mixed
Divisions - undertaking construction of works as well as maintenance of
esisting Govcrnmcnt buildmgs. In 1965 or so C.P.W.D. declared someof
thc divisions as Strengthened Divisions. The Strengthened Divisions were
sanctioncd additional staff and the Executive .Engineers were givcn
chanced financial powers. Up till 198849, out of 123 Civil Divisions of
C.P.W.D. 107 Divisions have been dcclated Strcngthened Divisions. Thc
Dii.isions of C.P.W.D.arc hcadcd by an Exccutivc Engincer.

At thc instancc of Committec of Secrctanes. thc study of

C P W D WIS undcrtakcn by Staff Inspection Unit (SlU) so that thc staff
can be rcduccd in a timc bound manner or ncw seniccs undcrtakcn
without incrcasc in staff strength

584
 Thc rcquircmcnt of Euccutn c Enginccrs. Assistant Engiiiccrs and
Junior Enginccrs is bascd on thc basis of actual workload pcrfoniicd b!
thc divisions Similarly thc nianpo\vcr rcquircnicnts of corrcspoiidcncc
branch, accounts branch and drawing branch is bascd on thc basis of
actual work pcr formcd by thc di v i s ions

Bcforc thc commcnccmcnt of SIU study a suggcstion was madc

to cxaminc h e fcasibility of changing thc cxisting financial output norms
to physical paramctcrs It was found that thc financial parametcr IS thc
only useful paramctcr for dctcrmining thc pcrformancc of a division.

In ordcr to nqutralisc thc cffcct of risc in priccs and inflation.

financial norm is updated by relating it with thc cost of construction indc\:
(C.1 ). This updation is donc at diffcrcnt intervals though no pcriodicit!
has been fixed Thc formula adoptcd by CPWD for updating thc norm is
as follows -

New Norm = old norm (1 + 0.75* (C.I.New-C.l.old)/C.I.old)

SIU team has not been ablc to apprcciatc thc logic followed in the
above formula due to some inherent ncgativc cffcct of rcvision of financial
norm. To obviate this effect SIU has recommended that revision of norm
should be done every year and it should be directly related to the
increaseldecrease in the cost of index on proportionate basis".
Our views
50.52 The Committee in its findings has rightly observed that the
'norms/yardsticks are generally outlay bascd and not on the basis of
worth-of-charge'. It was precisely because of this reason that we had suggested
review and rationalisation of norms which should be need based rather than on
mere outlay for works. Noting recent changes in trends towards engaging outside
agencies for the execution of works and the decision to permit private sector
participation in prdects 'under several ministriesldepartments we had suggested for
this Committee to consider that:-

"- The changed circumstances might even necessitate the adoption of an

altogether new approach, involving creation of only small contract
management cells in Iieu of the full fledged establishment.

- Innovation in technology and methods of financing, adoption of more

exwtious and economical methods of construction, mechanisation etc .
would also have an inevitable impact on manpower requirements of these
departments.'I

The Committee has not examined these issues and no specific

rccommendations in this regard have been made.

Our 50.53 We recommend that the government reviewlrationalise norms

reconmrerIdurrons~
in accordance with worth-of-charge and current developments indicated
above rather than create establishments on the basis of physical outlay for
works. ' But so long as the existing norms continue, Electrical & Mechnical
Wing of the CPWD should not have any cause for grievance as expressed in
their demands. The Ministry of Urban Affairs must look into this with a view

585
3VH 3VS 3SdN 3 V f SLS SLf
I ~ < ~ f l l , l(l1l1~h*
f 50 50 Tlic AsscXiation ol' ('t3S( Roads) ( h u p ' A ' I I ~ ; ~ I I I ~ ~I11;lt
I I I ~ thc
S
I\\~l~ltltl~l~l I3ginccrs arc king trcatcd as aiicillanfto tlic gcncralist adiiiinistration and arc not
bciiig allowcd to cuploit thcir talent t o the optimunl cvtcnt l'hc Asstxiaboil.
tlxrcforc. fccls that the Enginccrs arc tlius rcduccd to an iiifcrior statils/catcgon
conipivcd lo gcncrdds aid that thc prcsciit social and adiiwiistrativc ctlios should
undcrgo radical changcs and thc v c v basis of dctcniiining rclaiivc structurcs. both
\ crtical and horimntnl must bc rc-cuamincd

Thc Associationhas submittcd following dcinands for our coiisidcration -

Thc posts of Dircctor Gcncral (DG. Road Dcvclopmciit) and Additional

Dircctor Gcncrai (ADG) should bc cncadrcd for Ccntral hginccring
Scrviccs(Roads) and DG, ADG and Chrcf Enginccr should bc gixn
cx-officio status of Sccrctan,. Addi tional Sccrctaq and Joint Sccrclan
rcspcctivcly

A separate dcpartmcnt hcadcd by DG(Roads) as its Sccrctary bc crcatcd

or in thc nllcmativo, BG bc clcvatcd to thc status of a Sccrctan in thc
prcsent sct up.

Timc Scalcs of pay for mcmbcrs of scn'icc

Completc parity In promotion prospccts with othcr Ccntral Scniccs
Provision of triennial cadrc Rcvicws
Placing of PSUs and autonomous bodics undcr the Roads Wing under
professionals from thc Servicc

A unified Civil Scmicc limiting the numbcr of grades to 22 or 24 should

be created and no posts should bc esclusivcly rcsencd for specified
catcgorics. Jobs at policy formulation Ic\& should bc madc availablc
strictly on the basis of talcnt arid cspcrtisc.
OW 50.57 We have considered the demands of the Association and make
recommrnda~rwis
the fallowing observations/recommendations:-

We consider the demand for encadrement of the posts of ADGs and

DG(Roads) for Central Engineering Service(Roads) justified. We
accordingly recommend that tibe posts of DG(Roads) and ADGs be
encadred into the Service. Further, the pay scale of DG(Roads) be
improved from existing Rs.7'300-8000to Rs.8000(fixed) in present
terms with the status of ex-offficio Special Secretary to Government
of India.

The demand for a separate department is primarily due to the

perception of Specialist Engineers having a secondary role in
decision-makingvis-a-vis 'Civil Servants in the Ministry. That being
the present system of administration, no change is called for. We do
not think that the proposed creation of a separate department is
justified on merits. O u r gtmeral recommendations on time scale of
pay under ACP Scheme would be applicable to the Service.
 We have discussed the issue of parity in promotion prospects of
Technical Services with the Central Civif Services separately in the
relevant Chapter.

We find that the last cadre review for the Service was done in 1986.
Next review is overdue. The Government may initiate necessary
steps to finalise the cadre review immediately.

50.58 We have discussed Ihc pay scalcs of Projcct Computcrs in thc

Roads wing in thc Chaptcr on thc Ministry of Surface Transport: The
recommended pay scales for Project Computers and other feeder subordinate
engineering posts have been indicated below:-

Ih?ignlrrinn Pay Scale (Ks.)

Existing Proposed Remarks
( in present terms)
I'rcjcd Computer. Ihatlsman Cirade I1 1400-2300 1600-2660 As for other diplonia holdcra
llead Project Compyta. Draftsman Grade I 1600-2660 1640-2900 Sex? higher scale
C h i d Ihaftman 2000-3200 2000-3500 Ratimalizcd scalc
;batatant Engineer 2000-3500 2000-3500 :IrFislant Engineer Grade I I
.
8000 DR 2000IateraI niovc-
mcnt of Chief Draftsman
2500-4000 Assishnt Engineer Grade I

MINISTRY OF WATER RESOURCES

MINISTRY OF POWER

Central Water Engineering Service (CWES)

JTS STS JAG NFSG SAG HAG

% age share of
totalduh posts 38.23 34.39 13.40 8.99 4.36 0.66
Threshold as on
1.7.1995 - - 1979 1971 I964 1962

Central Power Engineering Service (CPES)

Demands of the JTS STS JAG NFSG SAG HAG
Association

% age share of I I
total duv posts 32.65 38.96 20.59 6.49 1 30*
Threshold as on
1.7.1995 - - 1975 1972 1965 Nonc
(* Not encadred)

50 59 The ASsociation representing Watcr and Power Engineers has

cmphastsed the key role ofthcsc engineers in the planned sustainablc development
of thc national cconomy and highlighted thc dismal scrvicc conditions and carccr
prospccts Thc Association has suggcstcd crcation of an All India Scrvicc of
Enginccrs LOprovidc a cohcsrve forcc for efficient and cffcclivc managcmcnt of
atcr resources scctor and a modcl cadrc smcturc for Group A' Scwiccs as s h o n~
bClo\\ -
 Grade I'erccn(agc of posts

Highcr Admiiiist rat ivc <; radc( HAG) i

Sciiior Adiiiinistratitc Ciradc (SAG) 15
Juiiior Administratit c Gradc (JAG) 20
(including sclcctioii gradc)
Scnror Tinic Scalc (STS) 30
Junior Timc Scalc (JTS) 30

Thc Association has furthcr highlighted the problcms of

stagnation in Scniccs and dcniandcd parity of promotion prospccts with Cciitral
Group 'A' and All liidia Scniccs

50 ( J o Wc havc also becn infornicd that thcrc arc largc numbcr of

acancics in thc cadrc oftvaicr cnginccrs duc to dcla: in convcning DPCs and that
thc rccruitincnt and rctcntion ofcnginccrs in thc Junior Timc Scalc of CPES IS a
scrious problcm duc to unattractivc carccr prospects m thc Scrvicc

Our 50 61 Wc hate recommcndcd a bcnch mark Modcl cadrc structurc in

r P c l ~ l l l l ~ l l ~ t l d l l l\l w I
gcncral for all Group 'A' Scnwcs This would bc applicablc to thc CWES as ncll
Dclays in convcning DPCs and a largc number of 1 acancics ( 150) ks a vcn. scrious
matter We recommend that all vacancies be filled on a crash basis within a
period of 6 months

50 62 While some Engineering Services have a Centre-State

interface, majority of Services are only Central Services. In our opinion, it
may not be practicable or feasible to create an All India Service for Water
Resources Sector alone. However, there is certainly a case for an all India
Service of Engineers for some common categaries, as mentioned earlier.

50.63 Group ' B officers of the Central Water Commission designated as Extra
Assistant Directors in Headquarters and Assistant Engineers in the- ficld
sub-divisions have brought to our notice that despite being the real working Icvcl
in the Commission, their promotion prospects which were already bleak have
further worsened due to Group 'A' cadre reviews. They have pointed out that the
following ratios exist bctwccn diffcrent grades in the Engineering cadres of the
cwc:-
Grades Ratio

Group 'C' to Group 'B' 2.6: 1

Group 'B' to Group ' A ' 3.5: 1
j-rs to STS 1.1 : 1
STS to JAG 1.5: 1
JAG to SAG 40: 1

50.04 Thc Group 'B' (Gazcttcd) Engincering Cadrc cornpriscs posts of

Extra Assistant Dircclor/Assistant Enginccring in thc pay scalc of Rs.2000-3500
This cadrc providcs tcchnical support to thc Group 'A' officcrs who protidc thc
main tcchnical manpowcr for thc Commission at Scnior Icvcls. Thc Group '9'
officcrs arc proniotcd from thc lcvcl of Junior Engincers, Design Assistants and
Hcad Draftsmcn having requisite qualifications. As pcr thc rccruitmcnt rulcs for
 thc post of tktra Assistant Dircclor/Assistant finginccr.tllc vacancics 111 the cadrc
arc fillcd in tlic ratio of 5O:SO bctwccn graduatcs a i d diploma holdcrs lion1 rhc
I'ccdcr (Group 'C')cadrcs

5 0 65 As pw thc existing rulcs, 40% of thc intakc to thc Group 'A' junior
Drcctors) is by promotion from Group 'B'. Thc balancc 00%
tiinc scalc (Assistant
is direct rccruimnt through Union Public Scnicc Commission. The Grovp 'B' is
a singlc gradc acmicc whcrcas Group 'A' cadrc is a multi-gradc scrvicc from
Assistant Dircctor right upto Mcmbcr of thc Commission. Thc Ccntral Watcr
Commission had constitutcd a Cadrc Rcvicw Committcc hcadcd by Chairnian.
Ccntral Watcr Comniission to rcvicw thc cadrc of Group 'B' Enginccring Officcrs
Thc broad ~crmsof rcfercncc of thc Committcc wcrc to csaminc the csisting
promolion opporiunitm to thc cadrc, to suggcst modifications. if ncccssarl\.. in thc
rccruitmcnt rulcs 'kccping in view thc special rcquircmcnts of Ccntral Watcr
Commission and its ficld formations.

50.66 We understand hat the neccssar?. cadrc rcvicw for Group ' B' posts
in CWC has alrcady bccn finaliscd and is undcr considcratron of the administrati\ c
Ministn. We endorse the recommendation of the Cadre Review Committee
for enhancing the promotion quota of Group 'B' posts in Group 'A' JTS
from existing 40% ;o 50%. In addition, we recommend a time-bound crash
programme for filling of vacant Group 'A' posts within 6 months. This
would, in addition to ACP scheme recommended by us, provide necessary
relief to Group 'B'engineers.

CENTRAL ELECTRICITY AUTHORITY

50.67 We have been informed that the feeder posts to thc Group 'B'
posts in the CEA are (I) Technical Assistants(graduates) since rcdcsignated as
Technical Officcrs. (it) JEs(graduates as weil as diploma holdcrs) (111) Head
Draftsmen and (iv) Research Assistants(Engineering) All these feeder categories
are in Group 'C'.Promotion to Group 'B' posts are made in the ratio of 2 1 from
graduate and diploma engineers respectively. There is acutc stagnation in the
Group 'B' cadre. As against the eligibility period of 3 years in the gradc for
promotion to Group 'A' posts,about 90% of the total strength of Group * B' officers
have rendered 8 to 16 years of service in the grade. This has occurred mainl:. due
to cadre reviews undertaken for improving the carcer prospects of Group 'A'
oficcrs, resulting in a reduction in the number of Group 'A' posts at lower levels

50.G8 There are about 38 posts of Junior Engineers in the gradc of

Rs. 1400-2300 and 108 posts of Technical Assistants redesignated as Tcchnical
Oficcrs (TO) in the grade of Rs.1600-2660. Both the categories of posts are fillcd
by dircct recruitment The recruitment qualifications prescribed for the post of JE
is diploma in Engineering, and for that of TO is Degrcc in Engincering.

5 0 69 As pcr the RRs notificd by thc crstwhilc Ministry of Irrigation and

Powcr all thc posts in the scmicc \Assistant Dircctor gradc I I Rs 2000-3500 (92
posts)J \ w c to bc fillcd by promotion, and thc fccdcr posts for purposcs of
promotion to thc sen icc arc.-

Tcchnical Assistants(Enginccring) 108 posts Rs. 1600-2660 (rcdcsignatcd

as Tcchnical Officcrs).

590
 Rcscarcli Assislants (No1 csistiilg i 1 m )
Supcnisors ( 3 8 posts) Rs 1400-2300 (rc-dcsrgiiotcdas JU)
Hcad Drauglitsman (25 posts) Rs 2000--320(1
t )nr 5 0 70 Thc pa!* scalc of Junior Enginccrs IS proposcd lo bc impro\ cd 111
W Ctt
gcncral from thc csrsting Rs 14OO-23OO10Rs.I6ot)-2660. A second pay scale
~nlll,~lt~fll~l~~~l.\

of Rs.1640-2900 is proposed to be introduced for Junior Engineers to

conform to the general pay structure proposed for this category. The
Technical O6eers being graduate engineers should be granted the pay scale
of Rs.2000-3500and Assistant Directors Grade 11that o f Rs.2JOO-4OOO.

SO 71 Thc nunbcr of promotion posls (02 posts of AD-11) for JEs. TOs
and Drartsmcn arc adcquald In addition. thc provisions of ACP would proudc
furthcr financial rclicf ti11 rcgular promotions arc madc for thcsc catcgorics

The pay structurc would thus wxkdout as undcr:-

Iksignation Pay Scale (Ks )

iisistinp Hccommended
(in prcscnt terms)

Water and Power

Junior Engineer 1400-2300 1600-2660
1640-2900
Water Resources
I.:xtra Assistant Ihector
Assistant Engineer 2000-3500 2000-3500
~500-4ooOExIra Assistant I)lrector/Asstt l3igg
Gr L7
Pouer
Head Draltsman 2000-3200 2000-35w)
Technical Oficer 1600-2660 2000-3900
Assistant Director Grade U 2000-3500 25004000

MINISTRY OF COMMUNICATIONS

P & T Building Works Service

JTS STS JAG NFSC SAG HAG

I 1
% age share in
total duty posts 15.05 56.57 23.53 4.50 0.35
Threshold as on
1 7 1995 N.A. NA. 1964
/hnltlltd.s OJfhL' 50.71 The P&T Building Works Scrvice Association fccls that dcspitc
..l.c:c.fJcmliotl
cspcrtisc in construction of sophisticatcdand specialiscd works dcvclopcd by PBT
Civil Wing, Ihc dcpartmcnt lacks a propcr sct up to dcal with cable ductingtvorks
and maintcnance and upkeep of Tclccom and Postal Estates. Thc Ass'ociation also
fccls thc necd for crcation of an appropriatc quality assurance orgagisation,
iigilancc organisation and projcct units to cxccutc important and prcstigious

sc) I
 projccts I hc Association accordingly has put forth iollow ing dcmands and
suggcslioiis for our considcration.-

In ordcr to involvc thc mcmbcrs of dic P&T Cn i I Wing i n policy planning,

thc Association has dcmandcd that INO posts of Mcmbcr( Infrastructurc)
and Adviscr(lnfrastructurc) bc crcatcd for tlic scnlicc i n thc Tclcconi
Commission

Thc dipartmcnt of Tclccom is rc-organising itsclf on thc Lonal conccpt

In line with the proposed concept, the head of the civil w n g in each zone
should bc madc Enginccr-in-Chicf \\ho shall be in thc highcr gradc
(Rs 7300-7600) The E-in-C would bc i n ovcrall control of all thc tlircc
disciplincs (Civil, Elcctrical and Architccturc) in thc P&T Civil Wing

To copc with thc largc number of arbitration cascs, thc post of CE

(Arbitration) bc upgraded to a highcr gradc to dcal with intricatc and
complicated arbitration cascs involving disputcd amounts of morc than
Rs I crorc In addibon, thcre should bc a CE (Arbitration) to look aftcr all
othcr disputes in each zone

In ordcr to ensurc better coordination in the ficld units, thcrc should bc onc
CE (Civil) with each Chief Gencral Managcr.

In order to assist the preparation of sophisticated structural dcsigns and

achicvc cost optimisation, a Central Design Organisation should be
created. This Unit should be headed by an officer not lowcr in rank than
an E-in-C (bigher grade). The E-in-C should be assisted by two CEs, one
for design and the other for contract administration with adequate JAG
level officers for assistance. This Unit is proposed to be established on
the lines of the CPWD and Railways which are producing world class
designs and systems in their Central Design Organisations.

In order to meet the training requirements of the Civil Wing there should
be an SAG level officer supported by three JAG level officers in the
Advance Level Telecommunication Training Centre (ALTTC). In
addition, each zone should have a JAG level offker to meet the training
needs of the field units and the freshly inducted staff at the zonal level.

Presedtly, the technological upgradation and practical application of

innovative materials/techniques arc limited to a very small group of
engineers for want of clear cut guidance. There is a need to induct an
officer of SAG level in Technical Engineering Centrc(TEC) and two JAG
level officers for technology.upgradation and standardisation purposcs.
This unit would collect, assimilate and disseminate information about the
new developments in the field of Civil Enginecring. Thesc units will also
act as a data bank and nodal agcncy for interaction and information
exchanges with organisations like Bureau of Indian Standards, Institution
of Enginecrs and Industrial Rcscarch organisations, R&D Units of othcr
dcpartmcnts, ctc.

I iem 5 o/rhe 50 72 Thc Dcpartmcnt of Tclccommunications (DOT) has informcd us

I)l!p<Jr/f~lCll~
that the Civil Wing under the Ministry of Communications camc into cxistcncc in

592
 I063 to plan and csccutc all ci\4 works of thc Post & Tclcgraphs Dcpartmcnt.
Dircct rccruitnicnt of Civil & Elcctrical Enginccrs to thc P&T Civil Wing startcd
in I063 through thc Combincd Enginccring Scrvicc Esamination o f thc UPSC.
Thc Architects \vcrc dircctly rocruitcd through thc proccss of intcrvicw through thc
UPSC. This scrvicc was constitutcd into an organiscd scrvicc callcd "Thc Indian
PdlT Building Works Scniccs" (IPTBWS) with cflcct from 18.4.90, with thrcc
sub-cadrcs viz. Civil. Elcctrical and Architcctural, as thc spccialiscd functions of
thcsC thrcc sub-cadrcs for planning and construction of buildings and othcr
m s t c d infraslructurc works arc intcr-rclatcd and rcquirc close coordination. On
bifurcation of thc crstwhilc P&T Dcpartmcnt in 1985, separate Civil Wings were
constitutal for Dcpartmcnt of Posts and Tclccom. Both the wings arc .scn.iccd by
thc common cadrc of IPTBWS with thc cadrc controllcd by thc DOT.
Our so 73 Wc havc csamincd thc suggcstions and demands of the Scrvicc
rrcimnrrtr~~irtii~tr
F
in thc light of csisting organisational sct up, training facilities availablc for thc
Scrvicc and adjudicatorf functions performed by the membcrs of the Scn.~ccin
Arbitration cases Wc make thc following recommendations.
POSIof,Mwiber. 50.74 We consider -the demand for creation of a post of
Infiashucrure i;i Member(1nfrastructure) in the Telecom Commission justified in view of the
7rlemm
Commtssrorr
need for representation of this Service at the policy planning level and
estimated annual work load of Rs.600 crores for infrastructural services for
telecom development. We accordingly recommend that one post of
Member(1nfrastructure) be created in Telecom Commission.
Other HAG posts Any upgradation or creation of posts of E-in-Chief (Rs.7300-7600) for
Civil Wing of P&T BWS would generate resentment among Electrical and
Architectural Wings since in the field a parallel hierarchical pattern exists in all the
three wings of the Senice upto the level of Chief EngineedChief Architect in SAG.
It may also be premature to suggcst creation of higher level posts pending
re-organisation of the Department. In our opinion, it would be appropriate to
consider creation of other higher field level posts, if justified, after the
reorganisation of the Department, particularly in view of private
participation in this sector.

50.75 We do not consider that the demand for upgradation of the

post of CE(Arbitration) to higher grade (presumably Rs.7300-7600)and one
post of CE(Arbitration) in each zone is justified.

50.76 There are 20 posts of Chief General Managers

(Rs.7300-7600)and 15 posts of Chief Enginkers(Civi1). There is no functional
justification for having equal number of posts of CGMs and CEs(Civi1). This
proposal may be considered by the Government as part of the Cadre Review.
Central Design 50.77 The Central Dcsign Organisation in CPWD is headed by a Chief
"r~anJsalio'r
Engineer. In Railways, thcrc is no exclusive Ccntral Design Office for
Civil/Electrical works ctc. There is, in fact, a Research, Designs and Standards
Organisation which is not bc comparablc to an R&D organisation of a civil
construction organisation.

so 78 Thc analogy of CPWD would be valid if a Central Dcsigns

Organisation of comparablc scalc is functionally justified for civil construction
 $1 orh of thc Ikpartnicnt of 'l'clccoiii We kcl that tlierc IS not much uariet!. I
btiild~iigworks in DOT as coniparcd to norks of thc.CPWD Morcoiw. t h
('PWD also talrcs lcad in sctting standards for other dcpartiiiciits A comparisor
n i t h COO of'CPWD would. thcrcforc. not bc valid The need f o r a n elaboratl
Central Designs Organisation on the pattern o f C P W D should be considerec
by the administrative M i n i s t r y on merits. T h e upgradation o r creation o
higher level posts should match the need$ o f the future CDO. The demand fo
creation of theposts o f E-in-G(Civi1) supported by two CEs and SEs o f Civi
and Electrical Wings, m a y be considered by the Government as p a r t of thc
Cadre Review

so 79 Thc T c l m Enginccnng Rescllrch should conccntratc on tclccon

technology. R&D needs of thc tclccom civil works should bc takcn carc of by a
Ccntraliscd Organisation Iikc thc CPWD W e do not consider the proposed
creation o f an R&D set up for civil works in the TEC as justified.

so 80 Considering the crucial importance o f training in a fast

modernising telecom sector, the proposal for three Directors (one each for
three wings o f P&T BWS) instead o f existing two Directors o f Civil and
Electrical, i s accepted. However, the proposal f o r one post o f GM(SAC) i s
not considered to be justified.

Indian Telccom Servicc (ITS)

JTS STS JAG NFSC SAG HAG

% agc share in I I
total duty posts 16.94 61.88 14.19 0.54 0.1 1

Thrcshold as on
1.7.1995 - - 1986 1979 1974 1963

50.8 1 The lndian Telecom Service Association has informed us that

therc is acute stagnation in the Service at JAG level and above. The Association
has demanded career progression at par with Central Civil Services and AII India
Services.

50.82 The Association has made following spccific demands for

improving career prospects in the Service:-

The post of Mernber(Technology), Member(Production),

Member(Service)and Secretary Telecom in Tclccom Commission should
posrs
bc cncadred in ITS as the posts arc technical in naturc.

Thcrc are about 250 SAG oficcrs and 16 CGMs In DOT In ordcr to
bmprouc the services cvcry fourth post of Gcncral Managcr shou!d bc
upgraded to the rank of Chicf General Managcr cquivalcnt Additional
Sccrctary to thc Govt of India

In order lo rcducc thc prcscnt dcfa?.of 3-7 ?cars in promotions to SAG

scalc a JAG officcr may bc placcd in thc gradc of SAG as soon as thc
oficcr puts in I 7 ycars of scrvicc. Altcmativcly the officcrs may bc givcn
 doublc incrcnicnt in tlic csistiiig JAG gradc aftcr completion of I7 \cars
and t i l l thc tinic of proniotion to SAG scalc

In order LO rcducc the dclay of 4-5 !cars in promotion to JAG scalc allcr
an STS ofliccr pub in X years of scn icc hc ma! bc givcn doublc incrcnlciit
cvcn \car aftcr complction of X !cars ofscn ICC.

Our I ’wH:\ turd 50 83 Wc ha\c formulatcd our vicws on thc Scrvicc and its dcrnands
rl~ctJ”i”tl’~ldu‘’c’’~ aftcr considcring thc fast changing sccnario in thc Tclccom Scctor

Wc considcr that thc tclccommunication is on the threshold of bccoming

a mcga-scctor in thc countq Thc potcntial of tclccom-tcchnology in triggcring
cconornic gronlh is cnormous Thc cntc of global playcrs in this ficld as a rcsult
of National Tclccom Policy would inducc ficrcc compctition, whcrcin Dcpartmcnt
of Tc1-m would bc an important participant From the point of vicn of national
sccunt!. and crucial stratcgic importancc UI cconornic growth, govcrnmcnt will ha\ c
to m s s a n l y play an activc role in Telccom Scctor Those who arc lcading in thc
~frcadrfm~m ofl
posrs It1 7rleconi
cuttmg edgc of tcchnolog! in this ficld will havc a decisive advantagc The DOT
conlnll v n O N pcrforcc will ha\ c to compctc with tcchnologically advanccd players - thc
tcchnological problcrns \\ill also become morc complicated due to multiplicity of
players and technologies that would be introduced in future It is, therefore,
imperative that the professionals of Indian Telecom Service are given a
formal right to be inducted into the decision-making mechanisms in the
Telecom Commission and the Government. The demand for encadrement of
the posts of Member(Technology), Member(Production), Member(Service)
in Telecom Commission for ITS is considered justified. We accordingly
recommend that these posts be encadred in Indian Telecom Service.
Cadre review jo 84 The percentage share of posts at STS level is unusually high
(6 1 88%) There is an urgent need to improve the cadre-structure particularly at
SAG and HAG levels The demand for upgradation of every fourth post of CGM.
if accepted, nould improve HAG but further deteriorate SAG level Any such
upgradation should be done as a part of comprehensive cadre-review exercise
\\hich is overdue forthe Service (last cadre review was done in 1988) The cadre
review must take into account latest developments in regarding privatisation
of basic and value added telecom services. This review should also take into
account the official suggestion for upgradation of the posts of CGMs for 4
maintenance regions, project circles, Technical and Development circle and
the posts of CGMs of Training Centre (ALTTC) at Ghaziabad and Telecom
Research Centre to the rank of Special Secretary.

50.85 The scheme of financial upgradation of the incumbents upto

NFSG in a time-bound manner(ACP) recommended by us would to some
extent improve the conditions of service. Further, improvement in career
prospects can be ensured by a comprehexive cadre review keeping in view
the impending privatisation of basic and value-added telecom services in the
country as mentioned above

Jimwr t h g i t i w n 50.0(, Thc Junior Enginccr (Civil) is proposcd to bc grantcd thc initial
mid Jirriior pay scale of Rs. 1600-2660 instcad of csisting Rs. 1400-2300 in accordancc with
l>lr.coni 0flcer.v
the gcncral proposcd pay scalc for Diploma Enginccrs in Govcmmcnt. Thcsc
Junior Enginccrs (Ci\d? Elcctrical) further enjoy thc bcncfit of highcr pay scalc of

5 95
 Ks 1 640-21N0 aftcr 5 years of sen icc and pcrsaral promotion to the pay scalc of
Ks 2000-3500 aftcr anothcr 10 !cars of scrvicc as i n thc CPWD This is
proposed to be continued as at preseni.

5 0 87 Thc pa!. scalc of Junior Tclccoin Officcrs has bcen discussed i n

tlic Cliapter on thc Dcpartmcnt of Tclccoiiiinunication.

JTS STS JAG/NFSG SAG HAG

I I
N o of posts 2s 29 10 03 -
(DR 50%
Pr 50%)

50 88 The Association of Tclccom Factories Enginccrs has put forth

follo\ving demands:-

The cadre of Tclccom Factorics Enginccrs bc mcrgcd with Indian Tclccom

Service

In order to allcviate thc problem of stagnation. the officers be ?ro\ idcd

time-bound promotion maintaining batch parity with other organiscd
Central and All India Scniccs

In order to involve the officers of tclccom factories in policy formulation

the post of Senior DDG under Member (Production) should bc filled b!
an officer of thc Telecom Factories Service. and three posts of Chief
General Manager at the Cucle level rn the Senior Administrative Grade be
upgraded to HAG level as their duties and responsibilities and even
designation had been upgraded earlier \\ ithout a corresponding
enhancement of their pay scalc and status

The posts of factory manager be upgraded from JAG to SAG level and
selection grade be provided at the JAG level as in other organised services.
Our 50 89 The Assistant Managcrs(Gr 'A'JTS) arc recruited (50%) through
recommendations
Combined Engineering Services Examination. There is no sound rationale in
keeping a small cadre for Telecom Factories distinct from the main Telecom
Engineering cadre In Railways, for instance,' the Engineering Services Officers
man posts in workshops and Production Units In order to integrate Telecom
Factories into the mainstream and improve the career prospects of
Engineering Officers in Telecom Factories, it would be legitimate to merge the
posts of Group 'A' Telecom Factories Engineers into the Indian Telecom
Service. This would obviate the need to earmark any post in HQs for
Telecom Factories' Service as demanded by the Association of Telecom
Factory Engineers and also bring promotion prospects of TFS officers at par
with ITS. We accordingly recommend merger of Telecom Factories
Engineers cadre with Indian Telecom Service.

50 90 We, however, do not accept the proposed upgradation of

posts of CGM to HAG level and of factory managers from JAG to SAG as
suggested by the Association, in view of Telecom Factories fast losing their

S96
 significance due to induction of modern technology and private participation
in Telecom Sector.
Siiht i r h i t i 5 0 . 0I Mctallurgists who along with Assistant Enginccrs arc fccdcrs to
c'trc'rc'It' 7"11'c'infr
thc posts of Asstt. Managcrs.in Tclccom Factories arc dircctly rccruitcd with thc
1.iIl~ltKI1*.V
qualification of dcgrcc in Mctallurgical Enginccring or cquivalcnt Diploma
.\ /c*:tillitrp.:,srmil
J ~ , ,~;,/,,c.,ittl
~~~,~ qualification in thc pay scalc of RS.2000-3500. We consider this pay scale for
((ficcr the post of Metallurgist to be adequate.

50 92 Junior Telecom Officers(JT0s of Telecom Factones who were

carlicr dcsignatcd as Technical AssistantsNunior Enginccrs arc prcscntly in thc pa!
scalc of Rs 1400-2300 Fifty pcrccnt JTOs in TFs arc rccruitcd dircclly with thc
qualification of Bachclor of Enginccring/Bachclor of Tcchnolog?. or Bachclor of
Scicncc(Hons) Thc balancc 50% arc promotcd from thc ranks of industrial
workcrs In hccping with thc general dccision on thc pay scalc of Enginccring
Diploma holders and Technical Supervisors in Workshops, we recommend the
pay scale of Rs.1600-2660to JTOs of TFs. We also recommend that JTOs
in Telecom Factories be re-designated as Junior Engineers (Telecom).

The pay structure for thc cnginccring cadrc of thc Tclccom

Factories would thus work out as under:-

Designation Existing Revised Designation Proposed Mode of Recruitment

Pay Scale(Rs.) Pay Scale(Rs.)

Junior Engineer/ 1400-2300 Junior Engineer(Te1ecom) I1 1600-2660 BE/B.Tech or B.Sc with

Junior Telecom 60% markdI3.Sc(Ilons.)
Officer
Junior Engineer(Te1ecom) I 1640-2900
.Assis&tEngineer 2000-3 500 Assistant Engineer Grade I 2000-3500 Promotion 100% pady from
(Factories) JTOs and
partly from industrial cadre

Assistant Engineer Grade I 2500-4000

AssistamManager 2 2 ~ 4 0 0 0 Assistant Manager 2200-4000 Direct Remitmen1 50%
Promotion 50%from A s t t
Engineer(Fact0ries)
Senior Engineer 3000-4500 Senior Engineer 3000-4500
Dy.General Dy.General Manager!
ManagerIManagerl ManagedDirector
Director 3700-5000 3700-5000
Chief General 5900-6700 Chief General Manager 5900-6700
Manager

Telecom 50.93 Telecommunication Research Centre(TRC) was set up in 1956,

Research as part of the Headquarters organisation of erstwhile P&T Board, now Telecom
Centreflelecom
hgineering
Commission. The Centre was entrusted with the responsibility of design and
Centre development of Telecommunication equipment, and providing solutions to major
Functimis technical field problems of telecommunications, and technical advice to users: and
P&T Board. The TRC soon became the nodal agency as a harbinger of ne\v
technologies and emerged as a technical thlnk -tank for thc Dcpartmcnt of Tclccom.

(>/Jiccwoj7RC j0.94 We have been informed that all the pcrsonncl for TRC wcrc
initially drawn from thc Telegraph Engineering Scrviccs, now callcd Indian
TclecommunicallonScrvice(1TS). The direct recruitmcnt for TRC was startcd in
1965 to allow for grcatcr spccialisation and also bccausc cnough pcrsons wcrc not
always available from thc operating wing of thc dcpartmcnt. Somc officcrs w r c
recruited in TRC by dircct intcrvicw through UPSC, though thc bulk of thc officcrs

597
 cotitiriucd to bc draivn from thc TES Thcsc officcrs wcrc dircclly rccruitcd to
Group ' A' sen ice About 40 officcrs wcrc rccruitcd iii TRC bctwccn 196s and
1075 At prcscnt onl! t w h c olxccrs arc in scrvicc A large iiunibcr hakc lcft duc
to unccrtaiii carccr prospects

Designation No. of Pay Scale

Officers Rs.

D\ Dircctor Gcncral 07 5900-6700

Dircctor 02(SG) 4500-5700 + Spl Pay RS 5 0 0 .
Asstt Dircctor Gcncral 0I 3000-3500+ Spl Pay Rs 400

licw.3 OfIllC* 50.95 Thc Dcpartmcnt of Tclcconi in the Official vicws has madc two
llepiwtnrzril significant points.-

that separate recruitment for TEC was made, sincc intakc of oficers to thc
ITS Group 'A' was not adcquatc to mcct thc tccjlnical manpowcr
rcquircment of TEC during 1965 to 1974; and

that it is dcsirablc that somc ITS ofliccrs work at highcr Icvcls in TEC so
that their espcrience can bc utiliscd for thc organisation.
Our views cifrd 50.96 The officcrs manning rescarch unit should bc totally intcgratcd
rrcommetidutio~t with thc technical cadre of the departmcnt. Their isolation, apart from causing
career stagnation, is detrimental to thc intercsts of thc organisation in a fast
changing technological scenario in telecom sector. This position wherc a small
number - hwlVe at present - form a separate group even though they hold identical
qualifications as the mainstream department engineers and do the same work - is
not tenable. In fact, the special recruitment of TRC officers through UPSC was
done due to administrative problems. It would be unfair to deny the career
progression to these officers vis-a-vis ITS officers. The hon'ble Supreme Court
in a judgment in 1982 on a writ petition filed by TRC Scientific Oficers(Class I)
regarding denial of promotion opportunities and special pay at par with ITS
officers working in TRC made following observations:-

"......It is not the case of the Government that the petitioners are not
competent and are not able to dscharge their duties. All the direct recruits
are graduate engineers and have been working throughout in the
Telecommunication Research Centre. They do the same job as the
transfcrred oficials (of ITS).

.. .. Government has virtually admitted that all relevant things such as

qualifications, functions, duties and responsibilities arc the same as
between direct recruits and transferred officials"

50.97 Thc Suprcmc Court did not givc any final vcrdict on the
promotion opportunities due to non-availability of adcquatc matcrial but grantcd
spccial pay to TRC Scicntific Officcrs at par with ITS officcrs working in TRC.

it would be fair, equitable and in the interest of the organisation that

the Scientific Officers Group 'A' of TRC be merged in the cadre of ITS. We,

598
 accordingly, recommend merger of these posts along with existing incumbents
in the Indian Telecom Service.

JI r f t 4 , c . c /'/WUJJJIS 50 08 Thc Wirclcss Planning and Coordination Wing(WPC) of Ministn

"""( of Communications is thc National
*'JfJ"iJw'f)f' Radio Rcgulatoq Authority LO cnsurc ordcrl!
11 JJIS
utilisation of Radio ficqucnq Spcctrum and Gco-stationaq Satcllitc Orbit(GS0)
11 is supporlcd by thc Wirclcss Monitoring Organisallon in this actn it? Thc WPC
Wing is also thc nodal agcncy to dcal with thc lntcrnational Tclcconiniunicalion
Uni;n(lTU), Gcncva and Asia Pacific Tclc-community(APT)

SO.')') Considering the strategic importance and role of WPC Wing

the following changes in the pay scales and status o f different engineering
posts are proposed. We have kept in view the recruitment qualifications and
our general approach on pay scales of subordinate engineering cadres before
making these recommendations:-

Pay Scale (Rs.)

Existing Proposed (in present terms)

Tcchnical Asstt. Gr.11 1400-2300 1600-2660

Tcchnical Asstt. Gr.1 1640-2900 1640-2900
Tcchnical Supervisor Ncw Lcvel 2000-3500* Gradc I1
2500-4000* Gradc I
* (Noof posts without additional creation to be distributed in Lhc ratio of 50
: 50)

50.100 Engmeers in Group ' A cadre arc recommended to bc merged with

mainstream Indian TeIecom Service. Further, following recommendations are
made:-

Existing Proposed (in present terms)

Wireless Adviser(Rs.5900-6700)(01)
I
&rector, Wireless Monitoring(0I ) I Nochange
Jt. Wireless Adviser(O1) (Rs.4500-5700) 1
D\..Director(03), Dy. Wireless Adviser(03) No change
(Rs. 3700-5000)
Assistant Wireless Adviser(07) JAG (Rs.3700-5000 without Spl. Pay
(Rs.3000-4500 + Spl Pay Rs.200) (NFSG posts on JAG posts would be
available by virtue of merger into
organiscd ITS)
Engineer-in-Charge(I3)(Rs.3000-4500) Sr. Enginccr
(Rs.3000-4500)
Engineer(65)(Rs.2200-4000) No change

599
 I MINISTRY OF DEFENCE: I
Indian Defence Service of Engineers

JTS STS JAG NFSG SAG HAG

IDSE
'!hagc sharc in
totid duty posts 22 OX 46.09 12.84 15.85 .1.55 0.09
Thrcshold as on
1.7.IWS(MES) - - 1968 I966 196-3 1958

Military Enginccring Scnicc of Survcyors

Militan Enginccring Scnicc of Architects

(?fID.Sh:
l.~'~t~ilttIJ.~ 50. 1 0 I Thc Association of Indian Dcfcncc Scrvicc of Engineers has
~~lssoour'oti~ csplaincd to us thc miscd army-civilian character of Military Enginccring Scrvicc.
Thc Association maintains that this system works to thc disadvantagc of civilian
ofiiccrs sincc the promotion avcnucs. rank and pay structurc of army officers bcing
dffercnt thcrc arc no clcar rulcs with regard to inter-sc seniority. The Association
has submitted the following for our consideration:-

The existing systcm has resulted in senior IDSE officers working under
junior army officers and has caused a lot of demotivation and
demoralisation among the civilians.

In order to ensure overall economy and efficiency of operations in MES.

the Government should fis the ratio of IDSE officers and officers of the
Corps of Engineers at 2: I at all levels besides delinking MES from the
Corps of Engineers and constituting a Defence Works Board under the
Ministry of Defence comprising a mix of senlice officers as well as
civilian IDSE officers.

The personnel hrector of MES should be a civilian officer of the rank of

Additional Secretary. A separate deputation and training cell should be
created in this Directorate under an SAG officer.

There is a need for creating the post of Construction Adviser (Secretan.

lcyel) to the Defence Minister to be manned by an officer of the IDSE
cadre

A peculiar situation in MES exists in having a mn-technical cadrc of

Barrack Stores Officers This cadre was crcatcd uhcn there was a
shortagc of Engmecrs m thc countr),. It IS fclt that cntrusting the tcchnical
dutics of fuyture and stores to cnginecrs will improjc thc position of
Lhcsc aspects considcrabl! In no othcr Enginccring Dcpartmcnt arc thcsc
dutics cntrusted to non-tcchnical pcrsons and similar principal should bc
adoptcd in MES also

600
 Apart froni poor cadrc nianagciiiciit. prcparatioii or pancls by holding
DPCs and othcr disciplinan, procccdiiigs arc iiiordiiiatcly dclaycd

Thc post of Additional Chicf Engiiiccr csists only it1 tlic Indian Dcfciicc
Scrvicc of Ensinccrs. As thcrc is no basic pa!' scalc for tlic post. this has
bccn placcd in Lhc sclcction gradc of thc Junior Administrativc Gradc and
a sum of Rs.400 p.m. is admissiblc in addition. Sincc this post has bccn
abolishcd by all othcr dcpartmcnts aftcr implcmcntation of thc 4th Pay
Commission's rcport. thc post of Additional Chicf Engiiiccr bc upgradcd
to thc Scnior Adrninistrativc Gradc without any chaiigc in thc functional
rcquircmcnt or dutics laid down in thc rcgulation.

Our I2ew.c. atid j0.102 Wc havc carefully pcruscd thc vicws of Enginccr-in-Chicf Branch
rrcf'nirerrd"rr''ls on the memorandum of thc IDS€ Association and havc csamincd thc prcscnt
oti C-iviliaii -
.\li/ilup
organisational structurc in MES
liitt*r-jm,
We find that thcrc is trcmcndous rcscntmcnt among civilian
officers of MES duc to disparitics in cquivalcncc bctwccn Army and Cnilian
Officers Further, the senior-most civilian officer who is Additional Director
General in the pay scale of Rs.7300-7600is reporting to the Director General
who is a military officer of the rank of Major General in the pay scale of
Rs.5900-6700. This is obviously an anomaly. In the interests of the
organisation and fair play, we recommend that the head of this organisation
should be a civilian

Ciwltanisarion 01 50 103 It is accordingly recommended that the existing arrangement

.LES of a civilian ADG reporting to a military DirectodMajor General be replaced
with a civilian Director General in the pay scale of Rs.7300-7600 and a
military Joint Director General in the pay scale of Rs.5900-6700.

50.104 The proportion of appointments between civilian and military

officers as recommended by the Military Engineer Services Review Committee
1955, Estimates Committeeof Lab. Sabha 1958-59 and Military Engineer Senices
Organisation Committee 1959 is as under:-

(i) Enginec~~ above Ihe grade of
Superintending Engmem
(ii) Engineers upto L e Grade of
Superintending Engineers
(iii) Architects
(iv) Surveyor of Works
(v) h a c k and Stores
(vi) Administrative Cadre
- 50% military and 50% civilian excluding certain sensitive
appoinlmcnts (20 Chief Engineers) which are not.apportioned to
civilian oficen)
- 50% Military and 50% civilian
- Minimum 80% Civilian
- Minimum 75% Civilian
- 33 113% Military 66213% Civilian
- 33 I !3% Military and 66 23% Civilian

50. I05 Thc latcst rcvicw was donc by thc Estimatcs Committcc of thc
Scvcnth Lok Sabha. Thc Committcc madc following observations-

"Military Enginccrs Scn~iccsIS at prcscnt a compositc organisation n i t h

ajudcious blcnd of Civilian and Military pcrsonncl at various lcvcls The
Committcc havc gonc into thc suggcstion madc to it for complctc

: 601
 civilianisation and coniplctc mrlilarisa~ionof this scn ICC After
considcring thc pros and coiis of tlic niattcr. thc Committee fccls h t thc
prcscnt coinpositc charactcr of thc scnicc i s bcst sultcd for no
organisation lihc Militan. Enginccr Scn~iccs”

This rccomnicndation was acccplcd by thc Goi,t of India.

( hrr 50.100 The trend world over is progressive civilianisation of military

n*ctJ l i l m c ~ l l l k r r r w l . ~
engineering organisations. It is desirable that we also follow this pattern.
We, therefore, recommend that complete civilianisation of military
engineering organisation be set as a long-term objective.

50 107 The basic role of the MES is to provide service support to the
defence forces. A Works Board which is usually invested with more
autonomy and powers than an organisation in Government may not be
compatible with the nature of role expected of MES. A functionally
autonomous Board with an army-civilian mix may not dovetail with the
disciplined command structure of the defence forces. In our view, therefore,
the demand for constitution of a Defence Works Board under the Ministry of
Defence is not justified.

50.108 There is adequate representation of IDSE constituent of MES

in E-in-C Branch. So long as MES continues to be a composite organisation,
it may not be feasible to create independent Command structure for IDSE
officers. However, we recommend that the post of Director Personnel shoult?
be earmarked for an IDSE officer.

50.109 The demands for a separate deputation and training cell and
Construction Adviser(Secretary level) to be manned by an IDSE officer are
not feasible to be accepted within the existing organisational framework.

50.1 10 The stores management functions in big organisation like

Railways arc shared by Engineering and Ministerial staff at lower levels. The
Ministry of Defence has clarified that MES engineers are already involved in
the procurement and inspection of stores and that no further involvement of
engineers is necessary. This clarification is considered adequate.

50.1 1 1 The Ministry of Deface has clarified that the second cadre review
suggesting creation of large number of posts at HAG,SAG and JAG levels is in
the final stage for approval of the Cabinet and would improve the career prospects
of civilian MES officers. Further, we have proposed to make mandatory,
periodic cadre reviews justiciable. This would ensure elimination of delays
in future.

50.112 Delays in preparation of panels and disciplinary proceedings

is a serious matter. Our general recommendations in this regard have been
made in relevant chapters. The dissatisfaction of civilian MES officers on this
account and deputation to ex-cadre posts etc., may, however, be examined by
the Ministry of Defence for suitable remedial measures.

602
 5 0 I13 Thcrc arc a largc nunibcr of posts ( I 74) of Additional Chicl’
Enginccr(Rs 4500-5700 + Rs 400 SP) TIic proposcd upgradation of a11 thcsc
posts to SAG may significantly disturb thc cadrc structurc Thc h l i n i s t ~has also
adviscd that tlic sccond cadrc rc\ic\\ I S 111 thc final stagc of approval b! thc
Cabinct In view of this position, the demand for upgradation of the posts of
Additional Chief Engineers may be considered by the Government as part of
Cadre Review. The continuance of these posts in the present grade, however,
may be reviewed by the Ministry in the light of cadre review approval and
the pay scales of Brigadiers (the equivalent rank of Additional Chief
Engineer) recommended by us.

Sit hordrtrarc 50 114 Thc pay scalcs of Subordinatc cnginccring constitucnts of MES
’adrev arc rccommendcd as shown undcr -
Pay Scales

Building- and Roads (B&R) Pay Scale (Rs.)

Existing Recommended (in present terms)
Supkrintendent (13&R) Grade I1 1400-2300 1600-2660
Subrintendcnt (B&R) Gradc I 1640-2900 1640-2900
Assistant Engineer 2000-3500 2000-3500 Assistant Engineer Gradc I1
2 5 0 0 4 0 0 0 Assistant Engineer Grade I
Suweyors
Surveyor Assistant Grade Il 1400.2300 1600-2660
Surveyor Assistant Grade I 1640-2900 1640-2900
Junior Suneyor of Works 2000-3500 2000-3500 Junior Suneyor of
Works Grade ll
2 5 0 0 4 0 0 0 Junior Suneyor of
Works Grade I
ArchitectdDraftsrnen
Draftsman Grade Il 1200-2040 1320-2040 Draftsman Grade 111
Draflsman Grade I 1400-2300 1600-2660 Draftsman Grade n
Senior Draftsman 1600-2660 1640-2900 Draftsman Grade I
Chief Draftsman 2000-3200 2000-3500 Chief DraAsman
Lateral Movement
Technical Oflicer 2000-3500 2000- 4500
Transfer
Assistant Architect 2000-3500 2000-3500 Assistant Architect Grade Il
25004000 Assistant Architect Grade I

Indian Ordnance Factories Service(I0FS)

50.115 The issues on Indian Ordnance Factories Service being a

composite of Civil Service Officers and Engineers have been considered in our
Chapter on Civil Services. However, the pay scales of subordinate technical feeder
cadre are mentioned below:-

Designation Pay Scale (Rs.)

Existing Recommended (in present terms)
Chargeman (Technical) Grade II 1400-2300 1600-2660
Chargeman (Technical) Gradc I 1600-2660 1640-2900
Assistant Foreman (Technical) 2oc)0-3200 2000-3500
Foreman (Technical) rcdesipnatcd
as Junior Works Manager 2375-3500 2375-3750
(Note The pay scales abovc arc in conformitv with our rccornmcndations on thc
pay scalcs of workshop tcchnical supcniisors)

603
 Naval Armament Supply Organisation

JTS STS JAG NFSG SAG HAG

'%,age sharc in total I I
duty posts 42.86 29.52 26.67 0 05 NA
Thrcshoid as on
I 7 I905 1980 1972 I006 Nonc

50. 1 16
.~,i~,i/..lr~i~J~~i,,~ir At prcscnt Naval Armamcnt Supply Organisation (NASO) has
.Supp!v Dircctor Gcnqral of Armament Supply, undcr Matcrial Branch at Naval
0rg~ini.utticwi
Hcadquartcrs [NHQ),. which carrics out thc staff function at NHQ and is thc
dirccting authority to the various Naval Armament Dcpots.

50 117 Naval Armament Depots situatcd in the country s c n c thc thrcc

Naval Commands namely,Western Naval Command, Eastern Naval Command and
Southern N a d l Connand of the Indian Na\y These Armament Dcpots arc of
diffcrcnt sites. capacities and capabilitm, which can bc classificd ils largc and
m d u m Naval Armament Depots, depending upon thc rolc of thcsc dcpots Thcrc
arc thrcc depqts under Western Naval Command and arc situated at Bombay,
Karanja and Trombay The total personnel strength of thesc thrcc Naval
hmament Depots is appmwmately 2900 personnel, including officers All the
three depots at pmmt are headed by officers in the level of JAGNFSG and the
m o r most am6ng them is the overall incharge of the complete Naval Armamcnt
Supply Organisation at Bombay

50.1 18 The Naval Armament Depots, where majority of INAS posts are
utilised (85%)have a 2 tier management structure as indicated bclo\v:-
1st Tier JAG SFSG Overall incharge ofthe depots.
JAG Incumbents of thac POJts arc heads of . The oflicers in this grade arc also
distinct functional dcparcmcnts.cg. guided Ofliccr-inChugt of small depots.
weapons. production material management. ctc.
2nd Tier Scnior/J&ior Time Scale. They act as Section o f f c u s for small and medium hpskcctions.
Ihe h v d Hcdqcurten whac 15% posla arc utilized has 3 tier managcmcnl s t ~ d u r c . aindicated
s
klow:
1st Tier SAG Overall directing md controlling authority designated as Dinx~orGeneral of Armament
Supply.
2nd Tier JAG.%F#G They work as Directorlh.Dinctor/Depuly Director at Naval HQ.
3rd Tier Sr Jr Ti& Scale lhey work as Astt. Direftor/Deplty Assn. Director at NHQ.

Director General. 50.1 19 Diredor General of Armament Supply is responsible for efficient
management
-'LmonJen'S"~~ ~ ofNaval Armament inventory and related capital assets of the Indian
Navy valued at over Rs.3000cropcs and management of more than 6000 personnel
spread over v&ious depots and in Hqs. In addtion, Naval Armaments being an
cxtremely specialisad line, he has to provide guidance and hrection to the Naval
Armament depots in respect of projeci management, indeginisation, technology
assimilation,safety, ensure high .level of weapon and armament availability to thc
service and meet all the operational requirements of the service at all timcs.
Further,hc has to interact with R&D Organisation. Keeping in view the nature
of work itrd responsibilities entrusted to this post, we recommend
upgradation sfthe post of Director General of Armament Supply at Naval
Hqs from SAG to HAG (Rs.7300-7600).

Our 50. 120 In order to have rational and effective organisation structure
rrcr,nmcc~ti~u~ir,,~s
there is need to have one post each of Chief General Manager, Armament
Supply under each Naval Command namely, Western, Eastern and Southern
Naval Command. All the depots and establishments of Armament Supply
Organisation under each command may function directly under the
respective Chief General Managers in SAG.

so 121 The Directors at NHQ, oficers in-charge of Naval Armament

Depots and heads of the major functional areas like material management,
production management, guided weapons, personnel management, transfer
of ttkhnology, project management, security and fire fighting in major depots
should all be in JAG/NFSG. We also propose to have 4 officers at JAG level
(Directors/Jt. Directors) looking after distinct functions at NHQ. All the
posts are proposed to be created by suitable upgradations without any
additionality to the cadre as under -

Grade Existing Proposed

HAG - 01
SAG 1 03
JAGNFSG 28 25
STS 31 31
JTS 45 45
105 105

I MINISTRY OF INFORMATION AND BROADCASTING I

Indian Broadcasting EngineeringService (IBES)

JTS STS JAG NFSG SAG HAG

% age share in I I
total duty posts 5 1.56 38.42 8.4 i 1.47 0.15
Threshold as on
1.7.1995 - - 1975 1973 1970 1965

50.122 The IBES association has infomed us that the cadre management
of the Service is in bad shape and promotion prospects for officers are very poor
despite tremendous expansion in the activities of All Incba Radio and Doordarshan
We also note that despite constitution the Service as an orgaised one as early as
1981, there has been no cadre review so far. The Service association has made
following suggestions for our consideration.-

The. IBES Officers should be provided time-bound promotions as are

admissible to officers of the IAS, IPS and IFS. The ‘in-situ’promotion
scheme introduced in the Ministry of Information and Broadcasting on the
recommendations of the Tikku Committee should be introduced in All
India Radio and Doordarshan as well

Suitable compensation packagc .and status need to be provided for the

broadcasting engineers in ordcr to meet succcssfully thc emerging global

605
 cliallcngcs and to arrcst tlic csodus of profcssionals froni tlic clcctroiiic
iiicdia to thc privalc scctor.

111 AIR and DD, Ihc span of control nonn is not folloncd and at tinics I( IS
found that ow ofliccr supcrviscs thc work of 8 to I 0 ofliccrs ininicdiatcl\
bclow him This advcrscly affects thc pcrforiiiancc of thc officcr 11 IS.
thcrcforc. proposed that thc ofhcrs of SAG Icvcl should bc postcd at
ncnc ccntrcs of AIR

DD namcly, Dclhi, Mumbai. Calcutta and Chcnnai and oficcrs ofJAG

Icvcl at circlc Icvcl for cffbctivc maintcnancc.

Furthcr, in ordcr io strcngthcn thc maintcnancc nctwork thc statc Icvcl

oflicc should be put under thc control of onc SAG Icvcl officcr.

Thcrc should be a separate office for Enginccring Hcads at DD and AIK

Kcndras with separate budgct: This is requircd for providing propcr
coordination at Kendras amongst cnginccrs, news pcrsonncl and
programmers. The senior-most ofliccr among thc thrcc should hold thc
additional charge of the general administration

In thc year 1984, the Dcptt. of Pcrsonnel and Administrativc Rcforms had
fccommended creation of a separatc Enginccring Directoratc for AIR and
DD. But this recommendation has not b a n implcmcntcd. In vicw of thc
vast expansion of the Electronic media thc responsibilities of the
EngineeringWing of the News Service Division have increased. In-house
productions and private productions have also increased tremendously
during the last decade. In addition, a number of newjenices, such as FM
paging, Telekxt, Rad~otext,etc., have also been introduced. This justifies
creation of a separate Department of Engineering for AIR and DD.

Our Iirwsand 50.123 The proposed time-bound financial upgradation

wcomt?irtidnlions
scheme(ACP) upto NFSG would provide some rdief to the cadre. In addition,
official remarks received by us indicate finalisation of the cadre-review
proposals. This would help improve career prospects of IBES. If the
Government expedites the formation of the proposed Prasar Bharati
Corporation, the remuneration and promotion prospects of Engineering
Officers may improve further.

50.124 Thae would always be limitations within a Government set up to

improvement of remuneration of Engineering officers. In a highly competitive
media environment and prospects of massive revenue generation in this field,
it is highly desirable that the electronic media is freed of Government control
and put under an autonomous corporation to be managed by professionals.
This would improve the compensation package of broadcasting engineers and
enable the nation meet the global challenge in this sector.

50.125 Thc organisation of AIR and DD is in urgent nccd of changc duc

to fast cspanding media nctwork. Howcvcr, thc issuc of rc-organisation and span
of control can only be considered by thc administrativc ministry. There should be
a sense of urgency in tackling the organisational issues concerning Govt.
 electronic media in view o f its mass appeal a n d potential to influence the
entire socio-economic life of the community.

5 0 120 Bifurcation o f AIR and DD are desirable objectives as also

admitted in official views received b y us. This is, however. essentially a
matter o f resource constraints. The solution t o the problem i s again
immediate corporatisation and complete autonomy t o AIR and DD. A n
autonomous corporation working on rational commercial principles would
genhrate enough resources t o meet the needs o f AIR and DD and their
expanding network

i 0 127 A separate department o f Engineering under a Directorate

General i s not considered t o be feasible within the Government set up. The
electronic media being p r i m a r i l y technology driven now, it i s in the fitness o f
things that the AIWDD are taken out o f the control o f the Government and
handed over t o professionals in a new corporate structure. W e also
recommend that suitable state-of-art R&D facilities be created for AIR and
Doordarshan.

50.128 Thc controversy and tbc problem of the pay scalc of Enginecring
Assistants have been considered by us in detail in the Chapter on the Ministry of
Information and Broadcasting We ha! c rccommcnded the payscale of
Rs 1600-2660 to Engneerig Assistants of AIWDD at par with Diploma
Engineers in other departments of the Government.

The payscales of subordinate engineering cadres arc thus

recommended as given .below keeping in view the general pay structure for
Diploma Engineers.

Broadcasting Wing Pay Scale(Rs.)

Existing Recommendid (in present terms)
Engineering Assistant 1400-2600 1600-2660
2000-3200
Senior Engineenng Assistant 1640-2900 1640-2900
Assistant Engineer 2000-3500 2000-3500 Assistant Engineer Grade Il
25004000 Assistant Engineer Grade I

The pay scales and promotion pattern in the Civil and Electrical Wing will
be identical as in the CPWD.

MINISTRY OF COMMERCE

Indian Supply Scrvice(1SS)

Indian Inspcction Servicc (11s)

JTS STS JAG NFSG SAG HAG

'%,sharc of posts
in total duty posts I I
11s 3967 38.02 17 35 4.13 083
ISS 3083 3583 23 33 833 167

b07
 Thrcshoid as oil
I 7 1005
11s
ISS

I ~ l ~ l l l ' l l ~ l( lI ./ \ IlIC~ 5 0 129 Thc association of officcrs rcprcscntiiii ISS arid IIS has niadc
.I\\Ill rcrlrorr Ibllo\sing subiiiisions for our considcratioii

Thc sfructural ratio in thc cadrc should bc niadc flcsiblc in ordcr to

prowdc post for promotion uplo SAG Icscl without incrcasing total
nunibcr of posts in Ihc cadrc Thc officcrs may bc clci atcd subjcct to thcir
suitability in a timc bound tnanncr as follows -

JTS to STS - 4 ycars

STS to JAG - 4 YCWS
JAG to NFSG - 4 years
NFSG to SAG - 4 years i.c. SAG in I6 ycars
Pcrcentagc of HAG posts in ISS and IIS should bc cnhanccd to 9% at par
with IFS to provide reasonablc opporlunitics for promotion upto this levcl
in order to attract engineers to thcsc scniccs.

The p s t of Director General/DGS&D at present is an ex-cadre post and

is filled under the Central Staffing Scheme. Thc Association suggests that
the post of DG being technical in nature may bc cncadred and kept open
only to the officers ot'ISS and IIS

The officers in ISS and ILS carry heavy financial responsibility and
undertake quality assurance work of a verq large number of items from
Pins to Bulldoizrs mcludmg hghly techcal and sophisticated items The
Association suggest that posts in DGS&D may be elevated as follows -

Assistant Director JTS and STS combined

Deputy Director JAG
Director SAG
Dy. Director General HAG
Addl. Director General HAG(Specia1 Secretary)
Director General HAG(Principal Secretary)

50.130 One of the problems faccd today is disparity in opportunih. for

career growth in various Engineering Scrviccs. The Association proposes that a
common seniority list may be maintaincd based on thc results in the UPSC
cxamination to ensure that if an officer sccuring lowcr rank gets elevated in his
cadre, all officers holding higher rank (in the samc ycar's UPSC exam) get the
bcnefit of promotion.

The ISS and IIS cadrcs h a w bccn cstablishcd b!. thc Go\.cmmcnt to dcal
\i.ith purchasdcontract managcnicnt work and thc qualit!. assurancc work
rcspcctiid!' Thcsc two cadrcs arc nianncd by qualified Enginecrs haling
a wealth of cxpcricncc in thc ficld of purchasckontract managcrncnt and
quality assurancc/inspcction. Many govcrnmcnt dcpartmcnts undcrtakc
adhoc purchasc and inspcctiodquality assurancc work and cvcn cntrust

608
 ..
this uork to various agciicics 1 hc Association submits that this norh
should bc assigncd lo ISS/IIS cadrcs arid for this purposc ol'liccrs of
ISS/IIS bc inductcd i n various iiiiiiistrics and dcpartniciirs

Yhc Dcpartnicnt of Supply is thc Adniinistratiic M i n i s t n for ISS/IIS

cadrcs But at prcscnt no post in thc Dcptt of Suppl! is camiarhcd lor
Oicsc two cadrcs In ordcr to providc opcnings and rclicf to thc cadrcs. thc
Association proposcs that 25% of thc posts in thc Dcpartniciit of S u ~ p l \ ~
from Undcr Sccrctary to Joint Sccrctay bc carmarkcd for officcrs of
ISS/IIS cadrcs

Thc posk of Assistant Dircctor Gradc I I (Rs 2000-3500) ma!. bc fillcd to

thc cstcnt of 100% from dcpartmcntal candidatcs as was rcconimcndcd by
thc third CPC Thc promotion of Group 'B' officcrs may bc madc dircct
to thc lcvcl of Dcputy Dircctor uithin 7 ycars in Lhc ratio of 75 25 I c .
75% from Gradc 'A' UPSC rccruits and 25% from Gradc 'B'

k i 4 t i d o t i s of jo, 13 I Duc to rccent dcccntralisation of purchasc to diffcrcnt

I X ;.WD MinistricsDcpartments, thc work-toad of DGS&D on account of procurcmcnt of
stores has reduced. Howcver, thc organisation continucs to pcrform following
functions as in the past:-

(1) Formulation of purchase policies of the Governmcnt by laying down

procedures and practice to be followcd by the Central Govcrnmcnt.

(ii) Disposal of Defence Surplus Stores.

(iii) Providing Shipping and Clearance services indcpcndcnt of procurcmcnt

activity.

(IV) Inspection Wing ensures quality of stores procured.

formuIahon/upgracIahonof sp&i fications, interaction with users, suppliers
and other quality assurance agcncics It also renders technical advice to
the users

Our observations 50,132 We have considered thc issues raised by the Association and
and observe as under:-
reconintendations

While the Inspection functions are still important in Government and

would merit a separate specialised service, the same is not true of
purchases. Purchase of stocks has 'now become a highly specialised
activity and is best leA to the techrucal experts. We, thercforc, feel that the
Indan Supply Service should be disbanded, as it no longer serves a useful
purpose. However, pendmg its abolition, we are making recommendations
for both the Scrviccs in the succeeding paragraphs.

A benchmark model cadre structure for all Group 'A' Central

Services has been proposed in general. The Ministries/ Departments
should make efforts within the norms of functional needs to
approximate to this model structure.
 ..
1 Iic procurcniciit. disposal. quality assiiraiicc of iiintcrials is a highl\
~cchnicalacti\*it!' non A sciciitilic iiiaiiagciiicnt ol' iiiatcrials. 1 aluc
ciigiilccnng caii in& significant contnbution to tlic financial hcaltli of tlic
organisallon for tthich DGSK: D iiiahc purchascs Howct cr. no changc i i i
rcspcct ofthc Icadcrship of this organisation scC;ms 10 bc ncccssao We
do not endorse the demand of the Association for encadrement of the
post of DG/DGS&D for IIS/ISS.

The piesent status of varioas posts in IIS and ISS are in conformity
with standard Group ' A ' Service ranks. No change in this respect is
just i fied

Thc proposcd ACP upto NFSG would to somc cstcnt bring parity among
all Group 'A' Scnvxs In rcspcct of financial rcniuncration during first half
of thc scwicc carccr Timely cadre-reviews which are proposed to be
made justiciable would further bring improvements in the career
progression.

The officers of ISS and IIS can be inductedlposted on deputation to

the organisations which do not have a regular or organised Service
for materials management. This would not only bring professional
expertise to such organisations but also help improve the career
prospects of ISS/fIS officers.

Reservation of posts in the Ministry for any particular Service is not

desirable The posts in the Ministry must be available to the best
talented officers of all eligible Services on merits. However, in line
with our general proposition the post of Joint Secretary or Additional
Secretary in charge of the cadre-management of these services may
be earmarked for the Services.

50.133 The poor promotion prospects of cxisting dircctly recruited and

other Assistant Directors Grade I1 (Rs.2000-3500) would not improve if direct
recruitment is d~spensedwith. While this would improve the promotion prospects
of feeder cadres, it would also dilute the standards sincc direct recruit ADS(Gr.11)
are engineering degree holders. We, however, recommend that-

(I) Direct recruitment to the post of ADS(Gr.11) be dispensed with but

only engineering degree holders among the feeder grades be
considered for promotion against the posts of ADS(Gr.11).

(ii) The existing stipulation that at least 20% of the promotion quota of
the posts of ADS-I1 be filled by transfer on deputation from officers
holding analogous posts in departments which place indents on
DGS&D, be dispensed with.

.sir h/Jrdlll(llC so 134 The pay scale of Examiner of Stores and Technical Assistants
oigitwtritiK posL%
being engineering diploma holders is proposed to be revised to Rs.1600-2660
in accordance with our general recommendations in this regard. The pay
scale of Estimators (which is a promotion post for Technical Assistant) is
consequently proposed to be Rs.1640-2900 in present terms.
 I)t*\igttwtion P q Scwlc. (R4.)
Eii\tirig Recotnrnen~cd
(in present tctms)
hpection Wing
Exwniincr of Store\ I.l(W2300 1600-2660
1640-2YtH)
A w \ t w t i t Insprcting Officct 2000-3500 2(HH)-3S(H) Assistant Inspecting
Officer Cradc I I
ZS(H)-J(HH) Assistant Inspecting
Officer'GGrYdc I
S u ~ d l vWing
Tcchnicrl Assistant I J(NL2300 16(HJ-2660
16482900
Eitirnrtor 160~~-2660 1650-2900
A\sis?wnt Director C r r d r I1 2fM)O-3500 Z(W0-35W Assistant Director
Grade I1
2SOO-1ooO Scnior Assistant
Director G n d c I1

I MINISTRY OF RAII WAYS I

Indian Railway Scrvicc of Enginccrs (IRSE)
Indian Railway Scrvicc of Mechanical Engineers(1RSME)
Indian Railway Scnicc of Electrical Engineers(1RSEE)
Indian Railway Scrvicc of Signal Engincers(1RSSE)
Indian Railway Stores Service(1RSS)

%age sharc in total duty posts

(as per Annual Statistical Statement Rly.Bd. 1994-95)

IRSE IRSME IRSEE IRSSE IRSS

JTS 51.53 49.09 47.59 47.22 45.59
STS 24.46 23.49 23.87 27.87 30.43

JAG 117.73 20.01 22.52 18.29 16.07

NFSG]

SAG 05.56 06.52 05.38 05.94 07.38

HAG 0.72 0.87 0.64 0.67 0.53

Threshold as on 01.07.1995 (DOP & T)

JAG 1985 1985 1985 1984 1986
NFSG -- __
.-- -- __
SAG 1976 1975 1976 1976 1976
HAG 1963 1963 1963 1963 1963

SO. 135 Thc Minisq of Railways in their oficial rncmorandum subrnittcd

to us has plcadcd for utilisation of cspcrtisc acquircd by thc railway cnginccrs b!.
posting thcm on dcputation to othcr dcpartrncnts whcrc no organiscd cnginecring
scrviccs csist and to Public Scctor Entcrpriscs rcquiring cnginccrs. Thc Ministry
has also brought to our noticc thc rclativcly poor carccr prospccts of railway
ciiginccrs coniparcd to ofliccrs of All India Scniccs. Thc Ministry has argycd that
 iii this cra ol' Iibcralisation \\lien thc countn has clioscii tlic path ol' iiiarhct
cconomy to quichcn thc pacc of dcvclopnicnt. i t is cssciitial that prol'cssionalisni
bc cncoiiragcd aid spccialiscd scr\ iccs bc givcn thcir duc placc by granting parit!
with All India Scrviccs in thc iiiattcr of promotion prospccts and carccr
opportunit ics

Our 5 0 130 Wc havc csaniincd thc organisation of Indian Railways in dctail

rvi ~ ~ t i i t i ~ ~ , t t , f , i ~ i ~ ~ t i . \
our Chaptcr on thc Minis@ of Railways and haw givcn duc considcratlon to thc
iii
problcnis and i s h s r a i d by thc Ministry Wc also notc with conccm that thc last
cadrc rcvic\\ of Group 'A' organiscd railway scn'iccs itas donc as far b a d .as in
1980 We would like the Ministries of Finance- and the Department of
Personnelto expedite the pending cadre review of railway services. However,
in keeping with our general approach of providing a symbolic relief to
services, we recommend following upgradation of posts for engineering
services in Railways:-

I) Onc pst cach in RDSO and Group 'A'.training institutions from SA<i(Ks.5')00-(,700)to
I I N 3 (Rs.7300-7600) as rnciitioncd below:

lndiaii Raihva! Scrvicc - I)ircctor, Standards(Track) RDSO

of liiiginccrs - l)ircctor, Indian Railway lnstitutc of Civil I:nginccring, I'unc
Indian Railway Service - I)irector, Standards(Elcctrica1) RDSO
of I<lcctricalEngineers
- Director, Indian Railway Institute of Electrical Engineering Nasik

Indian Railway Scrvicc of - Director, Standards(Signalling),RDSO

Signal Engineers - Director, Indian Railway Institute of Signal Engineers. Secundcrabad
Indian Railway Service - Director(MotivePower) RDSO
of Mcchanical Engineers - Director, Indian Railway Institute of Mechanical and Electrical
Engineers

Further, our general recommendations with regard to

deputation of Group 'A' officers to PSUs would be applicable to engineers in
Railways.

Rectuibnenr o$ 50.137 The recruitment to all Railway Engineering Services (except

Speical Class Indian Railway Service of Mechanical Engineers) is done in following manner:-
Railway
Apprentices in
Indian Railway Direct Rectt. 60% through Combined Engineering Services Examination
Service of conducted by UPSC.
.Ilechanical
Engineers Promotion 40% Sclcction from eligible Group 'B' officers.

In casc of IRSME the direct recruitment quota of 60% is fillcd as undcr:-

by Combined Enginering Services Examination hcld by UPSC 50%; and

b!* appointment of candidates sclectcd as Special Class Raihva!.

Apprentices(SCRA) on thc results of a compctitivc examination hcld by
thc Commission 50%.

612
 For sclcction ol'SCKA. a caiididatc iiiust ha\c passcd in thc first or sccond
dii ision thc lntcriiicdiatc E\aiiiinatioii of a Uiiivcrsity or Board approvcd b!
Go\ crnnicnt nit11 Mathcmstics and at lcast onc pf thc subjccts Physics and
Chcniistc as subjwls ofthc c\sniiiiatioii. or posscss s qualification nhich has bccii
rccogniscd b! Govcrnmciit for thc purposcs of admission to thc csaiiiination

Wc undcrstand that tlic Apprcnticcs rccruitcd in IRSME havc

conlributcd significantly to tlic growth and dc\lcloprnciit of Railwh?s Hmcvcr.
in our v i m , thc rccruitnxnt of Apprcnticcs for induction into Group 'A' Scwicc is
an outdated conccpt. With thc sprcad and prolifcratioii of cnginccringkhnical
cducation and institutions. it would bc highly dcsirablc that this mclhod of
rccruitrncnt bc rcvicwcd. In fact. in a modcrn tcchnological world whcrc
cngnccring spccialisations\\ithm diflcrcnl disciplincs arc cmcrging, It would only
bc appropnatc and in Lhc intcrcst of tllc organisation that thc cnginccring graduatcs
Oi4r passing out of IlTs and Enginccring Collcgcs arc attracted to Railway Scniccs
~ i t i u i i . ~Combined Enginccring Scrviccs Examination of UPSC. We, therefore,
r ~ c c ~ ~ ~ i t ~ i ' , i . l r ~through
recommend that the Railway Administration dispense with recruitment of
SCRAs and that the direct recruitment quota in Indian Railway Service of
Mechanical Engineers be filled through Combined Engineering Services
Examination only. The Indian Railway Institute of Mechanical and Electrical
Engineers, Jamalpur will,' however continue for training of probationary
offkers recruited through Combined Engineering Services Examination of
UPSC.
Suborditiatc 50.138 We have discussed the payscales of Diploma engineers in
Engirgmrering Railways in the Chapter on the Ministry of Railways. A typical pay structure
Cadriv
as recommended by us and designations of diploma engineers recently
decided by the Ministry in consultation with the recognised labour
federations is given below:-

Existing Designation Existing Chjnged Designation Recommended

Pay Srale(Rs.) Pay %ale (Rs.)
(in present tcmu)
Inspector of Works, P. Way Jr. Engineer Gr.n 1600-2660
Inspector, Signal Inspector Gr.m 1400-2300 (With appropriate Sullix)

IOW, PWI, SI, etc., Gr. II 1600-2660 Jr. Engineer Gr.1 1640-2900
(With appropriate Suffix)

IOW,PWI, SI Gr.I* 2000-3200 Section Engineer 2000-3500

(With appropriate Suflix)

Chief IOW,Chief PWI, ctc. 2375-3500 Sr. Swtion Engineer 2375-3750

(With appropriate SufTix)
Group '13' post 25004000
*(part rccruitment of graduate cnginws)

I
I
DEPARTMENT OF SCIENCE AND TECHNOLOGY 1
I

: (113
 Survey of India
JTS STS JAG NFSG SAG HA(;
'%ngc shnrc i n
total dut\. posts 28 I T 47 09 I I 02 I I 0 I I X.? 0 3 I
Thrcshold as on
I 7 1005 I983 1982 I904 N A
Last cadrc rcwcw' for thc Scmcc was donc in I085

50, I30 A largc numbcr of Group 'A'.posts in thc Suncy of India arc
mamcd b\. arniy officcrs sccondcd from thc Corps of Enginccrs. Thcsc officcrs
rctain thcir licn in thc army and thcir pay is rcgulatcd undcr a spccial formula. Thc
civilian cnginaxmg ofifrccrs of organisation haw csprcsscd thcir dissatisfaction
against thcir blcak promotion prospccts and army oficcrs drawing much highcr
pay than thcir civilian countcrparts in thc same or highcr gradcs of pay. Thc
officers havc allcgcd delay in holding of DPCs and conscqucnt non-filling of largc
numbcr of posts.

50.140 It has bccn cxplaincd to us that Group 'A' Scrvicc in thc thc
S u n q of India has bccn strcamlincd by bifurcation into two strcams - Army and
Civilian - with thc promulgation of nmv rccruitmcnt rulcs in 1989. Ho\vcvcr, it has
bccn acknowledgcd that this bifurcation did not providc rclicf to Civilian officcrs
but rathcr creatcd further complications. It has been suggestcd that thc rcmcdy to
the problem cad be found if therc is no permanent secondment of Army 0fficct.s
who can bc trained and sent back to the army.

50.141 We have separately considered and recommended

progressive civilianisation of the Survey o f India. The manner in which this
civilianisation is proposed to take place has also been indicated by us in the
relevant Chapter. Meanwhile, we reiterate the recommendation of the third
CPC on regulation of the pay of army officers under normal deputation
terms. We also expect that the Department will hold DPCs regularly and fill
all vacant posts on a crash programme basis t o provide relief to Group 'A'
and Group 'B'officers in the organisation.

Subordinale 50.142 The pay structure of subordinate scientific and technical posts is
rechnica'posrs
recommended as under:-

Designation Pay Scale (Rs.)

Existing Recommended (in present terms)
Surveyor AssistanVScientific Assistant/
dicodctic Computer/Draflsman Div. I 1400-2600 1600-2660 Gradc I1
1640-2900 Grade I
<)!kc Surveyor 2000-3500 2000-3500 Oficc Surveyor
Gradc I1
25004000 Oflicc Survcyor
Grade I

I MINISTRY OF INDUSTRY 1
Irc.lr,rrc ot
SO.143 Thc Dircctoratc Gcncral of Tcchnical Dcvclopmcnt (DGTD) I\ as
(?fi<WS (Jf

c'rsfti Ide an attachcd officc of thc Dcpartmcnt of Industrial Dcvclopmcnt, Ministry of

614
I )ircc/iirir/c Indus@.. l h c organisation was originally sct up i n I050 as lhc I)cvclopniciit Wing
f ;mt*rtil t l / ortlic crst\vhilc Ministry of Coninicrcc and Industn... In rccognition of tlic pivotal
7 ;..‘~lllrr c d
I ~l~\~l*/il/~llll~ll/
rolc pla!.cd b!. thc organisation in thc ovcrall, Industrial Dcvclopmcnt. it was
/ I )( ;77 11 rcconslitutcd into thc Dircctoratc Gcncral of Tcchnical Dc\clopniciit and placcd
uiidcr thc chxgc of an indcpcndcnt Hcad dcsiglatd as Dircctor Gcncral (Tcchnical
Dcvclopiilcnt). Graduall!..’ as thc rolc of thc DGTD in thc planncd and /ntcgratcd
industrial dcvclopmcnt of thc c o u n t n assumcd grcatcr significancc. thc post of thc
hcad of thc organisation was upgradcd to thc Sccrctav (Tcchnical Dcvclopmcnt)
& Director Gcncral (Tcchnical Dcvclopmcnt) in 1973. Thc organisation continucd
till 3 1.3.1994 whcn it \\asdismantlcd.

~.rlllc/fi~fls Thc rcgulatory rolc pcrformcd by thc Tcchnical Ofliccrs prior to 104)1 is
no longcr rclcvant Howcvcr. thcir advison and dcvclopmcntdl functions arc still
valid. Thc functions pcrformcd by thcsc officcrs at prcscnt arc 8s undcr:-

I. To providc tcchnical inputs on industrial Liccnscs, forcign collaboration

and 100% Esport Oricntcd Units(E0U) proposals

2. Technical information rclatcd to Forcign invcstmcnt Promotion Board

(FIPB) proposals

3. Coordination of Devclopment Councils

4. Work related to Export Promotion Capital Goods Committcc, Esport

Processing Zones and other Export Promotion Councils.

5. Technical Advice on bi-lateral operations/agreemcnts.

6. Work relating to Directorate General of Foreign Trade. Commcrce.

Custom and Excise.

7. Interaction with Ministry of Scicnce & Technology on technolofi

evaluation and technology transfer related issues.

8. Implementation of Montreal Protocol through representation on various

Committees constituted by Ministry of Environment and Forcsts for
identifying projects for assistance from the Multilateral Fund.

9. Coordination with other Departments on energy conservation measures in

industrial sectors.

10. Coordinating the efforts of automobile ancillaries for adopting

environmental friendly technologies in automobile sector.

1I . Tcchnical advice on input-output norms, project rmport certification for

custom tariff purposes and advancc licenses for cxport production

12. Providing technical inputs for Parliamcnt work

13. Entrepreneurs Guidance

14. Tcchnical inputs to Burcau of Indian Standards (BIS) in

615
 li~rniulation/aiiiciidnicnt of standards

I5 \\'ark rclatcd to iiidustrial dcvclopmciil 19 Co-ord~iiatronDivision for

dill'crcnt Statcs

I0 Par~iciyationin forcigii in\ cstmcii\ promotion. scniinars. cshibitions and

\Vorkshops

17 To rcndcr tcchnical advicc on iiialtcrs rcfcrrcd to by othcr

hlinistrics/Dcpartnicntsto Ministry of Indust? from timc to timc

so.144 Thc Minisby has infomlcd us that thcrc is acutc stagnation in thc
cadrc of Tcchnical Oficcrs and pcriod of stagnation rangcs from 4 ycars to 15
ycars at diffcrcnt Icvcls.

Cadre Structure:-
Assistant Dcvclopmcnt Officcr(Rs.2200-4000) 22
Dcvelopmcnt Officer(Rs.3000-4500) 25
Additional Industrial Adviser (Rs.4 100-5300) 03
Industrial Adviscr(Rs.4500-S700) 0s

Total 55

Our
50.145 The technical oficers of the Ministry of Industry would be
recommend(ttions
covered by the general scheme of Assurcd Career Progrcssion. This would provide
them some relief

50.146 We do not accept the suggestion for upgradation of the 50%

posts of Assistant Development Oficers(JTS) and Development Ofticers(STS)
made by the association of the technical officers.

50.147 However, the pay scale of Additional Industrial Adviser may

be rationalised and revised from the existing Rs.4100-5300 to Rs.4500-5700.
Consequently, the pay scale of Industrial Advisers be upgraded from
Rs.450-5780 to Rs.5100-6150 in present terms and the posts of Development
Officers be seiregated as under:-

Existing Proposed

Development Officers (Rs.3000-4500) (25) Development Officers

(Rs.3000-4500) (15)
---- Sr. Dcvclopmcnt Officers
(Rs.3700-5000) ( I 0)
I MINISTRY OF SURFACE TRANSPORT I
Border Roads Engineering Service (BRES)

JTS STS JAG NFSC SAG HAG

, sharc of
'%jgc I I
total duty posts 67.65 23.48 7.39 1.31 0 18
Thrpshold as on
I . 7.'1995 - - I967 1964 1963 1963

50.14X Majority of thc officcrs in BRO bclongs to thc Bordcr Roads

Engineers Service(BRES)(Civil Engumring and Electrical & Mechanical Cadrc).
As pcr thc manning policy, following pcrccntage of sanction4 posts arc tcnhlc
by Arm\. and BRES Oficcrs :-

Appointmcnts Tenable by A m y -Officers Tenwble by BRES Offiien

1)trektor Gencrgl 100% *-

Addl. Ilirector General -- 100%

C h i d En~incerA3rigadier 50% SO?h
S.E.fSG) Colonel 55% 45%
S.E./Lt Colonel 55% 45%
1i.E.lMajor 35% 65%
A.E.E.ICaptain 20% 80%
A.E./Lieutenant - 1WA

50.149 In the Electrical & Mechanical Wing the highest rank which is
tenable by BRES Officers is Supdt. Engineer (Mechanical) (SG).As per manning
policy, the following percentage of sanctioned posts are tenable by A q / G R E F
Oficers :-

Brigadier {DTA) foo% -

Supld. Enginecr (Mechanical (SG)/ 5O?h 50%
Colonel)
Suptd. Engineer (Mech.wt.Colonel 50% 50%
Executive Engineer (Mechrnajor 42% 58%
A.E.E. (EBtMYCaptain '20% 80%
A.E. (EBrM)nieutcnant *- 100%

50.150 It has been strongly represented by thc BRO Mim that the time
taken for promotions from one rank to the next trigher rank is very long as
compared to other Engincering Services which makes the BRES unattractive and
they prefer to seek other avenues/service where the promotions/ cemuneratiuns are
much better.

50.151 They have fwther demanded removal of disparities of rank

vis-a-vis Army by marking Superintending Engineer (E&M)/(Civil) (SG)as
functional and suggcskd creation of posts of Additional CE (Civil)/E&M in thc
scale of Rs.5 100-6300

so.152 In our opinion, the proposed ACP upto non-functional

selection grade would provide some relief. Last cadre review for the Service

617
 was done in 1986. We recommend a timcbound early review of thc cadre for
improving the career prospects of the Service.

I n our opinion, the proposed creation of an additional level

of Additional Chief Engineer would not serve any riieaningful purpose.

Designation Pay Scdr (Rs.)

Existing Rrcwmmciided (in prcsen! rcrms)
Suprititcndctit ( h e II 1400-2300 1 OOO-?OC~O
(I.;lcctricrl and Mcciiatitcal)
Supcrintcndcnt Grade 1 1040-2900 1 040-2900
Assistant 1:npinccr 2000-3500 2OO(L~500Assistant 1~:ripiiiccr
(irndc I1
2500-4000 Assistant linpinecr

I MiNISTRYOFMlNES 1
Geological Survey of India
JTS STS JAG NFSG SAG HAG
'e age share of
total duty posts
Mechanical 29.41 50 17.65 2.94
Drilling 57.03 26.56 14.84 1.56
Threshold as on
1.7. I995
Mcchiinical 1974 1964 1964 NA
Drilling 1978 1966 1964 None

50.153 Geological Survey of India is a ficld oriented organisation

responsible for collection, collation, processing and dissemination of earth science
data besides being a lead agency in the field of resource evaluation of mineral
wealth in the country. Geological Survey of India (a multi-disciplinary scientific
organisation); consists of five scientific strcams viz. geology,
geophysics(Exploration), Geophysics(Instrumentation), Chemistry and Mineral
Physics and two technical streams viz. Engineering and Drilling. Mechanical
Engmeers working in the Engineering and Transp! Divisicn(EhT) Division and
Drilling Division of Geological Survcy of India arc recruitcd through Combined
Engineering Services Examination, but their carecr gronth, perks ctc., are much
inferior to their counterparts in othcr ministrics.

50.154 We have considered the organisational restructuring of

Geological Survey of India and made recommendations in this regard in the
Chapter on the Ministry of Mines. This would cover some of the'issues raised
by the engineering officers of the organisation. However, to improve the
career prospects and rationalise the organisational functions, we recommend
the merger of the posts of Mechanical and Drilling engineers into one service.
Sll hr l l . 1 l l l l 1 1 1 1 ~ Wc rccoiiitiictid f'ollowng pa!. slriicturc for subordrnalc
/~ll~~~ll,*l*rllr~ cnginccring cadre
( 'crcirrt,
-
Drsignrtion (Rs.)
Pay S C H ~
Existing Rrrommrndrd(in prrsciit trims)
Mccliiiiiical Strciirii
Ibrc~iiiiriJuiiior 1400-2300 I ooo-2oflo
Senior I*'cwciiiaii l(140-2'A)O 1640-2900
As$wit Mcchatiical I*:iigiiiccr 2000-3500 2000-3500 Assistant Mccliiinical lhgtr~cci
(iradc II
15003000 Assistatit Mcclianichlliti~iriccf
(iradc I

1)rillirig Strcarii
Juiiior l'cchnical Assislatil(l )rilliiig)
Scriior 'I'cchtiical Assislaiit(1)rillirig)
I)riller
1400-2.300 1 600-2600
1040-2000 1640-2900
1000-3500 2000-3500 Driller Grade I1
2500-4000 1)riller Grade 1

~'l>lIclli.~l"l.s 50 IS5 We havc not suggcstcd any changc in Group 'A' pay scalcs in
prcscnt tcrnis but in subordinatc cqinccring cadres, following diffcrcrit pattcrns
havc cmcrgcd:-

Pattern No.1 (CPWD, P&T Civil Wing, MES, Information & Broadcasting,
etc.)

Pay Scales
Existing Proposed
Rs. Rs.
1400-2300 1GOO-2600
1640-2900 1640-2900
2000-3500 2000-3500
2500-4000
3000-45 00 3000-4500
(Gr.'A' STS)

Pattern No.2 (Ordnance Factories)

1400-2300 1600-2660
1600-2660 1640-2900
2000-3200 2000-3500
23 75-3 500 2375-3750
2200-4000 2200-4006
,(Gr.'A'JTS) Gr. 'A' JTS)

Pattern Nm3 (Railways and Indian Naval Armament Supply Organisation)

1400-2300 1600-2660
1600-2660 1640-2900
2000-3200 2000-3500
2 3 7 5 -3 500 2375-3750
2000-3500*
 2375-3750** I 2500-4000
(Group B )

* NASO ** Rail\va!.s
(Notc Thcrc is no scgrcgation of Group 'A' and Group 'B' posts in Juiiior Tinic
Scalc in Railivays A Group 'B' oficcr whcn occupying thc Junior Tinic Scalc
post, i s grant@ thc pa!. scalc of Rs 2375-3750 and on sclcction into Group 'A'
S C ~ I C C .is placcd in appropnatc Group 'A' pa!* scalc (JTS or STS)

Thc pattcm of pay structurc obtaining in Railways would also bc

a\ ailablc in SCIC itific cadrcs of Dircctoratc Gcncral of Quality Assurancc (DGQA)
and Dcfcncc Rcscarch and Dcvclopmcnt Organisation (Ministp of Dcfcncc).

Promotion Patterns of Subordinate Engineering Staff

The followir.g patterns havc cmcrgcd as a rcsult of

rccommendations madc by us:-

Pattern No.1: Time-bound Promotions:

CPWD-pattern of timc-bound promotions which cnvisagcs first

time-bound promotion aftcr 5.years of senricc to thc second pay scale of
Rs.1640-2900and subsequent personal promotion to thc third pay scale of
Rs.2000-3500after another 10 years is now available to follotving three cadres:-

1) P&T Civil Wing

ii) Infomation & Broadcasting (Civil and Elcctrical Engineers)
iii) MES (Building and Roads and Survey Wings)
Pattern No.2: ACP Scheme.

It involves financial upgradations (not promotions) and is

proposed to be made available to all other cadres under the proposed Assured
Career Progression Scheme.
Pattern No.& Department of Telecom:

One TimeBound Promotion and Biennial Cadre Review Scheme

would be available to the staff of the Department of Tele.com not opting for
absorption in 'restructured cadres'.

The cadres covered by the CPWD pattern of promotion

would have a distinct advantage since they would be getting promotions in
shorter time span compared to financial upgradations of ACP scheme and
that too without any linkage to the availability of posts. However, this is
proposed to be retained and is intended to ensure that certain benefits
already available are not withdrawn to the detriment of the interests of the
personnel concerned. This is to be a departure from the normal ACB Scheme
in respect of residency period only.

620
51.1 Scicntific scrviccs cxist in organisations concerncd t d h work
rclating to basic or applicd research, cxpcrimcntal development and dcsign and
cnginecring. There arc ovcr 32.800 scienti!c and tcchnical pcrsonncl, in various
pay scales ranging from Group A to Group D. Almost half of these arc in Group
A, in the 10 major S%T Ministries/Departments/Organisations,viz. the Ministrics
of Environment & Forests and Non-conventional Energy Sourcesl and the
Departments of Space, Atomic Energy, Electronics, Science & Technology, Bio-
technology, Scientific and Industrial Research and Ocean Development and the
Defence Research & Development Organisation. These organisations enjoy
considerable freedom in framing their administrative and personnel policies,
includng career management, There are some other Ministries and Departmcnts
also, which engage groups of S&T personnel.

51.2 The Second CPC defined Scientificofficers as those employed on

different kinds of duties such as research, scientific development, extension and
survey. At higher levels their duties included administration, direction and
supervision. The minimum qualificationsrequired for recruitment to Class I Junior
Scale posts waS usually a first class Master's degree followed by good research
work, with higher standards of research for higher positions. The Second CPC
suggested a special merit promotion scheme for promotion of scientific pcrsonncl.

51.3 The l h r d CPC covered a larger number of activities as scientific,

includng basic and applied rcsearch, cxtcnsion, s w e y exploration and inspcction.
That CPC also observed that many scientim served in an advisory capacity, wbere
their work may be concerned with such divcrsc fields as economic planning and
internal security. It also cmphasiscd that scientific carccrs should bc based on
creativity and merit rathcr than scniority. thus evolving thc concept of Flcxiblc
Complcmcnting.

62 I
 51.4 Various nicmoranda to tlic Coiiiniissioiihavc strcsscd on thc uccd
for a bcttcr dispcnsaiion to thc scicntific scniccs. in t h fortii
~ of pay-scalcs, carccr
progrcssioti, conditions of scrvicc and pcrquisitcs, spccial allowmccs.
supcrannuation igc and post-rctircmcnt bcncfik. Somc nicniorandists h a w pointcd
out the mismatch bctwccn thc prcscribcd cducational qualifications and pay-scalcs
on thc onc hand and comparisons across diffcrcnt scicntific organisations iiisidc
aid outsidc thc Ccntral Govcrnmcnt,on thc otlicr. Many of thcsc posts arc "dcad-
cnd" isolated posts. dcvoid of any carccr charms, thus rcsulting in dcmands for
upgradation and provision .of promotion avcnucs, along with grant of ccrtain
spccial pcrks and allowanccs to kccp scientific scrviccs attractivc, Crcation of an
all- India scicntificscnicc has also bccn sought along with gcncral parity with thc
othcr All-India and organised seniccs, as also standardising dcsignations to
conform with Sccrctariatjob titlcs. Scicntific pcrsonncl who appcarcd bcforc us
for .evidence requested for permission to takc up mcmbcrship of profcssional
bodies. subscribe to journals, attend national and intcmalional confcrenccs and
avail thcmselvcs of sabbatical, as availablc in thc univcrsitics, for constantly
upgrading their knowledge and profcssional expcrtisc. Permitting voluntay
retirement with lesser qualifying service for scientific personncl has been demandcd
along with increase in age of superannuation for continuity and longevity of
scientific knowledge and expenem' in Government. Scicntists have also asked for
lateral movement from Government to industy and vicc-vcrsa including
permission to take up private consultancy, recognition of outstanding talent,
membershipof national/ international bodies and attending national/ international
conferences at Government expense, and a system for recognising outstanding
talent in Government. Grievances have also becn voiced against the functioning
of the Flexible Complementing Scheme, not only'stressing the need to makc it
uniformly applicable, but also to extend ii to all organisations that have becn
declared scientific by the nodal Ministry.
Secretaries o$ 51.5 A group oCSecretaries of Scientific Ministries and Departments,
ScientiJc at a meeting with us, highlighted the provisions of the Scientific Policy Resolution
Ministries
which mentioned good career and conditions of service for scientists, and
Parliament's approval to give scientists an honoured place. The group also
recognisedthe need for an cconomic package for attracting and retaining scientists
in Government as there is flight of talent to multinationals, other countries and
careers. On our suggestion the group agreed to organise an inter-Ministerial
Committeeof the Scientificorganisations to deliberate on the problems and advise
us on the desired course of action.

Rationabsation o$ 5 1.6 We find that a large number of organisations havc been covered
'I'ermrtrology bi, the term "scientific organisation" cmploying "scientific pcrsonncl" Wc
have,thereforc, considered the fcasibility of rationalising thc terminology of
"scientific senfices" so as to focus morc sharply on the activities of scientific
rcscarch and devclopmcnt

622
 Consultancy Study on Scientific and Agricultural Research

-
Inter-Ministerial Committee

51.7 In pursuancc of our rcqucst to the Group of Sccrctarics the

Dcpartmnt of Scicncc and Tcchnology constituted an Intcr-Ministcrial Committcc
constitutcd in thc ycar 19g5, comprising rcprcscntativcs of thc major scicntific
departments, under Shri Y.S.Rajan, Adviscr in thc Dcpartmcnt to csaminc thc
issucs involved and suggcst measi?;,, != inakc' thc scientific and tcchnological
carcers morc attractik- It was also cspcctcd to suggest ncw initiativcs that S&T
departmentscan take for attracting and retaining scientific talent in Government.
The Committee made various suggestions which haw also been kept in mind by
us while giving our recommendations.

Our Recommendations

Categorisation of 5 1.8 We are ofthe opinion that Scientific and Technological personnel
scientrjic can be organised into two broad fields of activity - the Scientist Administrator and
personnel
the R&D Professional, depending on type of organisation and the kind of activity
involved. The former would usually be manning posts in fhe Secretariat and.
Headquarters organisations entrusted with administering and guiding science and
also providing adrmnisirativeand logistic support to the latter. R&D professionals,
on +heother hand, are primarily involved in knowledge generation and application
of knowledge to create new products, materials and services. We have defined the
term R&D professional rather elaborately in the section on Flexible
Complementing Scheme.

Organised service 5 1.9 The Second CPC observed the existence of 929 scientists at Class
I level, of which 5 13 formed part of five organised scientific services, namely thc
Defence Science Servicc, Indian Meteorological Service, Botanical, Gcological and
Zoological Surveys of India. Thc Defence Science, Gcological Survey and India
Mcteorological services wcrc organiscd up to the Group B level also. That CPC
considered the matter of constitution of an All India S&T Service but found the
proposal impracticable in vicw of thc rcquircment of common qualifications.
gradation lists and intcrchangcability. Thc scicntific scrviccs do not ha1.c thcsc
fcaturcs bccausc of spccialiscd qualifications in diffcrcnt branchcs rcsulting in widc
\.xiations in naturc of dutics. By thc timc of thc 4th CPC, thc Dcfcncc Scicncc
scrticc was split into thrcc, namely thc Dcfcncc R&D scrvicc, Dcfcncc
Acronautical Quality Assurancc scrvicc and Dcfcncc Quality Assurancc scnicc.

623
 l'hc iii1cr-Miiiistcnd R a y Coiimiittcc has also obscrvcd that aii All liidia scrvicc
cm criiig a11 S&T pcrsoiiiicl in various Go\ cnimcnt Dcpartnicnts aiid agciicics is
riot fcasiblc as accuniulatcd cvpcricnccs in diffcicnt ficlds of actn it! havc \ c c
spccific applications While wc do not coiisidcr a siiiglc scriicc of R&D
profcssionals or S&T pcrsonncl as fcasiblc. we recommend that where the
number of posts is substantial and a common field of activity is involved, an
organised service fob that field of activity should be constituted.

5 1 10 Both thc intcr-Ministcrial Rajan Committcc as also thc

Consultancy Study havc suggcstcd that constant upgradation of scicntific
kno\tlcdgc is ccntral to ovcrconungthc problcm of obsolcsccncc Thc Fourth CPC
had rccommcndcd that somc i m t i v c should bc givcn to cmployccs in gciicral who
acquirc qualifications which arc uscful for thcir work and contributc to thcir
cfficicncy We have recommended elsewhere for all Group A Officers a
general scheme regarding meetings of National and International Bodies.
The Group A S&T Odficers should similarly be granted permission to become
members of one national and one international institution or society, duly
recognised, approved and listed by the concerned authorities and the
subscription made on such memberships may be fully reimbursed by the
Government. Approval and recognition of such bodies for membership
should be based on an integral relationship between the specialisation
practised by the officer concerned and the nature of the nationalhternational
bodies to which membership is sought. Attending national and international
conferences by R&D professionals should be cncouraged in order lo providc
opportunities to them to enhance latest knowledge and skills, prcscnt and obtain
papers in R&Dconferenccs and enhance creative capacity We recommend that
R&D professionals should be encouraged to attend at least one national
conferenceevery two years and one international conference every four years
at Government expense Care should be taken by the organisation concerned
that such attendance is only at conferences of substantial standard. The
authority competent to approve the participation should accord timely
approval. Such conferenceswhen held in India should not lead to the normal
work of the organisation being disturbed.
Sabbalical 51.1 1 Sabbatical, a kind of leave granted at intervals, is presently
available to the trading faculty in the higher teaching institutions and universities
Government officers, including S&T personnel are presently covered by provisions
of Study Leave or training on subjects directly related to duties We recommend
that a Sabbatical should also be permitted in addition only to R&D
professionals on the lines already available in the Universities. The total
period of sabbatical in the entire career should not exceed two years and the
period of sabbatical on any one occasion should not exceed one year. During
the sabbatical, the officer may draw a stipend for local expenses but should
not be allowed to take up a job.
t btrsuliunci . 5 1 12 Pcrmission to take up consultancies has bccn sought for lateral
movcment on the analogy of mechanisms existing in thc autonomous and highcr
tcaching institutions in other sectors Wc arc aware of thc csistcncc of similar
schcmcs of rcscarch and advisory consdtancy on instrtutional basis providcd to the
acadcmic staff in thc Indian lnstitutcs of Tcchnology, Council for Scientific and
Industrial Research. ctc Wc havc alrcady obscrvcd in our discussion clscwhcrc
IR this chapter thal linkages bctwccn scxntific rcscarcb and industry arc Iikcly to

624
 pln'a crucial rok in soc1~.cco1x)1111c
translbnnation in thc fulurc We accordingly
recommend that R&D institutions should draw up their own consultancy
schemes based on the following broad parameters:-

1) No individual should bc pcrmittcd to undcrtakc consultanq assignillc'ills

indcpcndcntl! Only institutional consultancy assignments may be
permitted.

i i) Institutional Consultancy should bc confincd to R&D institutions and

consultancy teams should consist of R&D professionals only.

iii) The team of R&D professionals should be selected by rotation b\ thc

conccrncd Institution rccciving thc assignmcnt.

iv) The apportionment of the Consultancy fee should be done in such a

manner that 75% of thc amount is rctaincd by thc institution (aficr
dcducting the actual costs, and cost of infrastmcturc) and the remaining
25% is given to the consultancy team,

v) Thc period spent on consultancy by an individual R&D professional

should not exceed 30 days in a y*, Iind

vi) The consultancy fee received by an individual in a financial year

should net exceed his three months' gross emoluments.

Scientist Emerims 5 1 ]3 An institutionalised system of rmgnising outstanding and

except~onalscientific talent in ways other than career progression, increments, etc.
ha3 been sought on the lines of gallantry awards for the Armed forces, Police and
ciiilian awards. The Consultants have suggested two ways of mgnising high
performers. First, to relax the conditions in the merit-based promotions, and the
second to award the status of "National Scientist" or "EminCrit Scientist", by
granting free access to research through liberal travel perks, networking, ctc. for
penods beyond usual m i c e . Some of the autonomous scientific institutions like
the CSIR, UGC,. AICTE, ICAR, etc, have already instituted certain schemes in
recognition of scientific talent, such as Emeritus Scientist (CSIR), National and
Emeritus Fellowships (UGC), National Chairs in the AICTE and Emeritus
Scientist in the ICAR. On a study of the provisions of the different schemes, we
arc oonvinoedthat such Ischeme in the Central Government would be of immense
use in not only attmctmg andretaining scientific talent, but also getting the best out
of such talent. We recommend that a scheme of Scientist Emeritus should be
introduced only for superannuated scientists of exceptional merit warranting
national recognition. They may be permitted to draw pay of Rs.8000 (fixed) for
a period of 5 years after superannuation,with the freedom to travel to any research
institution in the country or abroad as per entitlement at that level, for purposes of
research. The total number of "Scientists Emeritus" in Government should,
h&vever, bc limited to a maximum of 5 at any given point of time, who will be
d r a w from among the R&D professionals of Central-Govcmmcntbeyond the
Icvcls of FCS.

625
 .\*tun durd C l I4 Thc dcriiand for standard job titlcs cnvisagcs the cs-ol'ficio
I)usignvtrotr t dcsigiiatioiis of Ikput?. Sccrclaq.. Dircctor. Joint Sccrclap. ctc i n vie\\ of thc
yrlbnii,uicc of sccrctariatjobs and dealing \villi sccrctariat couiitcrparis in addition
to pcrl'ortiiing S&T prograrnnic nianagcnicnt. Thcrc I S a rangc of dcsigiiatioiis
prcscntl!. availablc to Scicntists and R&D profcssionals. likc Advisors. Joint
Ad\.isors. Dcputj. Ad\-isors. Scicntid Enginccrs. Joint Dircctors. Assistant
Dircctors. Scicipfic Officers. Rcscarch Officcrs. ctc.. Thc Consultancy study has
pointed out thc,non-standard job titlcs as onc of thc disinccntivcs to a scicntific
carccr. Emincnt scicntists. during oral hcaring bcforc us. havc also csprcsscd a
dcsirc that dcsignations should conform to thc job rcquircnicnts. Thc carlicr CPCs
did not considcr this mattcr. Wc agrcc with thc vicw that thcrc ouglit to bc
standard dcsignilions. Scicntific activity is broadly obscnicd to bc pcrformcd in
thrcc major ficlds - Opcrations and Applications, Scicnti fic and Tcchnological
Ad\,icc. and Managcmcnt of Scicntific and Tcchnological Missions and
Programmcs. Tlk Opcrations ficld of activity cithcr rcndcrs scrviccs dircctly to thc
public. or cngagcs in ficld activities to.bc uscd dircctly for the bcncfit of thc public.
likc Sun? organisations, Public works; Civil, Elcctrical and lrrigation Scr\.iccs
and Projccts, Locust and Cyclonc Warning systcms and forecasts, ctc. Somc
organisations arc cngagcd in providng scicntific and tcchnological consultancy, aid
and ad\.icc in thcir rcspcctivc fields of activity. which wc may rcfcr to as thc
Advison. Ficld.*TheProgramme Managcmcnt ficld would c o w such activitics as
arc idcntificd with a definitc beginning and definitc cnd in accordance ?vith a plan.
includmg the scientific and technological missions and projccts. We recommend
that standard designalions should be adopted among scientist administrators
Our recommendations in this regard, based on pay-scales, are as given in
Annexe 51.1.

I Flexible Complementing %erne I

General 51.15 On the recommendations of the Third CPC this schcmc (FCS) was
introducrio" and
introduced for scientific services for promotion from onc grade to another aftcr a
objectives
prcscribcd period of service on the basis of proven merit and ability irrcspcctivc of
thc Occurrence of a vacancy. Initially introduccd in a few scientific Departments
and autonomous bodies cngaged in scientificrcsearch and development activity, thc
schcmc has now been extended to ten major S&T Ministries, Departments and
organisations, as also some scientific personnel in other organisations. Thc
guidelines on the subject stipulate that FCS can be introduced for scicntific
pcrsonncl in organisations declared as S&T institutions by the Department of
Scicncc and Technology, which perform scientific activities of rcscarch and
dcvclopmcnt and other act'ivitir;s closely linked thereto. Thc schcmc is fully
flcxiblc from the entry lcvcl of Group A, i t . Scientist B (Rs.2200-4000) to thc
highcr SAG Icvcl of Scicntist H (Rs.5900-7300).In somc organisations, thc
dcsignations havc bccn adopted differently.

I)isioriiotr.s iir ilrr .i1 1 6

, Thc schcmc as originally formulatcd by thc Third CPC and
.scltcnrr subscqucntly implcmcntcd cnvisagcd thc rcquircmcnt of uniform application and
cstcnsion to all scicntific posls csccpt thosc pcrtaining to administrativc and
advisory functions in thc Ministrics and Dcpartmcnts. It also rcquircd that thc
opcration of thc schcinc should not result in structural distortions.

626
 I )I \/>lr,.rlrc'c $ 1 17 In a \ c c largc nuiii1~crof iiiciiioraiida rccci\cd b! us the
organisations havc dcmandcd c\tcnsion of tlic FCS to llicni in tic\\ of tllcir
dcclaration as SbiT organisations A numbcr of disparitics ha\ c also bccn pointed
out bctnccn tlic S&T organisat ions \\ i t l i i u tlic FC'S mechanism l3csidcs.
mcniorandists liavc also ashcd for a gcncral parit! bct\\ccn thc scicntific and ilic
all-India scn iccs in tcniis of pa! -scales and carccr progression

nrcr,A*
Slcgp~slrotrs 5 I 18 A nunibcr of working groups and committccs ha\z at various
It1 rhc pusr timcs gonc into thc \\orking and inadcquacics of thc schcmc and nladc sugcstions
for improvcmcnt of its diffcrcnt mcchanisnis. Thc most rcccnt onc among thcm
was thc sub-Group of thc Scicntific Aduison Committcc to thc Cabinct (SACC).
which pointcd out a numbcr of distortions including lack of uniformit\- in
application. numbcr of pay'scalcs, rcsidcncy pcriods. ctc. It also madc suggcstions
on uniform application of thc schcmc and its critcria. Wc h a w kcpt in mind thc
suggcstions madc b!. thc sub-Group in making our rccommcndations.

Itrudequacirs of 5 1.19 Wc havc oursclvcs obscwcd a numbcr of inadequacies in thc

rile exir~itrg schcmc. Organisations covcrcd undcr thc csisting arrangements also face somc
provisions
distortions. First, with promotions grantcd undcr the Flcxiblc Complementing
Schemc for scientists. a largc numbcr of thcm tend to conccntrate towards thc
middle or top of the FCS hicrarchy, with cflux of timc. Sccondly, with activities
not directly linked to rcsearch, experimentation or development, also covcrcd by
the scheme, there is flight of talent from thcsc basic scientific activities to
administrative and managerial positions. Thirdly, there is no clear distinction
between S&T and non-S&T organisations, with the result that there is no standard
application of FCS guidelines. The scheme has not been applied uniformly with
regard to a number of parameters -scales of pay, residency periods, eligibility
criteria and appraisal and assessment procedures, designations, dates of effect and
application of guidelines. In certain organisations FCS has also been extended to
Scientific Staff, albeit in a limited way.

R&D 51.20 We first take up the question of defining R&D organisations,

profiss'o'ru's personnel and activities. We have already brought out the distinction between the
Scientist administrator and the R&D professional. We suggest that an R&D
professional should be defined as a person who possesses academic
qualifications of at least Master's degree in Natural, Agricultural or Social
Sciences, or a Bachelor's degree in Engineering, Technology or Medicine,
including scientists, engineers, doctors and other research professionals, and
who while working in those capacities creates new scientific knowledge and
innovative, engineering, technological or medical techniques, including
persons with scientific and technological training engaged in professional
research and development work predominantly throughout their working
lives. Only Executives fulfilling the eligibility criteria will be covered under onc
definition of R&D profession. For purposes of application of the FCS, there is also
need to define R&D posts, activities and organisations, which has been given in
Annexe 51.2. We recommend that these definitions should be adhered to
while applying the modified Flexible Complementing Scheme as suggested by
us in the forthcoming paras.

I'clrrn. ~vrlir.4 11 5 1 21 On thc qucstion of parity In thc scalcs of pay in thc scicntific
I t r d r a S e n ice\ scrviccs and thc all-India and organiscd Group A Central Scnwcs, we obscnc that
the scalcs of pay of Rs 4 100-5300, Rs 5 100-6300 and Rs 5900-7300, havc bccn

62 7
 ;idoptcd \itidcr the FCS i n sotiic organisntions. aiid not 111 o~licrs.hcsidcs "spccid ..
scalcs" crcntcd b! sonic of the Sctciitilic Ilcpartiiiciits Ibi iiicrtt proiiiotioiis I Iic
iiircr-Mrntsrciin1 Knlnii ('onimtttcc has not sccn an\ ic;isoii to disturb tlic prcsciil
rclalii ttics ti1 the tuo slrcains In our gciicral rccoaiiiiciidrr~roiis o i i scnlcs o f pa!
i n tlic rcki ntit chaptcrs \\c hnvc suggcstcd r ~ t i o i i ~ l i ~ iOt~~S iO~I IiIiCS ~ ~ I I C S of
1,atcr 111 his cliaptcr. \\c hnvc suggcstcd iiicnsiircs to bring tlic scnlcs l o a iiiiiforni
dispcnsn~ron\\ i t h i n thc Flc\iblc Coii~pl~iiicntiiig
Schciilc

t l ~ ~ ~ l i / i ~ v l i ~ h ~5r r1 h22
lc~ Siiicc FCS in its prcscnt fomi has rcsiilkd i n structurnl distortions
I ~ilfll~lll~flll~flllll~
and Inch 01' uniformit\ in application i n thc idcntilicd organisations. tic I'ccl that
thcrc I S nccd for rcvisioii thcrcof A scparatc assurcd carccr progrcssion schcnic
has bccn scpnratcly rcconiiricndcd for all catcgorics Cdnsidcring thc diflicult\ 01'
lcsscr mailnbtlity of posts at higlicr Ic\cls for scicntists doing R b D norh. we
recommend a modified Flexible Coniplemcnting Sclienie for RR 1)
professionals at Group A level, in place of the existing scheme. The modified
FCS should be made applicable t o all eligible R&D professionals who work
in fields o f creative research activity throughout their service, in a l l
Departments, including Space, Atomic Energy and Defence Research and
Development Organisation, without special dispensations for individual
departments. Professionals posted t o Secretariats of Ministries and
Departments, will be excluded from this scheme, and will be subject to the
normal Assured Career Progression scheme. Organisations already declared
as "S&T" and approved for FCS, other than the Secretariats Organisations
will continue with the FCS in its modified form. FCS will not apply to
personnel falling in the existing Group B,C & D categories for whom the
provisions o f ACP will apply.

Pm ~ c n l rmid
, 5 1 23 Thc schcme in its present form pro\ idcs carccr progrcssion ovcr
re rrdolc\
a \wying numbcr of pay scales in differcnt organisations, and with diffcrciiccs i i i
the rcsidcncy periods, as given in Annexe 51.3. In ccrtam organisations. cnough
pa!. scalcs arc not available for eligible scientists to bc promotcd Kccping in mind
the nccd to provide quickcr promotions at thc initial stagcs of n scicntific carccr.
we recommend that the pay scales over which the modified FCS should be
uniformly applied in all R&D organisations should be restricted t o the
following six, with the residency periods shown against each:-

1) Rs.2200-4000 3 \cars
2) Rs 3000-4500 4 ycars
3) Rs.3700-5000 4 ycars
4) Rs 4500-5700 5 ycars
5) Rs 5 100-6300 5 ycars
6) Rs 5900-7300

Thc scales of pay of Rs 4 100-5300 and Rs 5900-6700. \vhcrc\,cr provided for

prcscntl).,~111not be part of thc m&ficd FCS. All R&D institutions must adopt
uniform residency periods indicated against each scale, and no departure
thereform should be permitted except to the extent indicated in the succeeding
paragraphs.

k l i g i h ~ l l / A,
\ 51 24 Thc application of cligibility and asscss~iicntcrttcria has also lcft
. I \\1'\\tll1'll/
scope for uniforniity to bc introduccd . Ccrtain organisations, wc obscrvc. rcsort
oi/c'riii
to pro\m mcrit as ucll as a niininium rcsidcncy pcriod, whilc othcrs to thc latter

62 x
 alonc Thcrc arc also dillcrcnccs in applying rclasations for c\ccptional mcrit for
advancing promotions uiidcr thc schcmc, through asscssnicnts We recommend
that exceptionally meritorious candidates should be granted relaxation in
residency period upto a maximum of two occasions in their entire career, the
relaxation being o f not more than one year on any single occasion. Ifa
candidate i s unable to qualify for advancement, helshe should be required to
"cod-off' for a period o f 3 years before being considered for the FCS on a
secpnd occasion at the same level. In case the candidate i s unable to qualify
on (he second occasion hdshe should again "cool-off' for another three years
before being finally considered on a third occasion. Failure to qualify thrice
at the same level, should disqualify the candidate permanently from the FCS
and hdshe should continue in the Assured Career Progression scheme. The
Assessment criteria for advancement under the FCS should be strict
requiring proven merit, evidence o f progressive research work and
oerformance in interview besides the minimum residency period. There
shoold be no prior screening for referring eligible candidates to the
Assessment Board. This will ensure that candidates arc not blocked from
consideration due to internal biases in the organisation We recommend that
Confidential Performance Appraisal Report (CPAR) Forms adopted by the
DROO should be uniformly used by all R&D institutions identified and
approved for FCS.

Composition nnd 5 1 25 hatisfkction has been expressed on account of the regularity with which
m A n g 01
the Assessing Committees or Boards meet as also their constitution. Scientists
Assessment
Boards
have complained of delays in constituting the Boards as well as the capacity of
Members to arrive at a balanced judgement We recommend that Assessment
Boards should be uniformly constituted for all assessment proposals, with at
least 50% o f the members being from outside the organisation where the
proposal is to apply. Also 50% of the members of the Board must be subject-
matter experts in the concerned field of activity. The Board should meet
regularly every six months in January and July. All appointments under FCS
should be on regular basis in all the scales and no ad-hoc appointments
should be resorted to. The date of effect o f promotions should be the date of
eligibilitylrevised eligibility (as the case may be) for promotion, applying FR
22C,as modified by us, i n the relevant chapter. Thus an R&D professional
should not suffer due to delayed assessment.

Extension of FCS 5 1.26 Extension of the FCS has been vehemently demanded for
scientificposts and institutionsnot yet approved for the scheme, though recognised
as S&T, as also scientific groups in non-Scientific organisations, and other non-
scientific posts in non-scientific organisations. We have specifically suggested
exclusion of Scientist Administrators, non-R&D institutions, and Secretariats to
be outside h e purview of FCS, for whom thc-AssuredCareer Progression scheme
will apply. While we are awak that our proposals are likely to result in yithdrawal
of the FCS from certain organisations, our intention is clcarly to restrict it as fast
track carccr only for those wholly cngagcd In K&D activitics. Accordingly, we do
not rccommcnd cxtcnsion of thc FCS to organisations othcr than those pccscntly
ccvcrcd by it. Thosc organisations so covcrcd should also fall in linc with the
modifications that wc havc now suggcstcd. Thc Dcpartmcnt of Scicncc &
Technology, as thc nodal agcnq for thc purposc, should rcvicw all thc existing and
futurc proposals for application of FCS, as now rcconimcndcd by us, for S&T
institutions alrcady rccogniscd vidc the 1083 ordcrs

623
 51 27 Tlic plcthora of dcsignations across organisattons aiid thc
confusions crcntcd by thcrn undcr thc FCS h a w proiiiptcd us to suggcst that llicrc
should bc soiiic uniformity in dcsignatiiig thc Icvcls uiidcr thc FCS For thc
Sciciitist Administrators strcam \YC havc alrcad!. suggcstcd a varicty of standard
dcsignations W e recommend that R&D professionals mag be uniformly
designated as follows at different levels:-

Rs.2200-4000 PI
Rs. 3000-4500 P2
Rs. 3700-4500 P3
Rs.4500-5700 P4
Rs.5 100-6300 P5
Rs. 5900-7300 P6

5 1.28 Thcrc is a simmering apprchcnsions among sonic scicntisls that

FCS is bcing opcratcd to favour a select few. Methods and proccdurcs somctimcs
lack uniformity and rcasons for rcjectiodsclcction arc always confidential rcsulting
in room for biascd judgcments and dissatisfaction'with thc systcm. Thc Fourth
CPC had obsend it was necessary to cnsurc that thc s!stcni was bascd cntircl!. on
an objective asscssmcnt of merit and that it was not uscd mcrel!. to providc for
career progression on a time-boundbasis. Whilc our rccommcndations on uniform
pay-scalcs, rcsidcncics and procedures will go a long way in dispclling thcsc
xrccptions, wc~fcel that there is need to makc thc s!'stcni morc opcn, objcctivc,
casonablc and transparent, LO eliminate subjcctivity and masimise satisfaction
with the scheme, as far as possible.

Geiieral 5 1.29 To support the effort of the offices engaged in Scientific activity
Inrroducrioti
there is a large numbcr of scientificzandtechnological staff. They arc distributed
across various'Ministrics, Departments, attached and subordinate offices, including
national laboratories and field programmes. They assist scientific officers in
setting up experiments, conducting various tests to asccrtain physical, chemical and
other properties of samples and in collecting information from various technical
papers, field reports, surveys and documents for the purpose of planning new
experiments, .or assisting officers in writing technical reports, programmcs and
projects. Some of them arc engaged in regulatory, training and cstcnsion type of
work, such as food and drug control, agnculturc cxtcnsion, ctc. Still others perform
work of routine character like preparing reagents, conducting standardiscd tests,
calibration and so on. The level of duties, howcvcr, docs not v a v to a grcat dcgrcc.
They are usually recruited with basic qualifications of graduation or post-
graduation in science, dcgec or diploma in cnginccring, or cvcn matriculation ivith
scicncc, with or without special diploma, ccrtificatcs, training or cspcricncc.

51.30 Scientific staffman about 15,l 12 posts. Ncarly onc-third of thcrn

arcpart of a common category of laboratory tcchnicians and staff. who havc bccn
covcrcd clsc~~hcrcin this report. Thc remaining pcrsonncl arc usually placcd at thc
Group B and C lcvcls bctwccn scalcs ranging from Rs.2375-3500 to Rs. 1200-
2040. Thcy arc-also promotion posts for Laboraton, staff and technicians and
fccdcr gradcs to posts bf Scicntists and R&D profcssionals. A largc nurnbcr of
dcsignations . and job titlcs cxist undcr this catcgory of staff in diffcrcnt

630
 orgaiiisations. Ihc most usual ones bcing Scicnti~c/TcchnicaI/Rcscarch Asslstaiits
(both Sciiior as wcll as Junior) and Ofliccrs

31.31 Thc Sccond CPC obscrvcd that Class II posts arc gcncrally fillcd
by dircct rccruitniciit though a small pcrccntagc is sct asidc for promotion.. Thc
incumbciiis arc rcquircd to posscss at lcast a Mastcr's dcgrcc; %lass 111 posts
gcr$rally rcquirc a Mastcr's dcgrcc or an Honours dcgrcc. That C.P.C justificd a
qualitativc distinction bctwccn class I1 and lowcr posts on thc basis of
quacfications and dutics. It also pointcd out a diffcrcncc in thc work in National
Laboratorics, pcrtaining to long rangc problcms of fundamcntal rcscarch. It
rccdmmcndcd onc scalc as suficicnt at thc Ic\d of Scnior Scicntific Assistants and
rcduction in thc numbcr of scalcs for lowcr posts. That CPC also rccomnicndcd
rclasation in agc to cnablc scicntific staff to compctc for highcr posts and
staridardsation of dcsignations. Thc Third CPC also rccommcndcd along similar
lines, but attcmptcd no dircct distinction bctwccn laboratory and othcr S&T staff.
It advised that 4 scalcs below thc Group B Gazettcd lcvcl wcrc sufficient for this
category of staff. Both CPCs pointcd out'the lack of promotion avcnucs in thcsc
grades on account of small cadrcs and isolatcd posts. Thc Fourth C.PC did not
make any obscrvations on S&T staff cxccpt granting rcplaccmcnt scalcs undcr
vartous Ministries.

llemands in 5132 A large number of demands made in memoranda receivcd by us,

Memoranda concentrate on the issues of anomalies in pay-scales, isolation of posts, small
cadres and mulhple levels of drect recruitment, stagnation problems,organising thc
Scientific staff mto a common service has been demanded along with extension of
the Flexlble Complementing Scheme, permitting private consultancy and grant of
Non-practice allowance Special allowances have been sought for higher
qualifications, difficult postmgs, nsk, conveyance, purchase of special journals and
membershp of professional bodies Enhancement of the age of superannuation has
also been demanded on account of higher achievements of scientific staff and a
general increase in longevity

Infer-ministerial 51.33 To analyse the demands made in memoranda, the implications

working Group thcreof, and for examination of pay-scales, qualifications and designations, we
cdnstitutcd an inter-Ministerial Working Group on Scientific Staff with
rcpresentatives of MinistriedDepartments which have a substantial component of
such personnel in their establishments. We have kept in view the Working Groups'
suggested, in making our recommendations.

Mulliplc levels o/ 5 1.34 Direct recruitment among the scientific staffexists at almost every
Direct level of pay-scales and without any &form linkage with qualificatio,h.*We observe
Recrui1nrenl
that somc Post-graduate and engineering degree entrants are placed in the scalc of
pay of Rs. 1400-2300, while somc are placed in higher scalcs. The entry lcvel of
graduates in scicnce also varies from the scale of pay of Rs. 1200- 1800 to Rs. 1640-
2900. Scicntific staffhave dcmandcd that Ph..D. dcgrcc holdcrs must uniformly bc
placcd in Group A and Enginccrs in Group B'Gazettcd levcls, irrcspcctivc of thc
post in which initial recruitment has taken placc. Thc Sccond CPC favoured
clcnicnts of dircct rccruitmcnt at Class II and Scnior non-gazcttcd positions bascd
on a uniform application of qualifications. Thc 3rd CPC also bascd its
rccommcndations on qualification. Wc havc bccn infornicd that dircct cntnp at too
many Ic~clscrcatcs problcms of stagnation. Wc havc not noticcd Ph.D. as an
csscntial'minimuni qualification at any of thc Group B or C Icvcls. Taking into

63 I
 accouiit various aspccts, we rcconinlend that for direct recruitnrcnt
qualificatiori should be prescribed unifornily as follows, as far as possible:-

PAY-SCALE SUGG EST ED QUA L I F 1CAT 10N S

I RS 950-1500 Matric + o i q c a r ccrtificate

2 Rs 1320-2040 Matric with Scicncc + two->car diplonia

3 RS I ftf)O-2660 B Sc GraduatcdDip in Engg

4 RS 2000-3500 Enginccr ing dcgrccl Post -graduat ion

Ministries should avoid prescribing very high or specialised qualifications

against these Gsts as "essential". Posts at scrial numbcrs I and 2 abovc usuall>
exist in iaboratorics and in thc k i d forming fccdcr grades to the othcr scicntific
posts In viewof thc abovc rccommcndation, combined with rationalisation of
certain scalcs of pay, we also recommend that direct recruitment should
usually not be made in the scales of pay of Rs.1350-2200, Rs.1350-1800,
Rs.1400-2300, Rs.1640-2900, and Rs.2000-3200 except where functional
requirements specially demand direct recruitment. Direct recruitment at the
level-of Rs.2ooO.35OO should be reduced wherever justified, taking into account
direct recruitment and stagnation at the irnmcdiately ncxt lowcr lcvcls Direct
recruitment at this level should not generally exceed 6G%, and educational
qualifications laid down for direct recruitment should apply to promotions
also.
Organised cadres 5 1.35 Scientific staff have also demanded that they be made part of
ofsg-Tsluf organised cadres,and small compartmentaliscd cadrcs and isolatcd posts should be
avoided. -It is observed that a very large numbcr of posts in the S&T field at the
non-gazetted level, require common general qualifications like B.Sc. or M.Sc..
Certain posts require more specific qualifications like B.Sc.(Agriculture) or B.Sc.
with special diplbma. We note that transferability throughout the country at these
levels is generally not resorted to. It is also not practicable to organise a single
service of thesz'psts, because of very large numbers and specific requirements of
Ministries. We, however, recommend that there should be no isolated post in
Government. Ministries should .draw officials either by having'their posts
declared as cadre posts, or by drawing officials of these servicesfcadres on
deputation.
.Inli-slagnarion 5 1.36 . Compartmcntalisation and isolation of posts havc been cited
devices
extensively in mcmoranda as impochmcnts to carccr progrcssion. To ovcrcome this
problem, it has been suggcstcd in these memoranda that Flexiblc Complcmcnting
Schcme as applicablc to thc Group A scrviccs should be cxtendcd to thc other
scicntific and tcchnical staff also. The Second CFC rccommcndcd a sclcction grade
and age rclasation for dircct rccruitmcnt of Central Govcrnnicnt S&T staff as anti-
stagnation mccbanisms. Thc Third CPC did not favour filling thc Class 11 posts
cntircly by promotion and suggcstcd dircct rccruitrncnt where cxpcricnce of a
particular kind is being sought.

632
 Wc obscnc that ccrtain orgatiisations. likc tlic DRDO. Dcpartmciit of Spacc, c1c
haw also inlroduccd Flc\iblc Coniplcmciiting as a carccr progrcssioii iiicasurc for
staff othcr than Group A Wc havc rccomnicndcd abovc thc approprialc cntn
Icvcls and pay-scalcs for sciciitific stam We recommend that direct recruitment
at consecutive levels should be avoided as far as possible. It may be
permitted only in cases where the number of posts of the next higher level is
very large and cannot be allowed to be filled 100% by promotion. Scicnlific
stflhavc oftcn to rch on dircct rccruitmcnt to highcr posts for purposcs of carccr
advanccmcnt It has bccn rcprcscntcd to us that such rccruitnicnt i s not opcn to
compctihon for most of thc S&T staff, as vacancies arc not only limitcd but thcrc
arc also age limits at 35 and 40 ycars, which prcvcnt scnior and cxpcricnccd
pcrsonncl from applying Thcrc i s mcrit in thc dcmand Bcsidcs a\soiding dircct
rccn,utmenl at consccuhvc Icvcls, we recommend that departmental candidates
should be permitted age relaxation for direct recruitment to higher posts of
scientific and technical character upto 45 years. We also recommend that
S&T posts at Headquarters and Secretariat should provide for deputation
arrangements from attached and subordinate offices, as far as possible,
before resorting to recruitment from outside. In view of our
recommendations on the assured career progression scheme made in the
relevant chapter, we recommend withdrawal of all existing arrangements of
limited Flexible Complementing scheme for Group.B,C,D Staff. Extension of
FCS to posts other than the Group A R&D professionals is also, therefore,
not recommended.
Nott-cot1sultatlc.v 5 1.37 Scientific staff argue that therc is scopc of consultancy and private
.4 110 wattcr scientific creative work outside the sphere of official duty, and either such
consultancy should be permitted or a Non-consultancy allowance, on the lines of
NPA to doctors, should be granted. We note that NPA is granted to doctors for
being available at all hours irrespective of duty timings. We are not convinccd about
the justification for private consultancy, as has been put forth by the scientific staff.
We therefore do not recommend grant of Non-consultancy allowance to S&T staff.

General pay 5 1.38 Elsewhere in h s report, we have also made out recommendations
sc>ales
in the matter of general pay scales, risk allowance, allowances for rural and difficult
postings, special pay for higher qualifications, age of superannuation etc.. We do
not think that a separate dispensation, other than what has been recommended, is
necessary to S&T staff in general. .The relevant chapters may be referred to in this
regard.

633 :
 Annexe 1
(SCCPars 51.14)

Pay Scalc Opcrations lk Advisory Progr amnic

Application Ficld Managcmcnt ficld

Rs.XOOO/- Dircctor Adviscr Control lcr

Gcncral Gcncral Gcncral

Rs.7300-7600 Dircctor Adviscr Control Icr

GcncraV Gcncral/ General/
Addl. Dircctor Addl. Adviscr Addl.Contro-
Gcncral Gcncral llcr Gcncral

Rs.5 900-7300 Joint Dircctor Joint Adviscr Jolrd-

Gcncral Gcncral Gcncral

Rs.5 100-6300 Dy.Dircctor Dy. Adviscr Dy. Controller

General Gcncral Gcncral

Rs.4500-5700 Dircctor Adviser Controller

Rs.3700-5000 Joint Director Joint Adviser

Rs.3000-4500 Dy. Director Dy. Adviser Dy. Controller

Rs.2200-4000 Asstt. Director Asstt.Adviser Asstt.ontroller

634
 Annexe-5 1.2
(Scc.Para 5 I .20)

Definition of R&D Professionals & Posts

Thc tcrms R&D profcssionals. RCGD post. activit\, and organisations may bc dcfincd as
fCIllOWS -

i> R&D Professionals, including Scicntists, Enginccrs, Doctors and othcr Rcscarch
Prafcssionals, arc dcfincd as pcrsons who posscss acadcmic qualifications of at
least Maskr's dcgrcc in Natural/Agncultural/ Social Scicnccs, or Bachclor's dcgrcc
in Enginccrin~echnology/Mcdicinc,and who whilc working in thosc capacitics
crate new scientific howlcdge and innovativc cnginaring, tcchnology or mcdical
kchmques, including persons with scicntific and tcchnological training cngagcd in
professional research and dcvclopmcnt work throughout thcir working livcs.

ii) An R&D Post is dcfincd as one, thc incumbent of which is a scicntist, cngincer,
mdcal or other R&D profcssional in a scicntific institution/organisation'cngagcd
in generation and advanccmcnt of scicntific and tcchnical knowlcdgc.

111) R&D Activity will be dcfined as activity dircctl\.rclatcd to Rcscarch and

Development in the following thrcc arcas :-

1 Basic Research - Original invcstigation to gain new scicntific or

technical knowledge directed towards a specific practical aim or
application

2. Applied research :-Original investigation to gain new scientific or

techtllcal knowledge dlrected towards a specific practical aim or objective.

3. Experimental development :- Use of scientific knowledge to produce

new or substantially improved materials, devices, products, processes
system or services.

iv) Excluded activities:- All thosc activities, which are closely linked to R&D in
terms of operations, institutions and personnel, and those whcrc only the fruits of
such research are utilised, including afhinistrative, advisory and programme
implementation activities and such activities in posts in Secretariats of
Ministries/Departments, will be outsidc the purview of such definition. The
following will be specifically excluded :-

a) , Scientific and Technical information, data collcction, tcsting and

standardisation, feasibility studies, for engineering products, specialised
medical care, patient and liccnce work;

b) Geological, Geophysical, rnctcorological and naturc rcsourccs survcy,

including mapping,

c) Scientific activities of muscums in tcrms of display of cxhibit and

fabrication of prototypcs,

63 s
 d) Zoological and Botanical gnrdciis (floristic and faunistic suncys).

c) Application of S&T for rural cstciisioii. marketing and storagc, in\cntoq.

control and productivity cnhanccincnt. projcct implcnicntation and
schcduling, fabrication and construction of plaiit and cquipnicnt, dcsrgn
cnginccring sctviccs and tcchnical consultancy . and

r) Post-gaduatc cducation in ScicncdAgriculturc at Univcrsitics and

cquivalcnt Icvcls in cnginccring and tcchnolog..

v) R&D Organisation :-will bc dcfincd as institutions charactcriscd by pursuit of

cxccllcncc, cngagcd in rcscarch and dcvclopmcnt, covcring a broad spcctrum of
pure and applied rcscarch with the esscntial fcaturc of innovative character, and
creativc spirit of enquiry that pcrmcatcs thcir ovcrall functioning, and highly
qualified and skilled tcchnical pcrsonncl.
 Annexe 5 I .3
6 e e p a r a 5 1 231

RESPDENCY PERIOD

1 1 1
SCALES
2200-4000
D r SD
!

3000-4500

I 3700-5000 I 4 1 4

4500-5700

5 100-6300
I 5900-6700 I - I ~ 5

5900-7300

7300-7600

TOTAL 20 21 25 15 28

Nolc
..I hough the Idormation has not been received from DAE,the scheme is identical to that of IIOS, as mentioned b) representatives during oral discussions

63 7
General
Iirtroductiotr
52. I Hcalth and Medical Scrviccs in Govcrnnicnt exist both in organised
as well as unorganiscd form with about 8477 posts. Thcrc are three organised
services - Ccntral Health Scrvicc, Indian Railway Mcdical Service and the Indian
Ordnancc Factories Hcalth Scnicc - bcsidcs thc serviccs cxclusive to the Armed
Forces in the Army Mcdical Corps, and thc Mcdical Officcrs of the Central Police
Organisations. Thcrc arc some mcdical posts outsidc thc organised services in
certain offccs and dcpartmcnts of thc Central Govcmmcnt. Holders of medical
posts arc required to obtain at lcast a dcgrce in modcm mcdicine as prescribed by
the Mcdical Council of India and be rcgistercd by it or the Medical Council of a
State.

CentralIfealth 52.2 The Central Health Service consists of 5233 medical officers. It
Service
is organiscd into four sub-cadres from entry level to the Senior Administrative
Grade. Thereafter, it merges into a common hierarchy for promotion to the higher
adrmnistrativcpositions upto the Director General of Health Services, as follows:-

a) 3621 General Duty Medical Officcrs - with entry at the level of

Rs.2200-4000, recruited through thc combined medical serviccs
csamination of thc UPSC; and

b) Sp.wialists- cntcring scrvicc in thc scalc of Rs.3000-5000 by dircct

rccruitmcnt through thc UPSC in thrcc sub-cadres - 697 Non-
teaching (Hospital) Spccialists, 538 Tcaching Spccialists and 7 1
Public Hcalth Spccialists.

Bcsidcs thc above, thcrc arc 293 SAG (Rs.5900-6700) posts and 12 HAG
(Rs.7300-7600) posts and a post of DGHS (Rs.8000 fixcd), which arc encadrcd
in thc scrvicc. Cchtral Hcalth Scrvicc Mcdical Officcrs man thc CGHS

: 638
 dispcnsarics, Ccntral Govcriiiiiciit Mcdical Collcgcs and Ilospitals. k l h i
Administration hospitals aid dispciaarics. Ministry of Labour. P&T Dispcnsarics.
Union Tcrritorics. Assam Rillcs. and Public Hcalth lnstitutions

52 -3 Unlihc thc Cciitral Hcalth Scn icc. thc Railway Mcdicai Scn ICC.
miisisling of 2569 Mcdical and Dcntal Doctors. has no sub cadrcs Tlic sljccialist
positions arc nianncd by suitably qualificd doctors from aniong thc incd~cal
pcrsonncl in thc Railway Hospitals, dispcnsarics. and clinics It has a coninion
cadre throughout its mcdical hicrarch~~. licadcd by a Dircctor Gcncral (Rs 7300-
7600) Thcsc mcdical officcrs arc also rccruitcd through thc combincd nicdical
scn iccs cumination of thc UPSC Thc cadrc structure follows a pattcrn similar
to that of thc Gcncral Duty Mcdical officcrs of thc CHS

52 4 Thc Indian Ordnancc Factoncs Hcalth Scrvicc compriscs 275 posts

46 in thc spccialist sub-strcam, 225 in thc Gcncral Duty sub-strcam and 4 at
Hcadquartcrs, common to both strcams Thc mcdical officcrs of this scn'icc man
thc mcdical posts in thc Ordnancc Factor! Hospitals, dispcnsarics and clinics

!\ledicu/Posts j2.3 Thcrc arc no tcaching and Public Hcalth Spccialists' posts.outsidc
orgarrised the 'Central Health Scrvicc. Bcstdcs 4hc- organiscd scniccs, thcrc arc somc posts
services
in tht Dcntal stream and thc Indian Systcms of Mcdlcinc and Homeopathy. Mcdical
pcrsuuici arc also manning dcpartmcnt-spccific positions for exclusivcly catering
to the cmployees of thc Dcpartmcnt/Officc at the field locations, like the
Dcpartmcnts of Spacc and Atomic Encrg?., Ccntral Police Organisations, ctc. with
o w 250 posts.
Ge,rieral 52.6 Demands reccivcd by us from diffcrcnt Associations of Doctors of
De,nraildsCr thcse senices in common rclatc to thc upgradation of thc entry levels and career
ii4emoratida
progression up to SAG and beyond, et par with the best of Group A services.
Med~calpersonnel also seek rationalisation and enhancement of non-practising and
3ther allowances, incrcasc in thc rctircmcnt age and terminal benefits, protection
from risk of infcction, enhanccmcnt of study lcavc to 3 y e h s in view of longer
duration of courses and provision for leave and other reserves, service perks like
housing, residential tclcphonc, secretarial assistance, along with other issues
rcgarding the creation of an All Indla Health and Mcdical Service, dis- continuance
of multiple lcvcls of cntry and transfcr of cadrc control from the Ministry to the
DGHS. Supcr specialists havc.dcmandcd crcation of a scparatc sub-cadrc with a
higher cntry Icvcl.

Servicc-Specijic j2.7 Thc.Associationsof various mcdical officcrs-in dlffcrcnt cadres and

Ueiwitids sub-cadres. haw also made dcmands rclating to thcir rcspcctivc services. Whilc
thc dcmands of Gcncral Duty Mcdical Officcrs arc conccmcd about carccr-
progression upto and bcyond JAG(NFSG), abolition of the system of sub-cadrcs
and crcation of a cadrc of hospital administrators csclusivc to thcm, Spccialists
1im.ca s k d for a higher cntr?, IcvcI oil account of much latcr induction into scn'icc.
Thc Raihvays' Mcdical Officcrs 1im.c dcmandcd a pattcrn similar to that of thc
Central Hcalth Scrvicc with Spccialists' sub-cadrcs ct al. Thc!. havc also
dcmandcd that thcir Dircctor Gcncral bc upsradcd to thc rank of Sccrctan. in thc
pa!. of Ks XOOO(fiscd). Officcrs of thc lndian Ordnancc Factorics Hcalth S c n k c
h n i askcd
~ for upgradation of f'rincipnl Mcdical Officcrs to thc SAG lcvcl and
 rcstnicturirig Oicir cadrcs for a bcttcr carccr Dcntal Surgcons 1m.c also askcd for
"Spccialist" posts in thcir cadrc. \\.ith intcgratioii into thc Cciltral t-lcaltli Scrjxc
PIi!ski,uis of Ihc Indian Sjstcms of Mcdicinc and Homcopatli!~1iai.csouglit parit!.
\\it11 CHS doctors b!. cstcnding rccommcndations of tlic Tiklioo Coniniiltcc to
thcni.

('f~tl.~ll/l~Illl~l~ 52.8 Thc Fifth CPC cngagcd a consultant!. stud!, through thc Indian
. ~ l I l ~ f" Vt
lnstitutc of Public Administration, to suggcst nicasurcs for rcslructuring tlic
Rc.vIrt~c/itr~ti~
mcdical scnkc's, kccping in mind thc dcmands and aspirations of thc nicdical
pcrsonncl in thc Govcrnmcnt, as also thc cnicrging rolc of thc Go\mimcnt i n thc
hcalth scctor, in thc changing socio-cconomic situation in tlic countn,. Suggcstions
niadc by thc study havc bccn kcpt in vicw by us \vhilc making our
rccommcndat ions.

/~c.coninrc*tid~ilio,r 5 2.9 A numbcr of Committccs in thc past havc gonc into thc nianncr of
tJrcldl'
'Ir lir~'Pclst organising and rc-organising thc Mcdical Scrviccs. Constitution of an All India
Hcalth & Mcdical Scnice has cngagcd thc attcntion of thc Goi*cmnicntin thc past
considcnng thc necd to havc a propcr hcalth dclivcry systcm for achicving thc Soal
of "Health for all by the year 2000 AD". Bcginning with thc Bhorc Comrnittcc
in 1946. thc Mudaliar Commitkc (1961), Jungalwalla Committcc ( 1967). diffcrcnt
Parliamentary Committccs, Sarkaria Commission on Ccntrc-Statc relations, and thc
Tikku Committcc (1991), have all brought into focus thc nccd for structuring thc
medical services in line with the Health Policy objective. Thcsc rccommcndations
stipulate that there should be no wastage of talent through utilisation of qualified
pcrsonnel on routine duties. Compartmentalisation and cxccssive specialisation
should be avoided, and interchange and rotation of the officers among clinical,
public health, teachmg and research branches, be permitted by integrating curative
and preventive measures. Internal recruitment of Gcncral Duty Officers with
specialist qualifications to the posts of Specialists be taken up as a onc timc
measure. Constitution of an All India Health & Medical Service on priority, has
also been suggested envisaging lateral entry, deputation and short-term contract.
These options have bccn kept in mind by us in making our rccommcndations.

OUR RECOMMENDATIONS

A / / Ittdia Iieallii 52. 10 The Government have indcated that the issue of creation of the All
otldMedica/
India Health and Medical Service was taken up with thc Statc Governments in
Service
pursuance of the recommendations of the Sarkaria Commission. Howevcr, the
proposal was accepted only by 4 states, while 5 othcrs laid down certain conditions
and anothcr 5 did not accept it. As a result, thc proposal has not made much
hcadwa).. Thc Consultancy study has pointcd out that thc futurc will require thc
mcdical scrviccs to play an important rolc cvcn at thc grassroots lcvcl. A sin&
unified scrvicc with provision for lateral cntry at highcr and spccialiscd positions
and appropriate inccntivcs for thc lattcr has bccn suggcstcd by thc consultants.
Aftcr considcring thc mattcr in dctail. We recommend that creation of Ail India
Health and Medical service should be the long term ultimate aim for which
the following steps should be taken up immediately:-

a) The Central Health Service may be integrated in the first

instance so that the4 sub-cadres are unified into a single cadre
with a common seniority. The selection of the medicos should
 be need-based to avoid over-crowding in any field of
s pccialisa t ion.

A high-powered Committee should be appointed to start a

dialogue between the States and the Centre. It should wbrk
out the modalities within a fixed time-frame of 5 years for an
All India Health and Medical Service.

Directors-General of Health Services and Indian Railway

Medical Service, and the Director, Indian Ordnance Factories
Health Service should work out arrangements for inter-service
exchange of personnel, while retaining maximum possible
control over the cadre within the respective organisations.

Posts outside the organised services excluding the Armed

Forces Medical personrlel should be immediately integrated
into the Central Health Service. The medical doctors of the
Central Police Forces may also be included in the service, and
when posted to the CPOs they should be subject to the acts and
rules of the concernedorganisation on the analogy of the Army
Postal Service so ch-* there are no problems of actual working.

Utiified Cetilral j2, 1 1 Wc have observed in thc preceding paragraph that the first step in
HeO'"'l
the direction of constituting thc all-India service is unification of the existing
organised Central Health and Medical ,Services,including medical posts outside the
organised services, into a single service. Discussions in this regard were held with
thc .heads of the three organised Health services as well as Secretaries of
Department of Health and other Departments having posts outside the organised
senices. It emerged that the lack of uniformity in the conditions of service and the
cxistence of sub-cadres, besides specific need-based requirements of the different
organisations are the main obstacle in taking up this course of action. Also,
teachng and public health as separate specialist sub-cadres, are peculiar to only
the Central Health Service. The Ministry has issued a notification in October,
1996, providing for dlrect entry of Super-specialists at the level of Rs.3700-5000,
with the requisite qualifications and 5 years' experience in the relevant super-
speciality. The Railways have indicated acute shortage of doctors and have
indicated a need to fall in line with the pattern of the Central Health Service, with
a cadre of clinical specialists, having direct entry at the level of Rs.3000-5000.
They have also pointcd out that while thcrc is need for specialists to use the
specialised techniques and cquipment for treatment, a need based specialist cadre
has to be constituted with duly identified positi,ons being filled by in-service
qualifictjdoctors in the first instance, the rcmaining being filled through the UPSC.
Thc dcpartmcnts have cxprcsscd the necd to maintain adequate control .over their
respective cadres in ordcr to mcct functional requirements. Uniformity of service
conditions, common induction training, a pool for research and cross-organisational
cspcricncc and cxpcrtisc, and the nccd to augmcnt primary and preventive health
cara as thc largcr overall objcctivc will havc to take prcccdcncc ovcr the present
structure. Keeping in mind thc twin objectives of a singlc medical scrvicc and thc
functional rcquircmcnt of spccialist and supcr-spccialist positions, wc arc of the
opinion that idcntified posts of spccialists can co-csist \vith gcncralists in a singlc
scnicc with latcral cntry provisions and a common scniority bascd on thc highcst
dirccf entry Ievcl. Wc arc also convinccd that the brcak-up of thc specialist streams

64 I
 into tlic supcr-spccialitiesand spccialitics \vill not bc conducivc to cffcctivc cadrc
iiianagcmciit bccausc of thc small nunibcr of idcntificd positions in an individual
spcciality or supsr-spcciality We, accordingly, make recommendations as in
the succeeding paragraphs for a unified Central Health Service.

t:tlfn k*Vt!l sclflrs 5 2 12 The entry level of general duty medical officers should be
retained at the pkesent level of Rs.2200-4000.Spe.cialists should be recruitec
50% by proqotion from among in-service doctors having the requisite
qualifications, against pre-identified positions, and the remaining 50% by
direct recruitment through the UPSC. They may be placed in the scale of pay
of Rs.3000-4509 at entry. Super-specialists have already been permitted
direct entry at the level of Rs.3700-5000.We do not recommend any change
therein, except that 50% of the posts identified for super-specialists should
be filled by pramotion of doctors possessing the requisite qualification, and
50% by direct recruitment failing which by short term contract on terms and
conditions to be negotiated with the proposed super-specialist candidate. The
eligibility reqairement of 5 years' experience, which they gain during
residency, need not be insisted upon.
Sub-Cadres 52.13 We do not recommend separate sub-cadrcs of specialists or super-
specialists as each speciality and super-spcciality involves a diffcrcnt ficld of
activity, few positions, and the need to keep posts "floating" betwcen the different
activities to keep the sub-cadres going. The sub-cadres should be abolished.
Posts requiring specialists and super-specialists should be identified by all
organisations and filled by themetbods proposed above at entry. Promotions
beyond the NFSG will be based on vacancies to be filled from among service
doctors having the requisite eligibility qualifications.

Conlnloll 52.14 A common seniority list should be worked out inter-se between
SenrorrgLfsfs the different streams at the level of RS.3000-4500,in the first instance, based
on the principles listed in Annexe 52.1. At the level of Rs.3700-5000,which
will be the highest entry level'for any medical doctor, a final inter-se common
seniority between the first common list and super-specialists should be
worked out on the same principles indicated in the said Annexe. The second
list will form the basis for career progression to higher positions.
Career 52.15 The career progression of doctors upto SAG is different between the
Progression General Duty Officers' and the Specialists' as follows:-

Scale of Pay GDOs Specialists

Rs.5900-6700 3 y r s in NFSG
or 17 yrs in Group
A. **

Rs.4500-5700 5 yrs or 14 yrs* 8 yrs aftcr

entry

Rs. 3700-5OUO 6 ycars aftcr 2 yrs aftcr cntry

STS

642
 Scale of Pay GDOs Specialists

Rs.3000-5000 Entry

RS 3000-4500 4 years after -

entry
RS 2200-4000 Entry

* - 15% of Senior Duty Posts. * * - Floating posts

Doctors have complamed of madcquacy of carccr prospects on account of late entry

into scrvice, comparing themselves unfavourably with their counterparts in other
Group A s m w e s The structural ratio for the mainstream Group A SCNICCS, it is
said, is around 70%, whereas for most medical personnel, it is only around 10%
Since the entry level is filled entirely by direct rccruitmcnt the problem is further
compounded by "non-wastage" The Ministry of Health has warned that there IS
a rising trend of exodus in the various sub-cadres, even after 4 to 10 years of
Government service The percentage of doctors joining after selection is also
falling at an alarming rate The Ministry of Railways has pointed out fiat at any
given point of time there are at least 300 posts of doctors lying vacant The
Ordnance Factories Board has also highlighted the problcm of stagnation among
the service doctors The consultancy study has highlighted this problem
suggesting some form of in-situ arrangements for all categories of doctors upto
SAG The recommendations of the TIW<U Committee have already been
implemented to the extent possible in all the cadres and sub-cadres Our
recommendations on the Assured Career Progression will relieve stagnation to
some extent, as all doctors other than GDMOs already reach NFSG on time bound
basis We are aware that any promotions beyond the Non-functianal Selection
Grade have to be based on vacancies arising out of functional justification We
recommend the following.dynamic assured career progression mechanisms
for the different streams of doctors based on the proposed entry levels above
in replacement of the existing system:-

Residency Period
Scale of Pay GDOs Specialists Superspecialists
Rs.2200-4OOO 4 - -
Rs.3OOo-4500 5 2 -
Rs.3700-so00 4 4 4
Rs.4500-5700 - - -
For promotions beyond the Selection Grade the general
recommendations on the model cadre structure may be followed. It may be noted
that the ACP in the case of doctors will not only involve financial upgradations but
also promotions, as it is a dynamic ACP.

Ncwt'ructising 52, 16 Non-practising allowance is presently granted under a slab system

A li'ow m c e uith amounts ranging from Rs.600 per month at the lowest level to Rs. 1000 at the
highest. It has becn rcpresentcd to us that prior to the Third CPC, NPA was
granted as a percentage of basic pay, ranging from 25 to 40% at diffcrcnt levels,
ivorking out to an average of about 27%, which has, undcr the present

643
 arrangciiicnts dropped to as IOIV as 12 5 to 16% Doctors arc also aggricvcd that
it docs not count towards Housing accommodation though 11 1s countablc for all
othcr purposcs, including pension There arc also rclatcd dcrnands for cxtcnsion
of NPA to othcr catcgorics of profcssionals and Govcninlciit scn ants who havc
opportunitm to cam IIIthc opcn markel. as also thc dcrnand for discontinuanccof
NPA by pcrmitting privatc practicc Thc Third CPC obscrvcd that NPA was
granted to doctors in licu of private practice on account of a traditionally cnjoycd
pnvilcgc as wcll as lcsscr cffbctivc scrvicc and promotion prospccts causcd by late
entry into smi& It d d not favour private practice by doctors, and favoured NPA
as a scparatc elcmcnt from pay-scales It suggcstcd a switchover to a slabsystcm
instead of thc cxisting ratcs with monetary limits The Fourth CPC enhanced the
ratcs under thc different slabs, bcsidcs granting 11 uniformly to all medical offccrs
The administrative Ministry has suggested that NPA should continuc and also bc
counted for purposes of housing accommodation eligibiltty in the matter of
permitlmg limited private practice we havc bcen advised by cspert opinion that it
could be permitted in a limitcd form provided malpracticcs could be curbed Wc
also note that it is only doctors who are roquircd to dcvotc a lifetime to health care
and life sustenancc under oath as a part of thcir qualifications We do not
recommend extension of NPA to any other catcgory We recommend that the
slab system of granting NPA to doctors may be dispensed with and NPA be
granted at a uniform rate of 25% of basic pay subject to the condition that
pay plus NPA does not exceed Rs.29300,i.e. less than the maximum proposed
for the Cabinet Secretary, It will continue to count towards all service and
pensionary benefits as a t present. No othcr change is called for, as it would
disturb relat~vtticswith other senices We are also not in favour of permitting
private practice in any form at this stage

Conveyance 52.17 Doctors are presently in receipt of conveyance allowance for visits
Allowance to Hospitals and dispensaries at call and outside normal duty hours and for
domiciliary visits at the rates of Rs.575, 180 and 150 per month for car, scooter
and other modes, respectively. We recommend that the above rates may be
revised in kind as follows:-

For Car 75 litres per month

For Scooter 40 litres per month
For other modes Rs.450 per month
TrainingJtudy 52.18 Health and medicine have been making rapid strides in methods,
sciences and technologies. Doctors need upgrading of their skills and knowledge
facilities
regularly. They have complained that there is no leave reserve to enable them to
be relieved for study leave, deputation reserve to enable them to gain experience
in other organisations,or even a training reserve for some regular training courses
for doctors. All organised services normally have provision for reserve at 10% of
the duty posts in the JTS and STS. None of the organised medical services have
any. Doctors have also demanded permission to attend national and international
conferences and an enhanced research pursuit allowance, besides pcrmission to
purchase Newspapcrs, Magazines and Journals related to their field of activity.
We recommend that a 10% reserve of officers for medical posts in the
proposed combinediorganised service, to facilitate leave, study leave,
training, etc. should be provided. A centre of training on the pattern of the
La1 Bahadur Shastri National Academy of Administration may be established
for imparting induction and refresher training, both administrative as well

644
 as medical to doctors. Since the duration of the Post-graduate courses has
been increased to three years, it is recommended that study leave should be
enhanced to three years for all doctors. Government should also consider
reservation of some seats for GDOs in PG courses. Doctors should be
allowed by rotation to attend National and International Conferences once
in 2 and 4 years, respectively, provided research papers authorised by the
DGHS have been accepted for presentation in the conference. The research
p q u i t allowancc ISpresently granted at the rate of Rs 250 per month to Spmalists
and Rs.100 pa month to the GDOs. We recommend that these rates should be
enhanced to Rs.500 and 300 per month, respectively. Reimbursement of cost
of Newspapers and magazines should be permitted in terms of the extant
orders of the Ministry of Finance for all other Group A officers. We also
recommend that residential telephone connections may be provided to all
doctors, as their services may be required urgently at any time.

Retirement 52.19 It has been argued that due to late entry in service doctors in general
and specialists in particular, are unable to complete service requirements for
drawing full pension. They desire that the provisions for superannuation as well
as voluntary retirement in their case should be appropriately relaxed, and the age
of superannuation be increased to 65 years for specialists and 60 years for GDOs
In view of our recommendation on a common Central Health Service, we do not
consider it advisable to propose separate ages of retirement. However, in view of
the late entry of doctors in service. We recommend an additional weightage at
the time of superannuation, of two years for PG diploma holders, three years
for PG degree holders and five years for double degree holders, only if they
enter service with such qualifications. Age of superannuation and VRS will
apply as for all other Central Government employees.
Hospital 52.20 The present system of appointing Medical Superintendents is by
Administration
selection of doctors of long standing experience who look after hospital
administration apart from ga- to their technical duties. The Medical Council
of India has recognised Hospital administration- as a distinct post-graduate
speciality. During oral Qscussions with us, Secretary (Health) agreed that h s is
a very important and specialid functional area of health care and will prove to be
of critical importance in hospital services in the years ahead. Hospital
administration courses have started in the country. We recommend that some
posts may be identified in hospitals and earmarked as a starting point to be
filled by post-graduate specialists in this field.
Restdent Doctors 52.2 1 There are also some Junior and Senior resident doctors who are
appointed for limited priods in the scales of R~.2630(fixed),Rs.2630-75-2780 and
Rs.3150-100-3350. They may be granted replacement scales of pay.

DENTAL SURGEONS

General 52 22 Dental surgeons comprise all the Group A personnel providing

""'roductio'~
dental health care through the Central Government organisations. There are in all
about 76 Dental Surgeons in the Ministry of Health & Family Welfare, the
Railways, and Department of Coal, Recruited with minimum qualifications of
Bachelor of Dcntal Surgery (BDS), thcy are spread across the scales of pay ranging

: 645
 from Rs 2200-4000to Rs.5900-6700 Thcrc is no orgaiiiscd scn’icc of Dcntal
Surgcons

I )tvliimf.\ 52 23 Dental Surgmns havc dcmandcd an organiscd SCNICC for

thcmsclvcs cithcr by inclusion in thc Ccntral Health Scrvicc or constitutmg a
scparatc Group A scrvice with a specialist stream on thc lincs of thc CHS Thcy
havc also desrrcd an apcx Directorate of OraVDcntal Hcalth for policy making and
implanentationu1 the field of Dental Health. Thcy fed that thc existing provisions
for thcir carer progression arc not adequatc as thcrc is no post for thcm bcyond
SAG They have asked for promotion avenues bcyond JAG on the lincs of ihc
CHS Besides, they have asked for counting of past scrv;’cc rcndcrcd in Group B
while fixing their seniority in Group A

Earlier C1Y.s 52.24 Upto the time of the Third CPC, there wcrc 38 Dental Surgeons in
the Central Government. That CPC did not favour parity of the Dental Surgeons
with the Central Health Service, on account of a shortcr duration of the academic
course of the former. The Fourth CPC reported a total of 65 posts of dental
surgeons in the Government of India, all of thcm outside organised scrvices Wlth
the requirement of internship being made compulsory in thc dental surgeons’
course, the Fourth CPC recommended inclusion of the Dental Surgcons in the
Central Health Servicdlailway Medical Service with pay scales as applicable to
General Duty Medical Officers, and recruitment through a competitive
examination.

Central Dental 52.25 We note that the Dental Surgeons constitute a different and
Service
independent field of activity with distinct qualifications and duties. The
administrative Ministry is not in favour of merger with the CHS and has a proposal
under consideration to constitute a separate Group A Central Dental Service. We
recommend that a separate Central Dental Service should be created
comprising all the Dental surgeons in the Ministry of Health & Family
Welfare, Indian Railways, Ordnance Factories organisation, Ministry of
Labour, Department of Coal and other Civilian posts, The Central Dental
Service should be on the lines of the Central Health Service, as for the
General Duty Medical Officers with one post in the HAG (Rs.7300-7600)
under the DGHS. The following standard designations should accordingly
be followed in the service:-

S.NO PAY-SCALE DESIGNATIONS

1. Rs.7300-7600 Additional DGHS(Denta1)

2. Rs.5900-6700 Consultant(Dental)

3. Rs.4500-5700 Chief Dental Surgeon(SG)

4. RS.3700-5000 Chief Dental Surgeon

5. Rs.300-4500 Senior Dental Surgcon

6. Rs.2200-4000 Dental Surgeon

646
 52.26 A scparatc spccialist sub-cadre has also bccn dcmandcd by thc
Dcntal Surgcons on thc lincs of the spccialist sub-cadres in thc Ccntral Health
Scrvicc, with provisions for latcral movcmcnt bctwecn teaching and clinical
functions. Thc administrative Ministry has advised that thc number of specialities
is v a y small, and thc mattcr can be considcrcd while framing the proposcd Central
Dental Service Rules. In view of thc Ministry's advice, we do not recommend the
fixmation of a spccialist subcadrc for Dental Surgcons. As we have recommcndcd
a Rost of Additional DGHS for the Dental Service, we do not f e l a separate
Dircctoratc of Dental/Oral Health is required with a small size of service

Counting ofpast 52.27 Dental Surgeons have pointed out that the Fourth CPC
Group 'B'Service recommendedupgradation of BDS personnel to Group A from 1.1.86, but did not
lay down criteria for counting length of service in Group B before placement in
Group A. As such, they have not been given the benefit of past service in their
placement at Group A level. The administrative Ministry has suggested giving
weightage of Group B service to the extent possible while framing the proposed
Central Dental Service Rules. We observe that internship was not a mandatory
requirement prior to 1984 for the BDS qualification. The Fourth CPC's placement
in Goup A from I . 1.86 need not therefore be disturbed at this stage, particularly
since it involves giving benefit with retrospective effect.
I 1

PHYSICIANS OF INDIAN SYSTEMS OF

MEDICINE & HOMOEOPATHY (ISM&H)

Introduction & 52.28 The National Health Policy of 1983 envisages the necessity to
Historical initiate organised measures to enable each of the systems of Indian Medicine i e.
Background
Ayurveda, Sidha, Unani, as well as Homoeopathy to develop in accordance with
their genius. The policy requires planned efforts to find an appropriate role and
place for thesediflkrent systems in the overall health care delivery systems in order
to achieve the goal of health for all by 2000 AD. On the demand of CGHS
beneficiaries to provide ISM&H dispensaries, the Ministry of Health & Family
Welfare decided to provide a berth to these systems gradually in the scheme. This
led to opening of the first CGHS Ayurvedic Dispensary in Delhi in 1963.
Following this,the dispensaries representing the Homoeopathy and Unani system
were also established in 1967 and 1978, respectivtfy. In 1980-81, the Sidha
system was included in the scheme. In pursuance of this policy, Government also
set up a Department of Indian Systems of Medicine & Homotopathy under
Ministry of Health & Family Welfare, in March, 1995. Simultaneously,planned
efforts are being made to dovetail the functioning of the practioners of these
various systems and integrate their services, in the overall health care delivery
system.
Esla blishment 52.29 At present ISM&H has a sanctioned strength df about 182
physicians in Group A spread across pay-scales from Rs. 2200-4000 to Rs. 5900-
6700 as follows:-
Pay-Sca., No. of Posts
Hornoeo Ayurveda Umni Sidha Total
Rs.5900-6700 1 2 - 3
Ks.4500-5700
Rs.3700-5000 3 8 2 - 13

647
 Pny-SC'nlC No. of Pcata
Homofo Ayuiwclu UnHiii Sidhu Totul

Ks 30004500 34 31 X 2 75
Ks.22oo-4000 38 41 I0 2 91

Total 76 82 20 4 1n2

Rccmtmcnt qualifications at entry arc comparablc with thc Allopathy strcam i c

Bachelor of A\&vcda Medicinc & Surgery/ Bachclor of Hornocopathy Mcdicinc
& Surgcn/ Bachclor of Unani Mcdicinc & Surgcry ( BAMS/BHMS/BUMS).
which requirc the same length of cducation and internship, with similar PG courscs
and dcgrccs, as thc MBBS Bcsidcs thesc thcrc arc also posts having thcsc
qualificabons, in h e Ministry of Labour, (Shram Kalyan Kcndras), Dcptt of Coal
etc ,and othcrs in Group B &C, also

l h i at i ds it i 52.30 Physicians of thc lndian Systcrns of Mcdicinc & Homocopathy havc

.\ fmrorundn
dcniandcd constitution of an organised service and parity with allopathic doctors
in tcrms of carccr progression. It has also becn sought that all posts having
doctoral qualifications of BAMS/BUMS/BHMS should be upgraded to Group A,
on the lines of such upgradations for MBBS doctors rccommendcd by thc Fourth
CPC. Some rnemoranda also speak of discrimination in the grant of NPA, PG
allowance and Research Pursuit allowance to them as compared to allopathic
doctors, with the request to recommend parity.

Consulfancy 52 31 The consultancy study on "Restructuring of Central Govcmment

Study
Medical Services" has pointed out an urgent need to reorganise the service and
system as a whole, by strengthening the aspects of Teaching and Research for
standardisation, transparency, specialisation and effectiveness, particularly for
family planning and preventive medicine The Consultants have also underlined
the need for augmenting the referral system, and the status of physicians of
ISN&H vis-a-vis their allopathic counterparts

F U R RECOMMENDATIONS 1
Cer,!tral 5 2 32 The Tikku Committee recommended a separate organised service
hdigenous &
for ISM&H. The Consultancy Study has suggested integration of ISM&H doctors
Homoeo Medic.a1
Sewice in the CHS with equal opportunity €or high level posts. The Administrative
Ministry has underlmed the need for building organised career management at par
hith GDOs of the CHS. To carry through the objectives of a separate Department
of ISM&H, we recommend that an organised service, called the Central
Indigenous & Hotnoeo Medical Service, may be constituted to include the 182
practitioners, and other physicians of these systems in the Ministry of
Labour, Deptt. of Coal, Armed Forces Ayurveda Dispensaries and the
Pharmacopoeia Labs of Indian Medicine and Homoeopathy, carrying
medical qualifica.tions.
Parity wifh 52 33 ISM&H Physicians havc parity at entry lcvcl with Allopathic
GD \m 5
doctors Rut for carccr progrcssion thcy havc to wait for vacancics Thc Fourth
CPC rccomnncnded parity of Physicians of ISMClH with GDOs of CHS, by

6411
 upgradingexisting posts in the scale of Rs 650- I200 to Rs 2200-4000, provided
the incumbents possess degrees The Tikku Committee. also recommended
similarly But both were silent regarding career progression The Consultancy
Study as well as admninistrativc Minisuy have recommended total panty of
ISM&H Physicians with Allopathic doctoxs As specialisatinns arc yet $9cmltrgc
with concrete foundation in ISM&H, we recommend a general parity with
GDOs as follows:-

Level Designation Scale Residency

3rd ACP Chief Mcdical RS.4500-5700

Officcr (Sclcc-
ion Gradc)
2nd ACP Chief Medical RS.3700-5000 4 ?TS.
Officer
1st ACP Sr.Medica1 RS.3000-4500 5 yrs.
Officer
Entry Mcdical Officer RS.2200-4000 4 JTS.

Career progression bcyond the selectmn grade will continue to be based on

vacancies Fourth CPC upgraded only those degree holders who were in the scale
of Rs 650- 1200/- (prc-revised) The administrative Ministry has supported the
demand for a general upgradation as was done by Third CPC for Allopathic
Dodors and Fourth CPC for Vetennarians. As the educational requirements of the
posts are the same as for MBBS doctors, we may recommend that all posts
requiring medical practice in ISM&H and a degree in I[SM&H as the
minimum qualification be placed in the entry scale of Rs. 2200-4000 and all
the posts except those in Delhi Admn. be merged in the Central Indigenous &
Homoeo Medical Service.
dllowances 52.34 The Third CPC had recommended withdrawal of NPA from the
ISM&H Doctors. However. the Fourth CPC granted it at rates at par with
Aibpathic Doctors. As the Physicians of ISM&H are equally concerned with
Medical practices teaching and research, we recommend that allowances and
facilities granted to GDOs of Allopathic stream should also be granted to
Physicians of the ISM&H on the same terms and conditions.

!tirroducrioti 52.35 Pcrsonncl concerned with medical and hcalth dclivcn in Central
Gavernment hospitals, teaching, training and rcscarch institutions have been
broadly dividcd into thrcc catcgorics - mecfical, para-medical and non-medical. All
persons who do not undcrgo a formal training in modcrn mcdicinc as prescribed b!.
 the Medical Council of Indie, but work \vith medical men in an institution, in the
field or cormunity for the care of' paticnts or for training of students are para-
m d c a l personnel. At least 1 1 cakgorics exist amohg s x h personnel as follows.-

1) Cliitical and Social Psychologists;

ti) Dieticians;
iii) Mcdical Laboratc? stat1 3nd Technicians;
iv) Nursing Stafc
\.j Operation thcatre staff and Technicians.
vi) Para-dental staff.
\ii) Pharmacists, Compounders.and Dispensers.
viii) Piiysiothcmpists and Occupational thcrapists:
IS) Public & Social Health Workers (Health Educators, Social
Workers. Family P'ianning Workers, Health. Malaria and Sanitan
Inspcctors. ctc.):
sj Redicgrapiiers, X-ray Staff. Dark Room S t a r and
si) Gther para-niedical staff (Prosthetists. Orthotists, Audio-visual
technicians, EEGIECGIEMG Tcchnicians. Limb-fitters,
Braccmakers, etc.).

.\iX Ol 52 36 ?'here arc about 16,939 para-medical staff distributed over the 1 1
i ,i,lh/i\~lnz,~~l~
categones rnmtloned above. In the various institutions, rsnging from the pa! -scale
of RS.950-1400to the scale of Rs 3000-4500. T k categon-wise distribubon is
given at Annexe 52.2.

/'rc*viou.s CPCs j2.37 The f i r d -CPCincluded all Nursing staff. Health Visitors Physio
and Occupational therapists, Phaxmacists, X-ray staff. Dressers, Health and
Sanitan, Inspectors and many miscellaneous staff in the para-medical category. It,
however, covered Laboratoly Technicians in the categov of scientific assistants.
It did not conside: iisk allowance as justified, particularly for nurses, as it felt t.hat
they were not exposod to greater risk of infection or i n j v than other para-medic21
categories. The Fourth CPC included only Radiographers, X-ray technicians,
Pharmacists, and nursing staff in their recommendations on para-medical staff. It
recommended parity between Pharmacists, Radiographers and X-ray Technicians.

(.'ortsulrancy 52.38 The Consu!tmcy study assigned by us to liPA was also requested
.SlZl&
to go into the ciassification, numbers and other matters concerning the para-
medicd categories. nith a view to suggesting changes in their pa!,-scales and other
dtspensations. The study has pointed out that para-medical staff arc those who arc
related to the mcdical profession in a secondary or supplementan position. \vith
technical qualifications. It has divided the para-medical staff into two categories.
on the basis of qualifications and the number of \'cars of cducation. The first
catego?' consists of pcrsonnel with minimum of thirtccn !'cars of cducation. i.c
1Ot-2-1-degrccld1ploma.including nurses who have thrcc and a half years of Nursing
Diploma. The second categoy consists of the personncl with less than thirtccn
,years of cducation. i.c inauiculation with ccrtiticatc coursddiploma of 1 yr.
duration The study has brought out certain dispariilcs ]:I pay-scales. lack of
promotion ax'cnucs in thc case of man!. of the para-nicdics. necd for iiiscrvice
training. and thc nccd to upgrade certain catcgorics. M;c lia\.c Lcpt in mind thc .
suggcsrions niadc b!. t k study. while making our own rccommcndations
Demands in 52.39 The demands made bcfore us in memoranda as well as oral
Memoranda evidence and oficial discussions, mainly relate to the aspect of career progression,
as many of thc posts are in extremely small cadres or isolated positions, which can
neither bc functionally increased , nor provided promotion avenues to the medical
category. Thc differcnt associations thcmselves have demanded upgradation of pay
sf.-E~x+~cn,.2ze;;3z(i"Viri'j
I
C .s - .qua~l~tiations
irl - - l . r and nature o;;ui;cs, the)?hiivc a h
asked for permission to do privatc practice or in lieu thereof, NPA, setting up of
para-medd councils, etc. Whde issues relating to individual categories have been
discussed separately, there arc still certain issues that iaeed to be gone into for the
para-mdcal categories m general. Classification of certain categories outside the
sphere of "para-medical",has been dcmaiidcd b?. Nurses, Physio and Occupational
Therapists and Dieticians, ctc. and Mcdical Record Officers have askcd for
Inclusion in the category of para-mcdical staff, Allowances for Risk, Patient care,
Son-practice (or permitting privntc practice). Break-down Duij. and Training. and
upgrading of skills have bccn askcd for in general along with uniforniity of
designations. Setting up of a high-potjcrcd committee on para-medical staff has
also been demanded.

High Powered 5 2 40 Nurses, Physio and Occupational Therapists and Dieticians ha\ e
Comm iner /or
desired to be classified outside the para-medical categories, as the Medical Council
Para-Medicals
of India has designated them undcr a separate category of Allied Health
Professionals on the ground that they help medical men in health care de1iLe.p
s? stem Medical Record Officers havc claimed that they have to be con\ crsant
~ t mdco-technical
h ternnolog?. bcsides the dutles of handling medical records.
and should, therefore,be included in the para-mdcal category The administrati\e
Ministq has mformed us that the usage of the tcrms in the Medical Council of
Inda is bemg followed, though the two-tier classification, Para-medical (Technical)
and P a r a - d c a l (non-technical). suggcstcd by the Consultants based on a gradcd
difference at entry level, is acccptablc We recommend that a high-powered
committee may be constituted for the purpose, to suggest re-categorisation
of all the hitherto para-medical categories worbng in the Central
Government institutions. This committee should also examine the issue of
privatisation of technical para-medical services, after experimenting with the
measure in some select Institutions. The Committee should also consider the
feasibility of restructuring and multiskilling of different para-medicals into
composite technicians and suggest staffing ratios and norms for Hospitals
and Dispensaries.
Allowatices 52.4 1 Certain para-medical and other group'C & D staff working in
hospitals and Qspensaries are bcing paid Hospital patient Carc Allowancc, which
covers the elements of Rrsk Alloi\~anceand Night Duty Allowance. Othcr
categories are in receipt of specific allmvanccs for specific purposes, like Spccial
Nursing Allo~vanceto Nursing staff. coixring such matters as risk, non-practicc.
ctc.. We have separately madc our rccminiendations on allowances for somc af
these specific catcgories in the follo\\ing paragraphs. We do not recommend
extension of risk allowance to any new category. We also do not recommend
grant of Non-practice allowance and break-down duty allowance, in general
to para medical'personnel.

_5 7-3 2 As rcgards thc dcinands for upgradation career progrcssion and

allo\\anccs. u c have madc our rccoriimciidaktomfor specific categories in thc pnrns
that follo\v For acquisition of higher qualifications and skills, a gcncrnl schcnie
for a lump-sun1 grant has b e p recommended elscwherc in this report, and may be
applied t o para-medical categories as well.

CLINICAL PSYCHOLOGIST

52.43 The clinical p~chologistshelp in thc treatment of mental illnesses

There are at lcast 15 Clinical Ps!chologists in the Central Government. genernll!.
recruited dircctly in Hospitals such as W L . Safdarjung, JIPMER, Lady Hardiiig
Medlcal Collegc and Kalawati Sarm Children's Hospital and Training & Teaching
!nstitulions such as All India Institute of Hygicnc and Public Health, Central
Institute of Psychiat? R.anchi. RAK College of Nursing etc The miniinum
educational qualifications for thesc posts and thc pa!. scales assigncd to them arc
3s follo\\~s:-

Hospital: Designation Method Qualifications

Institution & Pay scale of Rectt.

A RAKCOK -Director. Child Direct Master's degree

Guidancc Cltlilc. in Psychology +
KS.3000-4500 (1) 10 years' esperiencc

- Sr.Lecturer.Rs Dircct Mastcr's degree

2200-4000(-1) in Psychology +
5 y s . experience

-Lecturer, Rs. Direct Master's dcgrec

2000-3200( I ) in Psychology +
3 yrs. experience

Clinical Psycho- Direct -do-

loglst,
RS.2000-3200( 1)

B. Rh4L Jr. Psychologist, Direct -MA/M.Sc(Psycho-

Rs.2200-4000( 1) logy) + DM &SP

C. Kalawati Clinical Psycholo- Direct -do-

Saran gist. Rs.2000-3500
Childrens (1)
Hospital

D Safdarjang -Chief Psycholo- Neu Post NA

gist. Rs 3000-
4500 ( I )

-Clinical Ps! cho- Direct M A (Ps! cho )+

loglst. RS 2200- DM &SP
4000 ( 1 )

-Sr Ps\chologist. Direct M AIM Sc

052
 Hospital/ Designation Method Qualifications
Institution & Pay scale of Rectt.

Rs. 1640-2900( 1 ) (Psychologyj

E. CIP,Ranchi -Clinical Psycho- Dircct M .A/M .s c

logist, Rs.2000- (Psycho.)+
3200 (1) DM & SP

-Psychologist. Dircct M AIM Sc

Rs.1640-2900( 1 ) (Psycho.) J

3 !TS teachins
experience

-Asstt. Pvcho- Dircct M.Sc.(Psycho.)

logist.Rs 1-400--
2300(2)

F J IPMER, Child Bs\cholo- Direct M .A.(Psycho)

Pondy. gist,&. 2200- + DM &SP
4000( 1)

G AIIHBrPH, Asstt. Professor Direct -do-

Calcutta of Psycholom.
Rs.3000-5OOOf1)
Total No. of Posts 15
Note - Figures in brackets indicate Number of Posts.

Demands in 52.44 On an analysis of the memoranda of Clinical Psychologists it is

Memoranda observed that the main demand is for uniformity of pay scales and upgradation to
Group A. They have also asked for parih with doctors in respect of pay-scales and
allowances.

Earlier CPC-5 52 45 The l h d CPC did not treat these personnel as a common para-
medical category, but made recommendations for Clinical Psychologists to be in
Junior Class I positions in Safdarjung. RML Hospital & JIPMER based on
quallficabons and size of the msbtuuons For posts in RACKON and CIP. Ranchi.
ma& teadung I n s b t u h s . it recommended the scale of Rs 650-960 for Clinical
Psychologists with M A (Ps\.cholog?) and a Diploma in k4edical and social
Ps\.cholo~(DM&SP) For posts not requinng the dplonia, it suggested the scale
of Rs 550-900 The Fourth CPC made no obsenations on this categon
Our 52.46 We note that there are only 15 Clinical Psychologists in the Central
recontntc.JJd~l~J1~115
Government Hospitals and tcachins institutton. Clinical Ps! chologist uith
minimum essential qualifications of .L1 -4 (Ps!cholog? ) plus Diploma in Medical
and Social PsTcholoE (DXq%SP) worhing in dfferent Government Hospitalst
Institutions are placed in different pay scales. 1640-2900.2000-3500 and 7200-
4000. at entry Thus there is a lot of dispant? in the pa! -scales. though there is
 Rear similarity in educational qualifications Experiencc requirements chffer in
some institutions and accordingly a higher pay scale is given. Some posts do not.
howcver. require the post graduate DM&SP. We 'have considered the matter
and recommend as follows:-

a) Posts requiring M.A/M.Sc. (Psycho.) and DM&SP may be

placed in the scale of Rs. 2100-4000 at entry and provided 3
scales under ACP.

b) Posts requiring MNM.Sc.(Psychology) but not DM&SP may

be placed in the scale o f Rs. 1640-2900 to start with and have
two ACP scales of Rs. 2030-3500 and Rs. 2200-4000.

c) Parity with doctors is not recommended.

5 2 47 As regards the other dcmands on allot! anccs etc. and pa\.-scales in

general. thc rclcvant chapters may be rcferred to

1 DIETICIANS I
Inooductiota 52.48 Dieticians play an important role in. regard to treatment,
rehabilitation and prevention of clinical disordcrs through scientific counselling on
appropriate diet. A large number of diseases, c.g. diabetes mcllitus, cardiac,
hcpatitic and rcnal disorders; etc. heavily depend on appropriate did, that goes
bqond drugs. In the past this service was of ven. routine nature and was mostly
managed by hospital stewards and nurses. With the establishment of the first post-
graduate dploma course under the All M a Institute of Hygiene and Public Health,
affiliatedto the Calcutta Univpity, India had the first group of Hospital Dieticians
in 1950. fully trained and competent to handle hospital dietetics.

Sue of 52 49 The posts in this categon. are at present distributed in Central

Estab'ishrnenr
Ciowmmmt Hospitals, including the Amy and Railway Hospitals, over hfferent
scales of pay as follows:-
!lospltal Rs.1400-2300 Rs.1640-2900 RS 2000-3500 Rs.2375-3500

Designations Asstt.Dictn..' Dietician Sr Dietician C h Detician

Dictician Nutritionist
KAKCOS I
S'JIMG 3 I 1
w. 2
JIPMER 1 I I
Lmc 1 1
ALIIM'H 1 1
RAILWAYS 18
ARMY HOSP 14 6
L'Ts 7 13

TOTAL 45 22 8 1

Thc usual cadre structure of a Dietetics stream. after cnrn at the le\ el of Assistant
Dietician. is Ihetwan Sr. heucian and Chief Dictician E n t c levels vary bet\\ecn
thc scales of Rs 1400-2300 and Rs 1640-2900. depending on patient waffic and

654
 bed-strength. Entry level qualifications arc (a) B.Sc. (Home Science/Home
Economics) or M.Sc. Food & Nutrition: (b) 1 yeu's post-graduate.diploma in
Dietetics and Public Health Nutrition, 3 months' internship: and (c). 1 year's
experience in a recognised hospital. For entry at the level of Rs 1400-2300. the
experience requirement is usuall? treated as desirable. All other posts. wherever
xzilable in the hospita: kicrar2i>. of Dieticians arc f,kd bj p , r ~ ~ ~ r u i . i u ~

Ihiraiids iir 52.50 Deticians have demanded upgrixiation of their enw-level pal. scale
~'yL'rrtoratrdo to at least Rs.2200-4000, creation of promotion avenues, and constitution of an
organised "Central Dietetics Senice" by increasing the number of pcsts based on
\vorkload and functional requirements. Ttiq. have also asked for parity with
medical doctors in terms of ccnain allowances and facilities e.g. Non-Practice
A llowancc. Conveyance allo\vance, Health Care Allowance, Teaching allowance
for teaching Dieticians, reimbursable and prioriQ. telephone connections, allo\vance
for purchase of Books and Journals, attending NationaVInternational conferences,
at Government expense, etc.

('ottmtmm ofuti 52 5 1 The total number of posts of beticians undcr the Central Go\%is
orgatrised s e n w e 76. which includes Railways and Army Hospitals. These posts are spread across
groups 'B' & 'C' pay scales onb There is no post in Group ' A ' The
administrative Ministry is not in favour of such a servidcadre. as the posts are
\en. few in number. As the number of posts is small, we do not recommend
constitution of an organised service of Dieticians.

lpfladalrot?af 52 52 Dieticians have demanded upgradation on hvo counts First their

qualifications wrxe recognised as superior upto Second CPC, and t h q accord~ngly
prop z w o n
enjoyed a hi&astatus And secondly, the Third CPC was not correctly informed
of the qualifications by the adnumtrative Ministry. While the M h s t q maintamed
B SC. + 2 p. experience as rmnlmum entry qualification, those actually applicable
were said to be M.Sc degree +PG Diploma +1 year's experience. At present most
hospitals have only one of the grades at entry stage with no promouon posts,
whereas others have single posts, usually ollc or two levels hgher. There is
enormous stagnation which the Association d e s k to relieve. The Third CPC
recommended the scale of Rs 550-900 with 3 advance increments to Dieticians
wth a qualification of B.Sc (HomeScience) + 2 yrs. experience. (the qualification
of 1 year's PG Diploma + 3 months' internship was not mentioned) in JIPMER,
Safdaqang and Willington (no\\ RML) Hospitals. It granted the scale of Rs 650-
1200 to Sr. Dimcians with qualifications of B.Sc.degree plus diploma plus 3
years' expenence both levels being filled by direct recruitment The Fourth CPC
did not make any mention of these posts. The administrative Ministq has
suggested a genaal upgradatlon at all the levels Since their m i m u m educational
qualifications at entry are B Sc (Home Science) with one year's PG Diploma in
betetics and Nutntion and 3 months' internslup, we recommend that the entry
scale of Assistant Dieticians should be upgraded from Rs.1400-2300 to
Rs.1640-2900/-, and such posts may be redesiiated as Dietician Gr.111 The
next higher grades will be Dietician Grade I1 in the scale of Rs.2OOO-3500,
and Dieticians Grade I in the scale of Rs.2200-1OOO. The posts of Dietician
grade 11 at t h e l e d of Rs.2OOO-3500should be'merged to form a single cadre
covering all the hospitals and teaching institutions mentioned above and made
feeder to the posts of Dietician Gr.1 and Chief Dietician. Chief Dieticians may
be upgraded to the scale of Rs.30(10-4500/-. The minimum qualification for
Chief Dietician should be >lasters degree in Dietetics and Sutrition, and the
 post may be filled by promotion, failing which by direct recruitment. The
minimum educational qualification prescribed for direct recruitment should
also apply in case of promotion. The posts of Chief Dieticians should be
created wherever functional justification exists.
I. u/IcIIGJ,LI: 52 53 Dieticians na\ e Dointed w t that their Lvorkload increases in direct
Jl~~~l/ICll/lfJll
proportion to the number of paticnts and beds attached by them 3s out-patient and
in-paticnt. respectively Ithilc thc nunibcrs on both counts ha\c increased
mmfold uith thc espansion of hospital facilities. thc number of Dieticians has not
changed Wc note that the DGHS has issucd certain guidelines rcgardmg staffing
norms On the basis o f t k norms, wherever the number of beds and patients
justify higher and larger number of posts, these should be created based on
functional requirements

4ill>nll/l'~'~ 52 54 Dieticians ha\ c claimed that thcir duties arc coniparablc uith
medical doctors The\. also ha\ e to cspcriment and do research and uould like to
ha\ e higher education allowance. allo\\ance for purchase of books and journals.
conveyance allowance. telqhone pnority and reimbursement. facility for attending
nationaYintemationa1 conferences and housing facilities near hospital campuscs.
besides a special teaching allowance for duties involving teaching and training of
medical. nursmg and dmetrcs students The adminutrative Ministq has pointed
out that Dieticians are not required to c a m out independent diagnosis. and
UlaapeutH: support is provided on second- referral. since their main duties are
cowerned w~thhospital detetics and kitchen Therefore. any cornpanson with
m&cal doctors would not be \.did Gomg by the advice of the Minist?. \\c do not
feel an!. special allo\\anccs are justified We, therefore, recommend that only
Chief Dieticians may be granted allowance for purchase of books & journals,
and reimbursement for attending nationaYinternationa1 conferences as
recommended for Medical Doctors. For giving Lectures, honorarium as per
rates prescribed for Central Govt. employees in general, is recommended.
A separate teaching allowance for occasional teaching duties is not
recommended We also do not recommend grant of Non-practice allowance,
as Dieticians neither work round the clock nor does their work involve
multiple areas of health care.

Gmercil 52 55 An imponant role in the healtfl deliven' system is that of nurses.

"rfrod"rrf''r broadl) divided into three distinct categones - Hospital Sen ices. Sursing
Education and Public Health There are at leas! 10.298 personnel comprising the
Central Government's nursmg staff as follows -

Nursing Sen-1ces - 9770

Nursing Education 98
Public Health. Sursing - 430
- TOTAL - 10,298

NURSING SERVICES STREA31

Cadre Structure 5 2.56 The Nursing senices are concerned with care of the sick and help
them to recoup their health. They exist in the Cenzal Govement hospitals,
dspensaries and clinics. A nurse's career in Hospital Nursing sewices begins as
a StaffNurse in the grade of Rs.1400-2600. Posts in this grade are filled by direct
recruitment, kvith qualifications of 10+2, 3-year diploma in General Nursing
Frogramrnc and regisudtion as Nurse arid Mid\+-ife\vith tine Central or State
Nursing Council. The general cadre structure of the nursing seniczs in different
Govemicnt Hospitals is in thc follo\ving pattern.-

Chief Nursing Officer RS 3000-4500/5000

Nursing Superintendent Rs 2200-4000
Dcpup Nursing Suptdt Rs 21)00-3500
Ass t t Nursing Suptdt RS 2000-3300
Pi urs ing S i s t er RS 1640-2900
Staff Nurse Rs 1400-2600
Uactttatlds itt 52.57 The Nurses' Association have demanded upgradation of their pa!'-
.'fentorundu scales at all Ic\.els,grant of Non-Practice Allowance. provision of accommodation
to all nurses. removing post restrictions, providing time-bound promotions, and
cnhancemcnt in various aflo~vances. Nurses in general have also demandcd
exclusion of their categon from the category of para-mzdicals.

Pa:\. scales 52.58 Upgradation has been demanded on grounds of incornpatibilie of

payscales \vith the present qualifications and strenuous job content: Improvement
of promotion prospects combined with upgradation at each level has also been
sought on account of stagnatioq caused by a top-narrow cadre structure. The Thud
CPC recognised the arduousness of duties based on bed strength of hospitals and
the quahfications i i ~granting upgradation in the e n p pay-scales. It also obsened
that the difficulty in retention of Nurses is due to marriage, prospects abroad and
non-availability of promotions. The Fourth CPC also granted an upgradation in
the replacement scales keeping in mind the difficult nature of duties and meagre
promotion prospects. The administrative Ministry h k suggested further
upgradation at each level, with at least three promotions during a career. It has
suggested that a grade of Chef7 Principal Nursing Officer in the scale of Rs.3700-
5000 should be created in each hospital having 750-1000 beds to be overall
incharge of Nursing administration and improving the quality of nursing care. We
note that thc two previous CPCs have already reflected the reasons cited by the
Association: in _mtingupgradations. The prescribed rnkimum qualifications for
recruitment of a staff nurse do not justify a higher scale of pay. However, on
account o f rationalisation of the scale of pay of Rs.1400-2600,we recommend
that a Staff Nurse may be placed in the scale of pay of Rs.1600-2660 at entry.
We also note that as per existing norms, a Matron or Nursing Supen-isor in a lower
pay scale is dread\. catering to bed strength of about 500-600, s i t h the assistance
of hkpital attendants, dressers and other subordmate staff for ward facilities and
cleanliness. There are alreah some unfilled positions of ChiefPrincipal Nursing
Officers (Rs.3000-4500/3000-5000) in some hospitals and institutions
Upgradation of the Chief Nursing Officer or creation of a ne\v lel-el in a scalc of
pay corresponding to Rs.3700-jOO0,is, in our yiew. therefore. not justified. There
isl ho\ve\.er. merit in the demand for some upgradations because of narrow or no
differences in feeder and promotion scales. and also changes caused b!-
rationalisation of certain scales recommended b? us elsewhere. The following
structure for the cadre of staff nurses and above is recommended:-

65 7
 NOMENCLATURE EXISTING REDESIGNATED PROPOSED
PAYSCALE AS PAY SCALE
(Rs) (Rs)
Sratt' Nursc 1-100-2600 Xo Change 1600-2660 Rationalisation

.vJUXPI~ s2.59 Nursing Allo~vanceis grantcd u Rs 1501- p.ni. to all thc nursing
.-Il l ~ * t ' nt1d
~ ~ ~ t . categorics
at d l levels in Central Govt. Hospitals and institutions in view of their
.V1J.t
,.I
multifaricuis duties and rcsponsibilities. A Special .4llo\vancc of Rs.60,'- p.n-i is
also granted 10 Nurses \vorhe in Special Units like Major Operation Theatres.
1CU/ CCL. Dialysis Unit/.Ward. ICU for burns. Tctanus and Rabies Wards.
Paed~atricand neo-natal units, subject to the condition that i; shall not bc p n t c d
to more than 25% of the total nslrsing sucngth The adminiskative Ministn has
suggested that the allowtnces should bc enhanced as niirscs arc not entitled to .Nan-
Practising allownce. NPA is not alloived to Nurses at present Their availability
an duty at odd hours is on the line of rmtional shifis, unlike doctors on call. We
are iiot convinced about the justification for grant of NPA to nurscs. We,
however, recommend that the nursing allowance should be enhanced t o
Rs.-100 per month, which will cover the element o f Son-practice allowance.
Special allowance should also be enhanced to Rs.120 per month.

Iki$onn & 52 60 Nurses are also paid a Urnform Allou ance of Rs 125 p m which
JCashing has been sought to be increased, as their requirement is 6 terrycot uniforms in a
.Mowancc
vear. the costs of which have mcreased The administrative Minis- has also
suggested its increase We recommend that this allowance may be given
annually at the rate o f RS3000/-as a lumpsum amount. They arc also paid 3
Washing Allo\tance Rs 7%- p m I\ e f 1 10 86 This may also be doubled
to Rs.150 per month.

Nisk.4llonanc.e 52 6 1 Nurses have clauned that the! run the risk of contracting disease5
due to the nature of their job and close contact w t h the patients The? undergo a
great degree of mental and ph?sical stress and strain. \\bile protiding carc to
patients/ clients. and at the same time are ine\ itabl! e\posed to many dangerous
diseases The Third CPC did not falour grant of rrsh allonance to nurses on thc
graund that Lhp \\ere not exposed to greater risks comparcd to other para-medical
categories W e also d o not recommend a separate risk allowance for nurses
as nursing allowance and special allowance will take care of this factor also.

.I~conmtodarrrm 5 2 62 Xursing staff have dcmandcd allotrncnt of accommodation on

 priority. The Third CPC observed that nurses were provided free, M s h e d
accommodation in the hostels attached to hospitals under the Minishy of Health.
It suggested that Government should treat nursing staff who were liable for night
duty as "essential" for purposes of priority allotment of accommodation. The
administrative Ministry has recommended granting general pool accommodation
to Nurses. It is also constructing a residential colony for Nurses working in Central
Government Hospitals/ Institutions at Delhi. We suggest that the Ministry
should take steps to improve hospital accommodation satisfaction for nursing
personnel.

Creche Facilities 52.63 The demand for provision of Creche services at the Hospital
premises is a genuine one. We recommend that as far ES possible, creche
services should be provided in the hospital premises.
A'on-t .ridenr 52 64 There is a category of non-resident nurses in the Central
.Vur.res Government Hospitals viz. Safdqang, 'Ram Manohar Lohia and JIPMER
Hospitals 'Ihcre were only 46 such posts at the time of the Fourth CPC, as against
87 at the time ofthe Thlrd. At present there are 20 posts of non-resident nurses in
Safdqang Hospital, 13 in JIPMER and 22 in RML Hospital, totalling 5 5 . Their
qualifications are those of staff nurses, but they work only for 6 hours without
break, in the Out-patient Department. They have demanded upgradation to the
level of Staff nurses. adequate promotion opportunities and reintroduction of the
selection grade granted earlier. Though the educational qualification of the non-
resident nurses is similar to that of staff nurses, the administrative Ministry has
adlised that the cadre of nm-resident nurses is a dylng one and is being phased out.
We do not recommend upgradation in view of the difference in the nature of
duties. As regards grant of the benefit of Selection Grade the ACP scheme will
take care of career progression.

NURSING EDUCATION STREAM

Cadre Structure 52.65 Nursing Education is d c t e d in the Hospital Schools of Nursing,

Raj Kumari Amtit Kaur College of Nursing, and some other teaching and training
institutions under the Central Government. Nursing education is also provided by
the AIIMS and PGI, Chandigarh, both autonomous bodies. All the Colleges of
Nursing prepare nurses for the B.Sc.(Nming) degree (basic/post basic) and higher
courses. The Hospital Schools of Nursing assist in the professional preparation of
nurses. The en$' level in this stream is that of a Clinical Instructor (Rs.1640-
2900) with qualifications being the same as those of a Staff Nurse in the Nursing
services stream, plus a year's experience of clinical nursing. The cadre structure
above the entry level is the Sister Tutor, Senior Tutor, Lecturer and Senior
Lecturer. T h s is a small segment of 98 personnel in the overall category of nursing
staff, engaged in the RAK College of Nursing, Central Institute of Psychiatry,
Rural Health Training Centre, National Tuberculosis lnstitute, Lady Reading
Health School, etc..
.\/uin Demands 52.66 Thc main demands of this stream are for upgradation to UGC
scalcs, comparable to University and college tcaching professionals, grant of Non-
Practice, Nursing and Special Allowances as for thc clinical nurses and free
furnished accommodation at the campuses.
UGC Scales 52.67 The teaching nurses have complained that at the time of fixing the
pay-scales for various levels of faculty in the nursing education sector, these have
so far been fixed at the same level as their nursing senices counterparts. Since
nursing education has now come into the mainstream of college professional
cducabon, thc pal,-scales of faculty of Nursing Colleges should be brought on par
with the UGC The Third CPC considered b e matter but did not favour grant of
UGC pay scalcs The Fourth CPC drd not make any recommendation on this issue
We note that medical colleges in Central Government have also not granted UGC
scales to tcaching mcdical and non-medical personnel. We do not recommend
grant of UCC scales of pay to the teaching nurses. and the replacement scales
recommended by us in the relevant chapters will appl?

.-I Ilowittces 52.68 As mentioned above, Special allowance has been granted to nurses
covering critical areas of health care. Teaching nurses already hait an edge over
other streams. Keeping in mind their duties and responsibilitics, and the fact that
their clinical functions are not in critical areas, we do not recommend grant of
special allowance. We have already indicated that we are not in favour of NPA
for any of the para-medical categories, including teaching nurses.
Citvierul puy 52.69 As regards the other demands, general replacement scales and other
~CUILT
allowances and conditions of service, we have made ow recomniendations in the
relevant chapters

PUBLIC HEALTH NURSES

Codre structure 52.70 This stream constitutes a vital segment of the community health
services deliver3 system, in implementing primary health and school health care
related programmes in sub-urban, rural and remote areas. It consists of Public
Health Nurses; Health Supervisors,Lady Health Visitors (LHV), Auxiliary Nurse-
Midwives(ANM) and Multi-purpose Female health Workers. Comprising about
430 personnel in the Central Government, this stream has three entry levels as
follows:-

Nomenclature’ -Pay-Scale Educational Qualifications

A M e m a l e Health Rs 975-1540 Matric + ANM/HWI: Course +

Worker Registration

Lady Health Rs.1200-2040 Matric + LliV Course +

Visitors Registration as ANM

Junior PI1 Nurse/ Ks 1640-2900 Same as for Staffnurw

School Health Nurse

Further promotions are available as Health Supmxors (Rs 2000-

3500). Co-unity Health OfficedDistrict Public Health Nursing OfficedSchool
Health Nursing Officer (Rs.2200-4000) and District Mass Educational &
Information Officer (Rs 3000-4500)

I )fiwtnrtdc 52 71 La& Hcalth Visitors and .4NMs ha\ c dcmandcd better pay scalcs
and promotion opportunities at par \\ ith othcr spccialiscd tcchiiical cmployccs

660
 working under the Central Government and to remove stagnation. Allowances like
Night Duty Allowance, Patient Care Allowance, Uniform Allowance & Washing
Allowance and fisk Allowance have been asked for.

Pay Scales 52.72 We note tllat LHVs are promotion posts for ANMs and hotb are
filled to a large extent by direct recruitment with comparable qualifications. In
view of the prescribed qualifications and nature of duties, we recommend that the
entry level of ANMs should be raised from Rs.975-1540to ,Rs.1200-2040.
LHVs should accordingly be placed in the scale of pay of Rs.1400-2300.
These upgradations will also help to reduce the gap betwezn these posts ahd the
next level of Pubiic Health Nurses. Public Health Nurses, as !he nest higher level:
are recruited from among LHVs, Medical Social Workers and directly, with the
requisite qu3lifications. The promotion quota for LHVs. etc. in the post of
Community Health Officer is 20%, the remaining 80% being filled from the cadres
of S a n i t a r y / F d Material Inspectors. LHVs have claimed that the incumbents
from this 80% quota are not technically qualified or trained in terms of DGHS’
extant orders. Therefore, they feel that promotion to this IeveI should be set aside
entirely for LHV,etc. We are not in favour of disturbing the present ratios for
renivving stagnation among the LHVs, as the Assured Career Progression will
suffice.
.-t Ilorinrices 52.73 Night Duty and Patient Care in the case of Public Health Nurses,
LHVs and ANMs is of occasional nature and not contiiluous like some of the staff
nurses. We. therefore, do not recommend grant of allowances for these purposes.
Uniform and washing allowance should be granted to them as has been
recommended for nursing staff in general.

Generalpay- j 2 74 As regards demands pertaining to replacement pay scales other

scales allowances and semm conditions, our recommendations in the relevant chapters
may be referred to.

1 OPERATION THEATRE TECHNICAL STAFF I

General
Introduclion 52.75 Operation Theatre Technical Staff waking in the operation theatres
of Central Govt. Hospitals, comprise Technical Officers/Superintendent,
Supervisors, Technicians, Assistants and Attendants, spread across pay scales
ranging from Rs.800-1150 to Rs.2000-3500. They also include staff In
sterilisation services.

Etiahlirltmerri 52 76 The Operahon Theatres of the Central Govt are located In the four
major hospitals-Safdarjang, RML, LHMC and JIPMER-besides hospitals of the
Indan R a h a y s and Ordnance Factories Numbenng 290 in these organisations.
they are distributed as follons -

Hospital OT OT OT Others Total

Attdts. Asstts. Technicians
JIPMER 4 10 10 24

LHMC 2 5 15 22

Safdarjang 4 73 33 1 111
 Hospital OT OT OT Others Total
Attdts. Asstts. Technicians
RML 30 __ 20 50

Ordnance -- 15 1 16
Factories
- OTAL40
T 170 79 1 290

Uen1utrdr 111 52 77 The Operation Thcatrc Technicians Association has represcntcd that
~ ~ thc~pa> scalcs
~ of 0 T ~Techiical~Staff and"Laboraton.
~ Technical
~ Staff~ ~
in hospitals ~ h
used to bc same after the implementation of the recommendatiotls of the Third
CPC But the Fourth CPC recommended lower pay scales for the 0 . T Technical
Staff in comparison to the Laboratory Technical Staff with comparable educational
qualifications and naturc of dutics They haw also pointed out that the Fourth
CPC mrnmcnM that Group 'C'& 'D' technical employees worhg in lffercnt
hospitals may be given promotion after 15 years of senice They have also
demanded payment of an 0 T allmsance and enhancement to 60 years of the age
of superannuation.

Puy I'mrict 52 48 The Operation Thcatrc Technicians have the following relativit? of
posts with the Laborator)/ Technicians -

O.T. TECHNICIAN LABORATORY TECHNICIANS

Pay Scales Py Scales
POST (Rs.) POST (Rs.)
O T Tech. 2000-3500 Lab Tech. 2000-3500
Officer/ Officer/
Supdt. Supdt.

O.T. Tech. 1640-2900 Lab. Tech. 1640-2900

Supervisor Supcrvisor

Sr. O.T. 1400-2300 Lab. Tech. 1400-2300

Tech. Asstt.

O.T.Tech 1200-2040 Lab. Tech. 1320-2040

0 . T .Asstt. 950-1400 Lab.Asstt. 975- 1540

O.T. Attdt. 800-1 150 Lab.Attendant 800- I I50

662
 Esccpt thc rust hvo levels above Group D, the rest of the posts have the same pay
scalcs m both categories. The administrative Ministry have observed that, there is
similarity In the training, qualification & recruitment rules among the laboratory
technical staff and the O.T. Technical Staff. In view of comparable
qualifications and duties, we recommend parity of O.T. Technicians and Lab.
Technicians at the initial levels also. Accordingly, the following grades are
proposed for O.T. staff in future.

1) O.T. Attendant - Rs. 750-940 with 2 ACP levels of Rs. 775- 1025
and Rs 800-1 150 with minimum 8th Standard qualification, at
:ntry;

ii) O.T. Assistant - Rs.950-1500 \gth 2 ACP levels of Rs. 1200-2040

and Rs. 1400-2300 with minimum qualification of matric (with
Science) plus certificate or 10+2 with Science for direct
recruitment; and

iii) O.T. Technician - Rs. 1600-2660 with 2 ACP levels of Rs. 1640-
2900 and Rs.2000-3500with minimum B.Sc. plus Diploma/
Certificate in the relevant subjects. The existing incumbents in
each organisationin operation theatres as well as sterilisation
services will be placcd in appropriate matching pay scales.

O.'T.Allowance 52.79 Payment of O.T.Allowance has been demanded on the lines of the
O.T. Technical Staff in Delhi @vt. The demand is not justified as O.T.staff are
recruited for O.T. duties. We do not recommend grant of O.T. Allowance.

General pay 52.80 As regards demands for career progression, superannuation age, etc.
scoles and replacementscales, the general recommendations in the relevant chapters will
apply.

Gettern/ 52.8 1 Dental Hygienists, Technician and Mechanics assist Dental

't'mducfron Surgeons in dental care of patients and exist in various Central Govt. Hospitals and
dispensaries. Dental Hygienists are entrusted with the duties of independently
attending to patients and performing the work of oral prophylaxis, viz primary and
diagnostic treatment plan and advice to all cases. Dental Mechanics are required
to make artificial dentures and other prosthetic work in Dental Laboratories. A
Dental Technicians' work is to assist the Dental Surgeon while treating patients.
All the three categories enter service in the scale of pay of Rs.1200-2040 with
minimum qualificationsof Matric with science and r+trstior. as Dental Hygienist
t i d l a 2 -years Diploma. Dental Mechanics are required to have 2 years experience
in prosthetic Laboratory work also.

663
Estnhhslrnierit 5 2.82 Them are at least 46 cmployecs in the para-dental catqorics as
folI on5 :-
Design atio n Pa y-Scale Total

1200-249 1400-23C!?

Dental Tcchnician 31 2 .-
> -1 -
Dcntal Hygienist 7 7

Dcntal Mechanics 4 1

TIic Indian Railways do no1 ha1.c an! para-dcntal posts Dental H!Sicni<ts a i d
Mcchanics are 100% direct cntn isolatcd posts Onl? Dental Tcchnicians h a \ c
promotion posts of Sr Dctltal Tcchiliclans (Rs 1400-2300)

l ~ e l l l ~ ~ lI l1d) \ 52 83 The Association of para-dcntals has askcd for the upgradrltion of

4 t l , r ? l o l ntrdt1 thc cnt? level posts f r m i the pa! scalc of Rs 1200-2010/- to Rs ?000-3iOO/-i c
onc step below that of Dental Surgeons. \\ho enter in the pa) scalc of Rs 7100-
40001-. wth adequate promotion opportunities Demands have also bccn niadc 111
gcn'eral on allowances and conditions of s c n ICC. \\hich ha\ c bccn hnndlcd
clsewhcre in this report
Our 5 2 84 The thrcc catcgorics are rcquired to be registcrcd as Dcntai
~ ~ C O ~ I I I I ~ , 7
I I ~ ~ I ~ : ~ I I
Hygemsts a l o n w t h matnc nith Scicnce and a 2-year diploma 3s basic ciitn ic? ci
qualifications. All these posts are filled entirely by direct recruitment 1 hey may
all be redesignated as Dental Technicians with the following grade structure.

Dental Technician- Gr.1 Rs.1600-26602nd ACP

Dental Technician- Gr.11 Rs.1400-23001st ACP

Dental Technician- Gr.111 Rs.1320-2040(entry)

Wherever the number of p a l s is larse cnouzh to functronall!~justif) It. one posr of

Chief Dental Technician ma! be introduced i n the scale of pa!, of Rs 2000-3500/-

1 P,HARMACISTS I
General 52.85 Pharmacists are concerned with supply of medicines in accordance
'nrroduc''o'l
with prescriptions or, when legally permitted, without a prescription. The!, also
deal with procurement, selection, presenation, storage, preparation, distribution,
adrmnistration and accounting of drugs and pharmaceuticals. The usml minimum
essential educational qualification for direct recruitment against thc post of
Pharmacists in the scale of Rs. 1350-2200 is 10+2,2-\-earsdiploma and 3 months
training in Pharmac!, along \vith rcgistration with the Central or Statc Pharniac!.
Council. Some organisations recruit them with loner qualifications also
,
 Pharmacists have a two or thrcc grade structurc. including the entry level. \\ith
promotions upto the scale of Rs. 1640-2900. and sometimes upto Rs.2000-3500

Distribution of 52 86 The total number of Pharmacists is about 3483 They are generalh
Eittablishmetir cmplo) cd in Central Government Hospitals, Dispensaries, Central Drug
Laboratory, Medical Stores Organisation etc Besides, Pharmacists also exist in
Botarucal Survey of Inda (BSI), Air Headquarters, Archaeological Survey of India.
Directorate General of Employment & Training ( W o Labour) etc ,where entry
Ic\ el is lower, i.e in the scale of Rs 1200- 1800 or Rs 1200-2040
Demands in 52.87 Pharmacists associations have demanded setting up of a separate
klemoranda Dircctorate of Pharmacy for greater participation in policy-making as well as
adequate career progression, upgradation of their pay scales and granting of
additional allowances for non-practice, patient care, non-technical duties, risk,
literature etc to improve their functioning as well as achieving job satisfaction

Frevious CPCs 52.88 The Third CPC obscrved that Pharmacists also include
compounders and dispensers. It divided the category of Pharmacists into two i.e
full? qualified Pharmacists and unqualiiica Pharmacists and accordingly suggested
different pay scales. The Fourth CPC broadly followed a similar pattern of
granting replacement scales for the registered Pharmacists. For improving the
promotion prospects of Pharmacists it recommended that administrative Ministry
night examine the desirability of a few posts in the pay scale of Rs. 1640-2900/-.
No distinction was made behveen qualified and un-qualified Pharmacists.

Directoratc of 5289 No justlfication has been furnished on the need for Pharmacists to
Pharmacy pla! a role in policy making relating to health when a Drugs Controller of India.
and Pharmacy Council of India exist This demand, if accepted, wll lead to similar
dcniands by other para-medicals to haie thcir onn specialised Directorates We do
not rccommend setting up of such a Directoratc

52 90 Upgradatlon of the p3) scalc of Registered Pharmacist is sought

from Rs 1350-2200 to Rs 1400-2600 at par with diploma holders of other
disciplines like Engineering, Nursing eic Pharmacy Council of India.
recommended in 1976 and 1994, that the pay scale and promotion avenues of
Phamiacists should be at par with other technical diploma holders II? Enginecring
and Tcchnology as the post of Phamiacist is also technical. W e recommend that
Pharmacists, in view of the prescribed entry qualifications should be placed
in the scale of Rs. 1400-2300 at entry. The grade structure in existence at
present should be modified as follows:-

Nomenclature Pay scale Qualification

Pharmacists Rs.1640-2900 2nd ACY

Gr.1

Pharmacists Rs.1600-2660 1st 4CP

Gr.11
 Nomenclature Pay scale Qualification
Pharmacists Rs.1400-2300 10+2+2yrs.
Gr.111 (entry Diploma + 3
level) months training
and registration

Wherever there is a post of Chief Pharmacist it should be placed in the pay

scale of Rs.2000-3500. Posts of Chief Pharmacists may also be created in. the
hospitals in the pay scale of Rs. 2000-3500 based on-functionaljustification.
I n future no recruitment should be made in this cadre with qualification of
less than Diploma. AII those incumbents who possess a diploma in Pharmacy
and a r e in lower scales a t present may also be brought into the scale of Rs.
1400-2300. Incumbents not possessing Diploma in Pharmacy may continue
in the replacement pay scale corresponding to their existing scales with ACP
only.

I’nncirt Cor 52 91 Paticnt Carc Allowance @,10./, of the basic pa! per month, has
1 Ilobua,lcr been asked for against thc prcsent rate of Rs 80/- p m The allowance should be
doubled to Rs. 160/- pm., retaining the conditions under which it is granted
i.e. if no night duty o r risk allowance is sanctioned by Government

(;etiernlpav 52.92 For all the remaining matters our rccommcndations clsewhere in
scnlcs this report wvill apply

PHYSIOTHERAPISTS AND OCCUPATIONAL THER4PISTS

52.53 Physiotherapists and Occupational Therapists, located in Central

lnwoduc!ion Government Hospitals, dispensaries and institutions covcr two distinct branches
of Therapy vizl‘hysiotherapy and Occupational Therapy. Physiotherapists (PTs)
are concerned with the management of orthopaedic, neurological, medical, surgical
dsorders through the scientific application of heat therapy, light therapy, electro
therapy, hydro therapy, exercises and massage. Occupational Therapists (OTs),
on the other hand, deal with such disorders through purposeful goal-oriented
activities to achieve optimum functioning, prevent disabilit?. and maintain health.
Disrrrhurron of 5 2 94 Thcrc arc 176 posts of Physiotherapists arid Occupational therapists
Esrab’rs’ln’eril in thc Central Government Hospitals and Institutions as shown bc1owv.-

Institution PTS OTs Total

Indian Railways 50 50
Safdarjung Hospital 49 13 62
LHMC & KSC Hospital 6 4 10
CIP 4 4
AI!PM&R 13 7 20
R M L Hospital 3 2 3

666
 Institution PTs OTs Total
Ordnancc Factories 1 1
C/RLTRI 7 7
JlPMER 9 8 17

Total 138 38 176

Usually both the categories enter at ,the level of Rs. ,1400-2300,with minimum
qualificationsof lot2 and a three-year degree or diploma and 6 months internship,
with or without PG training. At highcr Icvels the posts of Lecturer PT/OT arc, i n
the scale of Rs. 2000-3200, and posts cf Sr. Lecturer or Senior Physiotherapist/
Occupational Therapist arc in the scalc of Rs. 2375-3500. Certain organisations
follow a different p a m y also. Indian Railways have only two gradcs of
Physiotherapists, i.e. Grade 1 at thc Icvcl of Rs. 1,400-2300, and Grade I1 at thc
lcvel of Rs. 2000-3200. In contrast. thc Jawaharlal Institute of Post-graduatc
Mcdical Education and Research and thc Central and Regional Leprosy Training
and Researeh Institutes, undcr thc Ministry of Health, recruit Assistan1
Physiotherapistsand Physiothcrapy Tcchnicians in thc scale of Rs. 1200-2040 with
qualifications of matric+PhJslothcrap\. Certificate coursc, who atso I m ~ c
proniotion avenues to the posts of PIi!siothcrapist.s/ Occupational thcrapisls.
Drnrarid.~111 5 2 95 Physiotherapists and Occupatlonal Therapists have dcmandcd a
*''bnorcrd'r
Iiighcr entry lcvel based on the contcntion that their qualifications arid dutics arc
comparablewith those of doctors Thcu demunds also include parity with mcdical
aid dental doctors with regard to ently h e l s , carcer, allowances and othcr scnice
conditions. In support of their demands they have cited a CAT, Principal Bcnch.
judgement in petition No. 2323189 dated 8.694, under whlch the rejcction of a
~ccommendationto raise their scales of pay fromthe existing level Rs. 1400-2300
to Rs. 2000-3500, had been quashed Bcsldes, they have also asked for being
roclassified by exclusion from the ca tcgory of "Para-medicais" and unification of
the cadre of PTs/OTs.

Par19 w i h 52.96 The educational qualification aid the nature of dutics of

hfedm~Doc'ors Phy$ic?hrapistaml Occupational Therapist are not cnmparableto those of MBBS
cteetors and BDS (Dental Surgeons') The administrative Ministry had formed a
Committee in the DGHS with representatives from the Association of
Physiotherapists/Occupational Thcrapists to consider the matter. Thc COIMIittCE
obscrved that there was no evidcncc to show that PTs/OTs could. I& mcdical
pracouoncrs, have first contact with paticnts, and dia,~ose,investigatc,prcscribc,
treat and follow up patients with \'armus diseases. Tht: Committee also noted thal
PTsIOTs were required to take the advice of medical nnen in regard to starting of
Phyciiotherapy of Occupational Therapy and continh,g suoh treatment. Our
Consultants as well as Secretq (Health) and DGHS,dwing discussions with us,
have shngIy urged that this category needs to be upgraded. .Keeping in mind the
educational qualifications and nature of duties of PTs/OTs .and other relevant
factors we do not recommend parity with medical practitioners. However,
we also feel that the present scale of Rs. 1400-2300 is low vis-a-vis minimum
qualifications and the nature of duties. We, therefore, recommend that
PTdOTs may be placed at the level of Rs. 1640-2900 at induction. Since we
are not in favour of parity with doctors, career progression of PTs/OTs will

667
 follow the usual ACP pattern. Lecturers in PT/OT should, accordingly, be
placed in the scale of pay of Rs. 2000-3580, and Senior
Physiotherapists/Senior Occupational Therapists in the scale of pay of Rs.
2200-4600. To improve promotion prospects a post each of Chief
Physiotherapist and Chief Occupationat Therapist in the scale of Rs. 3000-
4500 may be created in hospitals and institutions wherever functionally
justified.

52.97 We have looked into the demand for payment of allowances at par
with dxtor. We have already indicated our views on the issue of parity Grant of
NPA to Doctors is not based on the possibility of private practice, but on account
of tlic requirement of call duty round thc clock without resort to private
practice/compensation For PTs/OTs therc is no requirement of such call dut?
round the clock ' NPA to PTslOTs is, therefore, not recommended. Other
allowances are also not recommended as parity with doctors is not beirig
con ceded

52 98 The claim for unification of thc cadres of PTs and OTs IS based on
Ihc argunent that their qualifications and dutics arc comparable and the end-result
ofthcir respective effort is the same The admimstrative Ministry has. ho\\c\ cr.
ad\ ised that the qvalifications and ficlds of activity of PTs and OTs are different
and riot interchangeable We also obscnc that all the health and educational
i'nstitubons employing h s e personncl ha\ c kept the streams separate at all le\ cls
We,. therefore, do not recommend merger.
Grricruf dcmciiitir 5 2 99 As regards the other demands and replacement pay-scales our
Orid pi)'S C C I ~ < * C
recommendations in the relevant chaptcrs may be referred to

1 PUBLIC AND SOCIAL HEALTH WORKERS I

Backgroirnd 52 100 Public and Social Health Workcrs are para-medcal workei s whosc
sphere of duty mainly covers implementation of vanous sanitation health
cducation and training programmes of Government including Family Welfare,
Child Health and Immunisation programmes, S w q s and also education of the
public on vari- aspects of health in the field. They have different designations
in different institutions such as Medical Social Workers, Psychiatric Social
Workers, Field Investigators, Health Inspectors. Sanitary Inspectors. Family
Welfare Extension Educators, etc
Distnburioti of 5 2 101 The Public and Social Hcalth Workers with a strength of about
Esf"s'inic't'' 1320 are mostly found in Central Go\ t hospitals, Railway hospitals and \ arious
Public Heslth Programmes and Institutions, such as Port and Air Port Health
Organisation, Leprosy Training 8c Research Institutes, Central Health Education
Bureau, Family Welfare Training & Research Centre, Central Institute of
Psychiatry, Ranchi, etc. They are spread across the following pay scales

FW Field Worker Rs 950-1400/1500

Sanitary Inspector RS 1200-204@/-

Social WorkerMale Health Rs.1400-2300/-

 Supemisor/Demonstrator/
Health Inspcctor Gr.III(Rlys)/
Psychiatric Social Worker

-Medical Social Worker Rs.1600-266OJ-

Health Inspector Gr.11 (RIys)

Malaria Supcnisor/Sr. Rs.1640-2900/-

Psychiatric Sccia! Worker/
Health Educator/Public Health
Technician

Health lnspcctor Gr I(R1ys) Rs .?000-3200/-

Ch. Medical Social Worker/ Rs.2000-3500/-

Health Education Officer/
Medical Social Scnice Officer

52.102 A major issue concerning Medical Social Worker/Social Worker/

Psychiatric Social Worker IS the demand for unifarmig i n pa! scales as also parity
.wrhsirmlar personnel in the field of Labour Welfare. Othcr Public health workers
such as Smtq Inspector, Field Workers, Malaria Supervisors have asked for pay
scale upgradation. career prospects and allowances These latter categories have
been dealt with in other chapters pertaining to the concerned organisationl
institution Social Workers and Psychiatnc Social Workers in Government
Hospitals and CGHS Dspensaries with a minunurn qualification of masters' degree
in social work or Graduation with diploma in social work are placed in the scale
of pay of Rs 1400-2300. Some Memoranda have claimed parity with medical
social workers wth specialisation in labour welfare, who are in a higher pay scale
of Rs.2200-4000/- and b c t i o n as Labour Welfare officers in Ministry of Labour.
Certain others seek promotion avenues to posts of Labour Welfare Officers, PR
Officers and Health Administrators, etc.

O14r 52.103 We have considered the matter a d found that the nature of duties
recommendations
and responsibilities of Medical Social Worker(MSW). Social Worker(SW) and
Psychiatric Social Worker(PSW) are comparable Thc Fourth CPC had
reeommended the scale of Rs 1600-2660 for the posts of mcdical social workers.
The psychiatnc social workadsocial workers who posscss the same qualifications
and dscharge the same duties and respansibilities as the Mcdical Social Workers
were;however, omitted and granted a lower pay-scale by default. There is no
material difference: between the Medical Social Worker, Social Worker or a
Psychiakic Social Worker if hdshe works in a general hospital. But the same
pewon w o h g m a mental hospital or a psychiatric Deptt of a general hospital is
called a psychiatnc social worker. It has also been demanded that to reflect the
actual functions and high level of responsibilities, the post of MSW should be
redesignatcd as Medical Social Welfare Officer and classified as Group "B" post
with the initial pay scale of Rs 2000-3500/- and after completion of 8 years of
senkc, should be given the next higher pay scalc of Rs.2200-4000/-.
In view of the minimum qualifications and thc nature of duties & responsibilities
attached to these we recommend that Medical Social Worker/Social
WorkedPsychiatric Social Worker with qualification of Post Graduation or

669
 at least Graduation, plus 2 years Diploma in Social Work, should be placed
in the scale of RS.164cL29oO at entry. The scheme of assured career progression
(ACP) \\ill m e t the demand for carccr prospects Since there arc no highcr posts
in most of the institutions, no substantive promotions are possible. The 1st ACP
scale should be Rs.2000-3500,and the 2nd ACP scale Rs.2500-4000/-.The
sdministrativc Ministry --sy rcnsidcr xaking these posts a s fieder :c pozts
of Public Relations Officers, Labour Welfare Officers, etc., wherever they
exist. Keeping in mind the nature of duties, qualifications and job content, we
do not recommend parity between the Medicall Psychiatric1 Social Workers
and the officers of the hlinistry of Labour.

RADIOGuPHERS/X-RAY STAFF

Ittfrodtirtioti 52 104 Radiographers. >(-Ray Staff and Radiothcrap! Technicians are

paramedical profcssionals responsible for technical \ iabillt! of Radiolos! in the
department of Radio-diasnosis and Radio Therapy of the hcalth carc institutions
They also manage radiolog! in the emergency scn ices Radiographers arc
involved in thc tcaching of under graduatc-degrce courscs i n Radiological
Tochno!o~and also \ anous allied professions The field of Radiograph! has sccn
the emergencc of nc\\ diagnostic techniques lihc Compiitcriscd Digital
Radiograph!. Computcrissd Tomography. Magnetic Resonaiicc Imaging (MRI).
Colour and Doppler Ultrasonography. Digital Subuaction. Angiograph! ctc These
have to be handlcd b! Radiogaphers, who also perform X-Ra! and othcr special
investigations arid protccting patients and self from radiation h w x d s

C)tclrrhutrori o/ 52.105 Ra&ography and X-Ray Staff. numbering about 383 ha\ c different
~~sl'lh'lJhnfenr cadre structures in different Central Government Hospitals in thc follo\\ing pay
scales-

1 Sr.RadioTherap!. Rs. 1640-2900

Tech.(Supervisor)/
Sr.Tech.Asstt.1
Radiographer(Sup)
Sr.Radiographed '
Sr. Radiographer
Supenwor/Radiographcr
Gr.1

2. Sr. Radiographer . Rs. 1600-2660

3. Sr.Radiographcr/ !%.X-ray : Rs.1400-2600

Tech./Radiographer Gr.1

4. Sr.Radio Therapy Tech./ : Rs.1400-2300

Sr.Radiographcr/Tech .
Asstt./Radjographer Gr.II

' 5 . Radiographcr/S-Ra! Rs. 1350-2200

Tcchnician/Radiographer
Gr.11

670
 6. Sr. Dark Room Asstt.1 . RS 1200-2040
Tcchnicians 'I

7. ilark Room Asstt.1 Rs.975-I540

Radiographer Gr.111

8 Dark Room .4sstt./ Rs 950- 1500

J r Radiographcrs
9 Tech Assti (X-Ray) RS 825-1200

I0 Ilnrk Rooin Attendant Rs 800- 1 I50

I ) t ~ t , r c r f l d \It1 i 2 106 Radiograph! and X - K a Staff ha\ c dcinanded that their posts
\ lar,rot ~ l l d ~ l should bc upgraded in 1 icw of ciihaiiccmciit of enti: Icvcl qualifications Apart
Irom pro! ision of adcquatc promotion prospccts. grant of radiation rish
aIlo\\ ancc has also bccn ashcd for

Ow { I 107 On an anal!.sis of thc Kccruitmcnt Rules of iarious institutions

rl'fo,N,aa'rcf'~lf"t'r
cngaging rhcse personnel. we find that Radiographcrs usuall?. enter sen icc at thr c'c
Ic\cls As Dark Room Assistants in thc scnlc G f pay of Rs 950- 1500 rccniitmcnt
is I OO':, dircct with qualifications of blalric plus certificate in Radiosraph! Tlic
nc\t highcr k\el is that of X-Ra! Assistnnt/Sr Dark Room Assistant (Rs 1200-
2040) rccruitcd 50% by promotion from a m o y Dark Room Assistants and 50'%,
b\ direct rccruitment with the sanic qualifications Radiographers in the scalc of
pa! of Rs 1350-2200 are recruited 20'!4 b!. direct recruitment with Matric plus a
?-?car Diploma wurse in Radiography. and XO'% by promotion from among X-Ra?
Assistants Higher posts of Technical Assistant (Radiography), Sr Radiographer
(SUP). Radio Therapy Technician etc arc iisually filled by promotion from thcsc
lo\\ er grades The Association of these cinployces has represented that a lot of
hospitals and institutions have convcrtcd this minimum 2-year requirement of
Diploriia Certificate in Radiograph! to a 3-year Diploma in Radiological
Tcchnolog? And accordingly the minimum cntry for Radiographers with these
qualifications should be placed in the scalc of pay of Rs 2000-3500. keeping in
1 i c n thc nature of duties and educational qualifications and the existing Icvcls in

nnous hospitals and instituuons. We recommend following entry levels for this
category for future recruitments, as for Laboratory and OT personnel as
follows:

S.Xo. Existing Present Proposed Proposed

- Scales(Rs.) Scales(Rs.) Designation
I Kadiographer ~000-3jOO Radiographer- I>? iiiiiiic
I cchniciari ACI' h l c
Supcrbilsor .
Sr Radiographer
 S.No. Existing Present Proposed Proposed
Scales(Rs.) Scales(&.) Designation
3 Radioyapher 1350-2200 1600-2660 Radionraoher- tingradation

4. -

6 Dark Room Assn 950- I 500 950- I 500 . + U I t R.idtc- Post Re-
Tech. Asstt (X-Ray) graphti 111 dcsignated

The present incumbents in the posts of Radiokraphers, requiring a minimum

of 2 yrs. diploma/ certificate after 10+2 may be placed at the level of Rs.1320-
2040. Entry level qualificat!on for Asstt. Radiographers will be atleast 10+2
with science, besides a certificate in Radmgraphy. Since posts at SI.Ko. 1 form
feeder to the latter,the gap may be bridged by placing Sr. Dark Room
Assistants at the level of Rs.1320-2040, with an ACP at the level of Rs.1400-
2300. Radiography TechnicianISupervisors and Sr. Radiographers being
promotion posts, may be placed at the level of Rs.1640-2900. There will be
one more level for 2nd ACP of Radiographers at the scale of iis.2000-3500.
Dark Room Attendants may be merged with the common category of group
D. As Radiographers are trained to handle risks of radiation, a special
radiation risk allowance is not recommended.

OTHER TECHNICIANS

Iirtrodricfiotr 52.108 There are somc posts of other para-medical technicians like EEG,
ECG and EMG Technician, Audiomee Tcchnicians, Cardiograph!. Technician,
Dialyser Operator, etc. These are isolated categories working in hospitals and
training institutions with vey little or, in some cases, no promotion prospects, in
pay scales ranging from Rs. 800-1 150 to Rs. 1400-2300. Minimum educational
qualification for direct rccruitment to these posts is usuall~a D c p e in Science,
diploma in Engineering, or even matriculation with a few years of relevant
experience.

13ernotrd~111 52.109 Demands in Memoranda received b!. us have largcl!. talked of poor
‘h‘or‘Jrrd‘J pay scales offered compared Lo the qualifications and job contcnl Lack of
promotion avenues and lucrative opportunitics in thc open niarkct hale also been
highlighted by thcm

672
PreviouJ CPCs 52.110 According to the Third CPC, pay scales of all such para-medical
staff including Radiographers, Pharmacists and ECG Technicians were placed in
the pay sale of Rs.330-560. The Fourth CPC awarded the pay scale of Rs.1350-
2200 to all paramedical staff other than ECG and other Technicians who were
oniittcd from the report and consequentlyplaced in the pay scale of Rs. 1200-2040.
This has resulted in an anomaly.

Our 52 1 1 1 EMG, EEG and Auhometry Technicians usually require at least an

recoMnll’~ldo’~om Enginccring Diploma or a B.Sc. Degrec after 1 Ot2 for direct recruitment to
diffcrcnt grades. as follows.-

S.No. Nomenclature No.of Essential Qualification

- posts

I Safdariung Hosoital:
I) ECG Technician. 9 Matric + Experience
Rs.1200-2040
ii) Lab.Technician, 2 B.Sc.(Physics) + lyr. exp./
Rs.1200-2040 Diploma in Engineering

iii) EEG Technician, 4 B.Sc.(Physics) + -3yrs.exp.1

Rs.1320-2040 Diploma in‘Engineering.

11.) EMG Technician, 1 B.Sc./Diploma in Engineering

RS 1400-2300

S.No. Nomenclature No.of Essential Qualification

posts

2 RML HosDital:
i) Audiometry Technician, 1 Diploma in Communication
Rs. 1200-2040 Engineering

ii) Sr.ECG Technician, 4 Matric + 1 yr. experience

Rs.1200-2040

iii) Sr.ECG Technician. 1 B.Sc.(Physics)+ 1 yr. exp.

Rs.1400-2300 or Diploma in Engineering.

iv) EEG Technician, 2 -do-

3 JIPMER:
i) Cardiographc Techni- 2 Matric + 3 yrs experiencc
Cian Rs.1320-2040

ii) Dialysis Operator, 1 -do-

Rs. 1320-2040

673
Cardiographic Technician and Dialyser Operator both in the scale of Rs. 1320-
2040 and ECG Technician at Safdarjang Hospital in the scale of Rs.1200-2040
havc thc direct rccruitment qualification of matriculation and some expcrience
There are also some ECG Technicians in thc scalc of pay of Rs. 1200-2040
recruited dircctly with matriculation plus cxpcriencc as minimum qualification.
Kccping in mind the qualifications and nature of dutics attached to thesc diffcrcnt
posts in thc second category, we do not consider that upgradation is justified.
However, consequent on the rationalisation of the scale of pay of Rs. 1200-
2040, the posts requiring matriculation with some experience as minimum
qualifications for direct recruitmerit should be placed in the scale of pay of Rs.
132c)-2040with Assured Career Progressions to the scales o f pay of Rs. 1400-
2300 arid Ks. 1600-2660 respectively. We also recommend that the other
Technicians entering service with either a 1)cgree in Science or Diploma in
Engirrerring should be upgraded to the scale o f pay of Rs. 1600-2660 with
Assured Carter Progression on a dynamic basis to the levels of Rs. 1640-2900
and Rs. 2000-3500, respectively.
 ANNEXE 52.1
(See para 52.14)

BROAD PRINCIPLES FOR SENIORITY FIXATION OF DOCTORS

1. Medical Doctors will enter senice at thrce levels - GDOs (Rs.2200-

4000): Specialists (Rs.3000-4500) and Super-specialists (Rs.3700-5000).
The
inter-sc seniority of GDMOs will be fiscd in thc order of merit at the point of cntq.
into service in the grade of Rs.2200-4000.

-7 Specialists will be recruited 50% by promotion and 50% by direct

recnutnient. the f i t point king set aside for promotion Inter-sc seniority anions
specialists will be fixed in the order of the point of cntry into senice in the grade
or RS 3000-4500.

1
3 On the date of entn, of specialist(s) in the scale of Rs.3000-4500.
Specislists and GDOs already in that gadc on regular basis on that date. nil1 rank
cn-bloc senior to the speciaiist entrant(s)? ivho will be en-bloc senior to all the
GDOs who enter that grade on the same day. This criterion should be followed for
combined seniority in the first instancc

4. Inter-seseniority among the superspecialists will be decided by thc

point of entry into service. On the date of enby of a super-specialist(s), in the
grade of Rs.3700-5000, all medical officers already in that grade on regular basis
on that date, as per combined seniority will rank en-bloc senior to the super-
specialist entrant(s). All super-specialists entering service on that date will ran!!
nelq, followed by m d d officers of the combined seniority entering that gradc by
promotion to posts other than Super-Specialists, on that date, in that order. This
will be the fmal combined seniority list for promotions to higher positions. .
 ANNEXES2.2
(Sax para 52 6 )

CATEGORIES OF PARAMEDICAL STAFF

S.No. Nomenclature Group Total

---_-------------------------
A B C

1. Nursing Staff 30 407 1 6190 L0.298

2 Pharmacists 1 588 2 804 3.483

3. Med.Lab Tcchniciatis 159 829 988

4 .Public and Social I 168 1131 1.320

Health Workcrs

5 0.T.TcchStaff 1 146 147

6. Physio Thcrapists & 12 8 I57 I77

Occupational
therapists

7. Clinical Psychologist 4 3 7 9

8. Para Dental Staff 44 44

9. Radiographers - 42 335 377

10. Dieticians 17 35 52

1 1. Other para medical 5 48 53

Staff

TOTAL 16,939

676
 53

53.1 Prior to Januaxy i,1986, Group ‘ D posts in the Central

Government were in different scales of pay These werc reduced to only three
scales (Rs 750-940, Rs.775-1025 k d Rs.800-1ljO)by the pourth Pap
Commission. In April 1995, in consultation with the Staff Side in the National
Council of the Joint Consultative Machmery, the Finance Minist?. merged the scale
of Rs.775-1025 and Rs.800-1150 into a single scale of
Rs.775- 12-871- 14-955-15-1030-20-1 150. The earlier two scales were
s i m u l t a n ~ habolished
, and recruitment or promotion to either of these two scales
was discontlnued. Such of those employees as were already in the scale of pay of
Rs.800-1150and opted to retain this scale as personal to them were, however,
permitted to do so. The decision to merge the two scales was, however, not
applicable to Group ‘ D posts in the industrial or work-charged categories and to
the Railway employees.
Recrurtmenr 53.2 A large number of Group ’D’ posts in the non-workshop
procedure
categories bear designations, such as Peon, Daftary, Jamadar, Safaiwala, Farash,
Record Sorter, Junior Gestetna Operator, etc., which are indicative of functions or
occupations. Direct recruitment to these posts is generall). made in the scale of
Rs.750-940and incumbents are promoted to posts in the scale of pay of
Rs.775-1 150. Whde no specific and essential educational qualifications have been
prescribed for recruitment to the posts of Safaiwala. Farash and Chowvludar
because of the nature of their duties and responsibilitics. education upto middle
school level is required for the other Group ’ D posts in the non-workshop
categories because of their having to handle papers, dak. etc

.‘jrrength 53.3 As on March 3 1,1994, the total number of Group ’ D’ employees

m the Central Government, includmg those deployed in workshops. aggregated to
12 38 lakhs Ofthese, 6 01 lakh posts were in the scale of pa! of Rs 750-940 and
the remaining 6 37 l a b posts \\ere either in the t\vo scales of Rs 775-1025 and
Rs 800-1150 or in the merged scale of Rs 775-1 150 Dcmands rclating to the
common. non-workshop categones of Group ’ D’ personncl ha\ e bccn discussed in
this chapter Those rcloting to the uorkshop categorics and certain miscellaneous

677
 non-workshop categories deployed in a few individual departments have becn dealt
with scparately in the relevant chapter.

53.4 A largc number of demands rcceived from Group 'D'personnel

primarily relate to thc following-

(a) Upward revision of scales of pay.

(b) Stagnatioii and absence of 'equatc promotion avcnucs

(c) Incrcase in quota for promotion to clerical cndrc and othcr Group 'C'
posts.

(d) Creation of promotmn posts of Record Kceper \wholit ha\ ing to surrcnder
simultancousl! posts of Lower Division Clerk

(e) Payment of Night Duh Allowance

!'OI .YCO/V.S Cf' 53.5 It has becn represented that the clubbing of peons in thc Ccntral
~ft"'!~icarrorls
Ggvernment with othcr Group 'Dpersonnel like Farash. Cho\\ hidar, Mali. ctc. and
placing them in thc scalc of pay of Rs.750-940is unjustificd 111 thc light of the
educational qualification prescribed for them and having regard to thc fact that
many of them possess higher educational qualifications and attcnd to senior
officers, nunisten,etc It has also been pointed out that ccrtain othcr catcgories of
Group 'D'employees have also been placed in a higher scale of Rs 825- 1200. Pay
scale nearly equal to that of Clerks has, therefore, been dernandcd for the Peons
Parity with the scale of paj (Rs.950-1560) applicable in the Nca Dclhi Municipal
Committee has also been sought in some of the memoranda for thc posts of Peon,
Safiwala, Farash and Cho\tkidar, while some others have sought parity with their
counterparts in the nationalised banks.

I'anolion 1'1 53.6 Comparison has been drawn between the promotion scales
scale applicable to Peons,who were promoted as Daftaries in the scale of Rs 775-1025,
and Malis, who are eligible for promotion as Head Malis in a higher scale of
Rs.800-1 150 Revision of the scale of pay of the post of Daftan to Rs 800- 1 150
has, therefore. been sought Other demands relate to the upgradation of the scale
of the post of Record Kecper fiom Rs.825-1200to Rs 950- 1500 at par with Lower
Dwision Clerks, redcsipation of Daftaries in CPWD as Record Kccpcrs and their
placement in the scale of Rs.975-1540,etc.

Defence 53.7 Group ' D employee in Deface establishments have, on the other
15nplovees hand, suggested that all Group 'D'posts, such as Laskar. Safanvala. Watchman,
Gkdener, Cadet Ordcrl!., Water Carrier, Rat Catcher, ctc. should bc rcorganised
in a single cadre and provided two grades (Grade I and Gradc 11). bcsidcs a
supcnisoq grade

678
 OUR RECOMMENDATIONS

.?nomalies due to 53.8 Our attention has also bccn drawn to certain anomalies that arc
merger ofpay
scales
stattcci to haw arisen as a result of mcrgcr of the two scslcs of pay of?,c.??5- 1625
and Rs.800-1150into a single scale of Rs.775-1150. It has been pointed out in
this contcst that thc Group ‘ Dpcrsonncl have bcen placed at a disadwitagc
became (a) of the differential ratcs of incrcmcnt in thc merged scalc; (b) thosc in
thc scalc of Rs.750-940 would now bc cntitled to fixation of their pay on
promotion only oncc in the mcrgcd scalc of Rs.775-1150, instcad of on two
occasions on promotion initially to thc scalc 9f Rs 775- 1025 and thereafier to thc
scalc of Rs.800-1150; and (c) fisatioii of pay, on promotion, of thosc at thc
maximum of the scalc of Rs.750-940 at a lower stage of Rs.970 in thc mcrscd
scalc in rclation to thc stage of Rs.980 in thc prc-mcrgcd scale of Rs.775- I035

53 9 As has been mentioned at the outsct, thc scales of Rs 775-1025 and

Rs 800-1 150 wrc merged into a singlc scale of Rs.775-1150 only in consultation
\\ ith thc Staff Side in the National Council of thc Joint Consultativc Machinep

This was intended as a measurc of allci iating stagnation in the lowr scale Had
thc two sales not been merged. many employees would have superannuated at the
maximum (Rs. 1,025) of the scale of Tts 775- 1025, as against the maximum of
Rs I 150 available in the merged scale. No doubt, this might have resulted in a
disadvantage to some employees, but this is inherent and unavoidable in any
scheme of rationalisation

Higher pay scalcs 53.10 The comparison sought to be drawn between the Peons and
10 Peons
certain other personnel like Postmen, Constables in the Central Police
Organisations, etc. is not appropriate having regard to the substantial
differences in their duties and responsibilities. Quite obviously, posts of
Constable and Postman involve higher responsibilities. Constables in the Central
Police Organisationsan also required to function round the clock and are liable to
be transferred. Similarly, the demands for parity with the scale of pay
(Rs.950-1560)applicable in the New Delhi Municipal Committee for the post
of Peon, Safaiwala, Farash and Chowkidar, or with scales of pay applicable
in the nationalised banks are not justified. Whereas the New Delhi Municipal
Committee is an autonomous organisation, we have not conceded the demand
for parity with the public sector.

Peons vs. 53.I 1 As regards the contention that peons are better qualified than thc
Safaiwalas safaiwalas, farashes, chowkidars, ctc. and that they should, therefore, be placed in
n hishcr scalc of pay, it has bccn clarified by the Department of Pcrsonncl and
Training that the qualifications prescribed for different Group ‘ISposts arc
commensurate with the functions q u i d to be performed by the incumbents of
dffmt categories. No doubt, a higher educational qualification (Middle School
pass) has been presaibed for the peons in relation to safaiwalas, farashes, ctc. but
the arduous nature of the duties and split hours of working of the latter categorics
would justify their being placed in a scalc of pay at par with the peons.

53.12 The functions of Daftaries and Record Keepers are distinct

and there is, therefore, no justification for the upgradation of the scale of pay
of the former post to that of the latter.
Our 53.13 As a measure of rationalisation of the Group 'D' cadres, the
following measures
~ecowmnlenda'ions are suggested:-

(a) Based on their duties and responsibilities, various Group 'D'posts

may be broadly merged in four Occupational Groups, viz. Office
-4ttendants (comprising Peons, Daftaries, Gestetner Operators,
Packers, etc.) Cosmetic Attendants (Safaiwalas, Sweepers, Farashes,
etc), Security Attendants (Chowkidars, Watchmen, etc.) and Malis.
Malis have been separately dealt with in the Chapter on Common
Categories.

(b) Posts in each of the Occupational Groups will have only a single
designation, indicative of their broad functional area of
responsibility. Based on the concept of multiskilling, the scope of
duties and responsibilities of each of the Groups would be
appropriately enlarged so that they perform different kinds of
functions relevant to their Group, without separate posts being
provided for each such function as at present.

(c) Each of the Occupational Groups may be placed in a four-tier

structure comprising the replacement scales of pay corresponding to
Rs.750940,Rs.775.1025, Rs.800-1150 and Rs.825-1200. Initial entry
will be at the lowest scale corresponding to Rs.750-940,except in
those cases where direct recruitment is resorted to presently in the
second scale of pay. Posts in the four tiers of the Office Attendants
Occupational Group will be designated as Office Attendant Grade
Ill, Ofice Attendant Grade 11, Office Attendant Grade I and Senior
Office Attendant. Similar designations will be provided for posts in
the Cosmetic Attendants Occupational Group and the Security
Attendants Occupational Group. It may be clarified that the fourth
scale of R~.82s12oOwillbe part of the "Supporting Staff' category,
and will consist of the posts presently in that scale as allocated to
each Occupational Group. For persons recruited at the level of
Rs.750-940,promotions to Rs.825-1200will be functional but for
those appointed at the level of Rs.775-1025,this will be the second
upgradation under the Assured Career Progression Scheme.

(d) The essential educational qualification for appointment as Office

Attendants and Seeurity Attendants shall be of middle school level
(8th Standard), wbereas elementary education up to 5th Standard
would suffice for appointment as Cosmetic Attendants.

STAGNATION AND ABSENCE OF ADEQUATE PROMOTION

AVENUES

Presenr 53.14 D r a w g attention to thc acute stagnation in the Group 'D' cadres.
positron memorandists have urged that time-bound promotions should be provided aftcr
. >cars It has also been pointed out that promotion prospects of Group ' D'
c ~ c qlcn
cmplo>ccsin tho Railways and P&T Dcpartmcnt havc improved foHowing thc
rcscn mon of 50% of the posts of Lower Dn ision Clcrks for thcir promotion to the

680
 clerical cadre, and that even in the Audit & Accounts Department, the reservation
for Group ' D employees has becn increased from 15 to 20%. It has, therefore,
been demanded that 25% of the posts in the cadre of Lower Division Clerks should
be reserved for promotion of qualified Group 'D' employees, 10% of the posts
bcing fillcd on the basis'of scniority-cum-fitnes9 and h e rcmnining 15"A through
a departmental examination.

53.15 It has also been contended that though posts of Record Keeper
\\.ere creatcd to provide promotion avenues for the Group 'D'Staff by abolishing
an equal number of posts of Lower Division Clerk, this measurc.has not really
served thc purpose in the absence of proper record rooms. It has, thcrefore, bcen
suggested that thc posts of Record Keeper may be abolishcd and the promotion
prospects of Group ' D employecs improved instead by providing a higher
percentage of posts in thc clerical cadrc.

53. I6 In August, 1982, in pursuanm of a decision of the Committeeof

Ministers,thc quota for promotion of educationally qualified Group ' D employees
tohe clerical cadre was increased from 10 to 15%. The Department of Personnel
& Training have opined that any further enhancement of the quota would not be
conducive to maintaining the standards of administrative efficiency, apart from
affeding adverselythe vacancies available to the general categories of candidates.
Our 53. I7 The contention that the quota for promotion of Group ' D
recommchdulions personnel to thc clerical cadre has been increased from 15% to 20% in the Audit
& Accounts Department is not factually correct. The department also follows the
guidelinesof DOP&T. Only mabiculate Group 'D'staffare eligible for promotion
as Lower Division Clerk to the extent of 10% of the vacancies through a
departmental examination and 5% of the vacancies based on seniority. Having
regard to the views of the Department of Personnel & Training, the present
promotion quota of 15% would appear to be adquate Besides, organisation as
earlier proposed, of the Group 'D' cadres in a four-tier structure and introduction
of the Assured Career Progression Scheme would provide some financial benefits
to the incumbents. The quota may not, therefore, be increased. In fact, it is
recommended that the entire 15% of the vacancies should be filled only on the
basis of the results of a limited departmental competitive examination, so as
to ensure that only those fulfilling certain minimum standards are promoted
to the clerical cadre.

53.18 In accordance with our general suggestions on restructuring

the Group 'D'cadres, the posts of Record Keeper will now form part of the
Office Attendants Occupational Group. There will be no separate posts of
this category and the relevent functions would instead be entrusted to any of
the Group 'D'persotknel in an ofice.

BENEFIT OF FIXATION OF PAY ON PROMOTION AS PEONS

53.19 It has been represented that incumbents of posts of sweeperl

chowludar,jam&=, mali, etc. promoted to posts of peon should be entitlcd to the
benefit of advance increments, pay fisation, etc. This has bcen sought to bc

68 I
 justlficd on thc'ground that the promotion to the post of peon involves assumption
of highcr responsibilities.

53.20 All thc posts rcfcrrcd to. including those of Pcons, arc presently
in tlic idcntical scalc of pay of Rs.750-340. Thc appointmcnt of sweepers,
chnwkidars, and SO on as Pcnns is :!ItiLqSfer 2nd this is iiat :x,siA~id iu be a
promotion. T h e demand for the benefit of pay fixation, advance increments,
etc. is, therefore, not justified and we are unable to accept the same.

PROVISION OF MECHANICAL AIDS T O SWEEPERS

i

53 21 Thc dcmand that modcm mcchanrcal aids should bc pro\ idcd to

thc swccpcrs is uncxccptionablc We recommend that aids such as vacuum
cleaners, mechanised mops, floor polishing equipment, etc. may be provided
t o this category. This should be combined with training in the use and
maintenance of these contrivances
~

TREATMENT AS INDUSTRIAL WORKERS AND PAYMENT OF

,' NIGHT DUTY ALLOWANCE
L

7 . k I !ti1 CI I I ( J S 5>22 It has bccn rcprcsentcd that Pcons, Daftarics. Safmvalas,

I I I drr.vrrroI Chowkidars, Darbans. ctc in thc Goimunent Prcsses should bc trcatcd as
}I brkers
industrial workers and that thc Chowkidars, who work round thc clock. should bc
entitlcd to Night Dut?. Allowancc. By dcfinition, an industrial \vorker is one who
is employed in an industrial 01'work-charged establishment and produces an article
of commercial value either manually or with the aid of tools and machines. The
duties of the incumbents of the posts referred to in the demand arc. ho\vcvert
entirely different and thcy would not be covered by the definition. The demand
to treat them as industrial workers lacks justification and cannot be acceded
to.

A ighf Drrp 53.23 Chowkidars arc not deployed round the clock, as stated, but are
Allowonce only required to perform shift duties, which include night duty as part of their
normal responsibilities Night Duty Allowance claimed is consequently not
justified
__ -~

ISSUES PECULIAR T O INDIVIDUAL DEPARTMENTS

-1
CPI V D 53.24 Apart from the normal Group 'D'posts, there are posts designated
as Barkandaz in the Central Public Works Department in the scalc of pay of
Rs.750-940. The incumbcnts of the post are attached to Cashiers and arc entitled
to a special pay of Rs.20 p.m. It has been pointed out that multiplicity of Group
' D' posts without an!' significant diffcrcnces in duties is not of an!' particular
advantage. It has, thcrcforc. bccn suggested that there should bc a common
category of Group 'D' Staff. which should bc placed in thc scalc of pay of
Rs.825-1200. Besides, a highcr scalc of pay has also bccn dcmandcd for thc post
 of Barkandaz on the ground that it carries greater responsibilities involving cash
transactions.

53.25 The demand that there should be only a common categoty of

Group ‘ D Staff would bc mct bl, tlic proposcd rcstructuring of the .Group ‘D‘ pests
in distinct occupational grorips The higher scale of pay is, however, not
justified because this would disturb existing relativities

5 3 26 In conformity with the general proposals on restructuring, the

post of Barkandaz should be merged in the group of Office Attendants and
designated as Ofice Attendant, Grade 111 A special pay is attachcd to thc post
onlv in consideration of thc fact that the incumbcnts assist the Cashicrs The
special pay may, therefore, be enhanced in terms of our recommendations
made separately in respect of the common category of Cashiers and the
Group ’D’ Staff assisting then1

33 27 Apart from urging that Safaiwalas should be considercd for

promotion to the post of Sepo! aftcr a rcasonablc period of service. thc Group ’D‘
employees of the Directoratc of Rcvenuc intelligence have also pointcd out that a
majority of the posts of Daftarics in the Directorate having been redesignated as
those of Havildars, the remaining posts should also be so redesignated Follouwg
the proposed restructuring of the Group ‘D’ cadres, Daftaries would form part
of the occupational group of Office Attendants and there would appear to be
no justification for converting the posts to those of Havildars. Similarly, as
a result of introduction of the Assured Career Progression Scheme,
Safaiwalas would be eligible for promotion in the cadre of Cosmetic
Attendants. The question of their lateral movement to posts of Sepoys does
not, therefore, arise.

Deparmient of 53.28 Employees of thc Department of Tourism have pointed out that
Tourism posts of Photostat Operator, Addressographer, Senior Gestetner Operator, Junior
Library Attendant, etc. have not been created by the Department to provide
promotion avenues for the Group ‘ D Staff. Creation of posts will necessarily have
to be justified on functional requirements and cannot be resorted to merely in order
to provide promotion avenues Based on the restructuring proposals, multiskilling
will also be introduced for performing functions related to photocopjmg,
mechanical printing of addresscs. etc Besides, the Asstired Career Progrcssion
Scheme will provide some relief to the Group ‘ DStafi. Creation of posts in
higher scales of pay is, therefore, not recommended.

’JAM 53 29 On the ground that there are only a limited number (15) of es-
cadre posts of Lower Division Clcrk in the Oficial Language Wing, to which they
can be considered for promotion. Group ‘ Demployees of the Wing have urged that
thq, should be permitted to appear in the departmental examination conductcd b!.
the Staff Selection’Comrmssionfor improving their career prospects Thc Official
Language Wing does not participate in the Central Secretariat Scniccs Schcmc
Consequently, Group ‘ D anplo! ccs of this Wing are not eligible for proniotion to
the posts of LDC in the Minist? though they are part of the Ministry Till such
time as the official Language Wing is fully integrated with the main ministry,
they cannot be permitted to appear in the departmental examination. The
 Assured C a r e r progression Scheme will, however, provide some relief to
these employees.
All India Rndio 53.30 The post of Sorter (Rs.775- 1 150) in the Audience Research Unit
of All India Radio is in Group 'D.Its upgradation to the post of Clerk. Gradc 11.
iii thc x d c of Rs.350-1400 has bccii dcmaidcd oil the ground that thc duties of :hc
post are ciaical in nature involving programme-wise sorting of a large number of
letters and audiencc responses to facilitate surveys. This has also been
recommended by the Ministry on the ground that the duties require intelligence,
alertness and sincerity and that the inombents shoulder higher responsibilities than
Daftaries. who are also presently in an idcntical scale of pay.

53.3 I The post of Sorter is filled onl! by promotion of Peons with three
years' senice in the scale of pay of R~.7jO-!I40and no additional qualifications
have been prescribed. Its upgradation to the level of LDC cannot, therefore,
be accepted. The post should form part of the occupational group of Office
Attendants. BY virtue of the higher scale of pay (Rs.775-1150)of the post, it
may be designated as Oifice Attendant, Grade 11, and placed in the
corresponding replacement scale

Direclorate of 53.32 It has been stated that a majority of the incumbents of the 60 posts
of Paclicr in the scale of pay of RS.750-94Gin thc Directorate of Advertising and
Visual Publicity retue in the same post because there exist only two posts of Head
Packer in the scale of pay of Rs.950-1400, to which they c& aspire far promotion
Crkation of four more pdsts of Head Packer has, therefore, been demanded 1

Crcation of additional posts will have to be justified on functional requirements

The Ministry may be advised to review the requirements in consultation with
Finance and create additional posts, if justified. In the meantime, the posts
of Packers may be merged in the occupational group of Oftice Attendants and
placed in the four-tier structure proposed. This measure, combined with the
introduction of the Assured Career Progression Scheme will provide some
relief.
Income Tax 53.33 It has been reported thsrt 25% of the posts of Peon in the
Lkpwmmr Department an reserved for empbyax of the State Governments concerned, which
affects adversely the proqxcts of the departmental sweepers, watchmen, rnalis, etc.
Abolition of this quota and increase in the departmental quota to 50% has,
therefore, been requested. The rationale for earmarking certain posts for State
Govmment employees is not veay clear. The appointment of sweepers,watchmen,
ctc as peons is strictly not a case of promotion. but only of lateral transfer to a
post in an identical scale of pay. While recommending that the practice of
appointing State Government employees may be discontinued, considering
the Iiigticr qualification prescribed for the post of Peon and in order l o
maintain appropriate standards, it may not be desirable to earmark these
posts for appointment of sweepers, watchmen, etc. The incumbents of these
posts will, in Any case, be placed in the proposed four-tier structure, and only
such of those who fulfil the educational qualifications may be considered for
appointment as Peons on transfer based on the existing quota
Central Braille 53.34 It has been representcd that the scale of pay of Packers
Press. Dehrndun (Rs 750-940) in the Braille Press is lower than that of their counterparts in the
Survey of India. Parity.has, thercfore, bccn dcmandcd. We have found that therc

684
 has been a difference all along in the scales of pay of Packers in the two
organisations, as indicated below:-

Brai!!e Prsss Survey of India

Rs. Rs.
Second Pay Commission 80-95 80-1 10
Third Pay Commission 196-232 200-260
Fourth Pay Commission 750-940 775- 1025

53.35 Only the corresponding replacement scales having been

extended to these posts in the two organisations from time to time, there is
prima facie, no anomaly . In terms of our earlier proposals, Packers in both
the organisations will now-form part of the occupational group of Office
Attendants and placed in the restructured cadre. Parity will thereby be
ensured.
llefittca Research 53.36 Inviting attention to the total lack of promotion avenues for the
(e Deve'opmerlr Helpers and Watchmen in the Combat Vehicle Research and Development
Orgatitsation
Establishment (CVRDE),an organisahon of the DRDO, the employees haye urged
that they should be provided at least h e promotion prior to their retirement.
Placement of the incumbents of these posts in the four-tier structure of the
appropriate occupational group and introduction of the Assured Career
Progression Scheme would provide the necessary relief.

Mimsby of 53.37 In order to improve the prospects of Group 'Demployees, it has

Defettce been suggested that (a) direct recruitment to Group 'C'posts should be restricted
to only 50% of the posts and the remaining 50% filled by promotion of
departmental candidates and (b) the Group 'D'employees should be permitted to
appear in the departmental qualifying tests in the regional languages. The nodal
Ministry have informed that even the vacancies presently reserved for the
promotion of Group ' D employees to the extent of 10% in the cadre of Lower
Division Clerks and 25% in the cadre of Assistant Store Keeper are not being
entirely utilised in the absence of qualified candidates among the Group 'D'
employees and that the increase in the quota to 50% as suggested would not,
therefore, serve any purpose unless the qualification requirements are diluted. It
has futthcr bccn clarificd h!. thc Ministn that it would not bc admiiilstrativcl~~
feasible to condud the depmcntal qualifjing tests in various regional languages.
In the light of the position clarified by the nodal ministry, we do not
recommend acceptance of the suggestions.
Departntcnf cf 53.38 It has been represented that Peons, Messengers, Orderlies,
POSIS
Packers, Sweepers, Lettcr Box Peons, Daftaries, Jamadars, etc. in the postal
Dep-ent are engaged in operational duties, which involve some clement of skill,
job perfection, etc., and that thcy should, thereforc, be placed in scalcs of pay
applicable,to semi-skillcd catcgorics. Duties and responsibilitics of all similar
posts in various dcpartmnts of the Ccntral Government are identical. Any special

685 :
dispensation only in the case of Department of Posts would be unjustified and
discriminatory. The posts should instead be placed in the appropriate scales
of pay in the relevant occupational group
Introdrccftoti 54 1 The artisans employed in Central Government Workshops.
production units and departmentally-run establishments, which are factories as
defined in the Factories Act, 1948. constitute approximately one-fifth of the total
staff strength of the Central Govcnunent The major departments/ministries
cmplo--ngartisans are Minis6 OfRalways. Ministry of Defence, Depanment of
Tclecommmations and Prating Prcsscs under different ministries/departmcnts
Thc term ’artisan staff in Railways also includes workshop categories working
outside workshop premises such as-Loco Running Sheds and Carriage and Wagon
Depots which are not subject to the Factorics Act. Railways and Defence account
for niwty five percent of workshop staff in government.

Industrial 54.2 In Railways, there are 1 15 loco sheds, 385 Carriage & Wagon sick
EstoblishmenLriti lines and repair depots, 44 repair workshops and 6 production unid. In the
major
Departmenh
Telecommunications Department, there are six departmental factories
manufacturing various types of telecom equipment. The turnover for the year
1993-94 of these factories was Rs.ll7.71 crores. The major units employing
civilian industrial employees under the Ministry of Defence are Director Genera1
Ordnance Factories, Adjutant General’s Branch, Naval Headquarters, Militan,
Engineering Service, Director General Electrical and Mechanical Engineering and
Defence Research and Development Organisation.
Number ofpay j4 3 Prior to the Second CPC. there were 27 scales of pay for workshop
scales stafUartisan categories. The Second CPC rccommended 2 1 scales of pay for these
catcgortcs The large number of pay scalcs, particularly in Defence establishments
( 19) continued till Third CPC, although in Railway Workshops and Production
Units thcrc were only five pa\* scalcs at that point of time, Thc Third CPC
rccommendcd 9 6 pay scales - one each for unskilled and semi-skilled categones.
oneftwo for skilled and two for tughly skilled artisans. The Third CPC also
rccommended creation of a new grade of ‘master craftsman’ as an incentive to thc
highly skilled artisans to remain in their own line and to enable government to
rctain the highly skilled staff in mbny cntical trades for which there was
considerable demand outsidc

54.4 Despite the ’Third CPC’s rccommendations for only 5/6 pay scales.
thcrc \vex 20 scales of pay for industrial workers at the time of the Fourth CPC.
 although of the 8.38 lakh 8.30 lakh workers were covered by eleven and the
rcmaining 0.08 lakh workers by nine scales of pay.

ClassijicatiotioJ 54.5 Thc Fourth CPC suggested that the then existing classification of
Workers workers into unskilled, semi-skilled and highly skilled might continue and
recommended only five scales o! pay - one each for semi-skilled and skilled
workers, two for highly skilled and one for master craftsmen. In Railways, there
arc only sts pay scales (including the lowest pay scale of an unskilled worker) for
thc artisans. In Defence establishments as wvcll, the same number and pattern of
pay scales have been assigned to different catcgories after re-categorisation by an
Espcrt Classification Committee.

Skill-wise 54.6 The skill-wise break-up of industrialhorkshop staff is indicated

break-p in the table below:-

Minisw’ Unskilled Semi-skilled Skilled-111 Highly Highly SupavisWr Total

Depamnc.nl Rs.750-940 Rs.800-1I50 b.950-1J(r0 Skilled-I1 Skilled-I b.1400-
Rs.1200- Rs.1320- 2300d
1800 2040 othaSc.la

Rnihvays 64539 1 18904 92475 93049 97168 32099 498230

(1 2.95) (23.87) (18.56) (1 8.68) (19.50) (6.44) (53.09)

Defence 93021 7317i 136501 36009 34778 15538 39201 8

(23.73) (I 8.66) (34.82) (9.95) (8.87) (3.96) (4i.77)

Tclecom 1283 1so6 2304 387 232 30I 6013

;21.34) (25.05) (38.32) (6 44) (3.86) (5.0) (0.64)
(including 142 (inclubng
h b.975-1540) 95 in b.1200-
2M)
Prtnttng 1468 431 6666 618 1861 1249 12293
Presses (I 1.94) (3.51) (54.23) (5.03) (15.14) (10.16) (1.31)
(includbg 13 (kluding
mothada) 342 in I(r.1200-
2040)
Others 3150 10232 2592 2317 7086 4584 29961
(10.51) (34.15) (8.65) (7.73) (23.65) (15.30) (3.19)
( i 271 1 (including 214 (i=yiW
in otha rala) in 121.975-1540) 541 UI Rs.1200-
2W)

Total 163461 204244 240268 135380 141125 55771 938515

O/oage of (17.42) (21.76) (25.6) (14.43) (15.04) (5.73) (100.00)

total

Note : Figures in brackets arc % age of the total.

The ratios of supervisors to skilled staff and other connected

ratios arc shown below:
-
Ratios

\llnlstry/Depamnent Supniror/Sldlled Supcrvisor/sldlled Un-Jdlkdl Semi-rldllcdl

+ semi-sldlled Srmi-sbllkd Skilled 111 +
11+1
Hpuways ‘99% 11.3s% 54.28% 42.06%

688
3 I i i i i y t ry/Tkp:rrfnicnt Srrpcnis~)r/Skitlcd SupcnisorlSkltlcd Iln-rNllcdl Sentl-sldllcd/
+ Semi-Skilled Scnll-Skilled SWcd 111+
-
Lkfcence s.mi 7.39% 127.13%
1I+1
348%

Telecom 6.8Oh 10.3VO 85.19% Sl.Sz%'

Prlntmg Y m r a 13.04./0 13.66% 340.6% 4.71%

others 20.61Yo 38.2 I % 30.78% P O %

Total 7.46% 10.40% 80.03% 39.52%

54.7 It may be seen that,--

There is a very large unskilled workforce in Defence

Establishments and Telecom Factories (almost one fourth) and further heavy
concentration (34.82% and 38.32%) at the lowest skilled level as compared to
Railways.

The ratio of Supervisors and skilldsemi-skilled workfofce is

slightly better in Railways as compared to Defence and Telecom factories.

54.8 The reason for higher skill formation in Railways is presumably higher
initial recruitment qualification, direct recruitment of 25% Apprentices with IT1
qualification at the lowest skilled level and better inter-grade ratio. A
comparative position of recruitment qualifications and some other parameters is
given below:-

Category and Railways Telecom Directorate of Printing

Tay scale Factories
(k.)
Unskilled DR : 50% Physical fitness Middle pass
750-940 (Apprentices) & suitability or equivalent
1O%(Khalasis for an unskilled
8th Pass) job.
40% (other
Departments fw
DR)

Semi-skilled 3 year's Trade Pr : 75% (5 years Pr : 50%

800-1 150 Test Promotion experience) DR : 50%
DR : 25% (3 \'ears Middlc School Pass
100% DR in some
trades (Desirable
8th + ITI)

Skilled 111 DR : 25% Pr : 50% (5 years Pr : 75%,

950- 1500 (Aprentices) DR : 50% course DR : 25%
ITI/lOth Pass. from recogntsed Middle Pass +
Tmining: Act TT school with Certificate of
ApprentiMTI 2 years' esp. or apprenticeship
6 months, Matric 5 years practical or certification

689
 3 years. expzrience. of vocational
-LDCE 25%(rrom coiirsc at +2
S S N S ) nit11 Icvcl in
educational Printing Tech.
qualification as or 3 years esp
!..id dc::?: in in ti&.
Apprentice Act
+ Training.
-50% of promotion
from Semi-Skilled
Khalasi Helper/
Trade test with
6 months in
. senice training
Highly Skillcd Trade Test Pr.: 75% ( 5 years
II/Skilled-I1 service)
1200-1,800 DR : 25% (Maine+
ITI+5 years esp.
as Electrician)

Hignly Skilled Trade Test Pr. : 100% Pr. f\v DR

I/Skilled-I (Matric+Cert.
1320-2040 of Apprentice
-ship or 5
years exp. in
trade.

Master Promotion(DPC) Pr. f\v DP

Craftsman for MC Selection
1400-2300 by seniority for
Mistry.

Chargeman'B' DR @Iploma Eng.) Chargeman Pr.,

1400-2300 50% Int. App.Mach. Inspector DR: 50%
25% Selection &om Diploma in Elect./
Rankers 25% Telecom Engg./
Mech.,Pr. 50%
Industrial Workers
Legend :-
Pr. Promotion Tr.Transfer, Dip:- SS: Semi-Skilled Re. Re -
DP: Deputation Diploma; Cert: Qual.:Qualification Employment
fw : Failing Ccrtification; DR :Dircct Recruitment TOD.
which US:Un-skdled; lransfer on
MC:Master Craftsman, Deputation.
Dip. - Diploma

DEFENCE ESTABLISHMENTS

Unskilled Essential : 5th' Pas Desirrblc: 5th Class 8th Class Primary School 8th Class
750-940 Desirable: MaIriculuion Pasr

690
 Srml-~W!~crl For 26 trades: 80% Tr. PrITrlReKIR PrrTrRelT>R 3 yean service Pr: 33 IG%
N O . I 1 50 p.iss'ing !rnd: !:xi Q;41: L ~ X) C . G Q u d : I I.! \x I>:t.66 2,'.3'>0
N'DR: NCTCrl'fl o r course in IT11 10 + cx- Qual: 10th class
equiv. 20% Pr. un- NCT serviceman or 8rh pass
skilled with 3 years &
trade test
For 38 trades: Pr. 100%
(So probation)

Skillcd(1iS 111) Tradc T e s hmrlRe/l>R PrmrlReiDR TransfcriDR Mamc + I TI

950- 1500 2 yn course in I'll/ 3 ysars'service Qua1 IT113 yn I year s CAP
NCT in GOM/Pvt
firm of repute
Highly S N e d 11 Tradc Test Promolioflrade Test Promotion'3 yn Promolion PromoriowDR
1200-1800 eqxrisnce
-
Qual 10th +
IT1 1 )T c\p
In trade
liighly Skilled 1 Trads fesl Promotiodl'rade 1 e51 I'romotionlDR Promot' x i Promotron/I)R
1320-2010 DR 3 yn Dip in Mcch / Qua1 IT1 or Qual l m -
Elec Engg 10-2 Wlth Dip (3 yrs) or
$laths & Phv IT1or 4 )n
exp or profi-
ciencycen -
4ynexp
Master DPC Promotion
Cratksman Chargeman 11
1400-2300
Chargeman ' 13' DR (Dip. Engg.) Pr. 66-2(3%5 ST.
1400-2300 66 213% &a ad- TODIREIDR 33- 1/3%
justment of surplus
and trmfkr
Leeend :- I'r. Promotion; DP:DepuIation; FW: Failing which; Tr. Transfer; Dip.- Diploma
Cert. : Ceriifiiation; US : Un-skilled; MC: Master Craftsman; SS: Semi-Skilled; Qual. : Qualification;
DR: Direct Recmitment; Re. Re-Employment; TOD : Transfer on Deputation

Pdwwa Defence Printing Presses Tclccom Factories

Age of Retirement 58 years 60years 60 years 60 years
* Technical Supcrvborr
- Overtime No YeS Yes No
- Rent Free A c c m - No + Y a ( O F s a n d No No
cdation Base Estts)
- Director Recruitment Yes 207D Promotioflransfer No NO
of Engineering (Rs.2OOO-3200) failing which DR in
Graduates Rs.2000-3200
- Induction Training Ya 1 to 2 yrs. No No NO
PLBAncentivc Bonus PLJ3 + IB PLB+IB (75% or' PLB PLB
to workers (SO% l i t ) the Minimum of
the pay scale) in O f s

+ Since discontinued but compensation in the form of higher pay fixation granted to present incumbents.
This got neutralised in due course.

I CLASSIFICATION OF WORKSHOP STAFF I

I'iews of the 54.9 The categonsation of workshop staff into unshlied, semi-skilled,
PrmiousfuY skdled and highly dulled workers and master crafismen has gradually evolved over
Commissions
First CfC a period of time and is now well established although there are still problem due
to alleged absence of uniformity in the classification of labour. A person who is
involved in only physical labour without any intelligence, training or experience I S
traditionally classified as unskilled labour. But there has been a great deal o f
difference of opinion in defining a skilled labour. The First CPC's obsefiations
in this regard aptlv sum up this position:-

"In defining the category of skilled labour, IVC found more divergencc of

69 1
 views. It was generally agreed b a t any person working on, or with the aid
of,a machine should not be classified as unskilled labour. Over and above
this, some were disposed to add that skilled labour involved not merely
practical skill but also some @eorctica!. .howleQee. Others were disposed
to lay more stress upon the preliminary training, either in the nature of
apprentimhp or in the nature of training in a school. Fewer ~eoplewerc
ready to recognise that ever1 experience gained by the mere process of
working at a job for a number of years would justify a person being
classified as skilled. Some insisted that there should bc soinc kind of
certificate fiom a recognised technical institute. A few suggcstcd that the
skilled \vorkcr must have gone through a deliberate Drocess of specialised
trainin% Some even added a qualification of literacy. It seems to us that
each of these sugestions has an element of truth but none of them can bc
regarded as exclusive or complete. We are inclined to think that the basis
of dif€aentiation must van’ from industrv to industrv. In somc thcorctical
training msy be morc essential; in the rest, aDprcnticeshiu or practicai
ewerience may bc more essential. The classification must. III thc last
resort, be based upon trade tests. The semi-skilled \vas gcncirnlly
recognised to be a person who had risen from the ranks of unskilled
labour, after he had improved by experience. Sonic workers
representatives suggested that particular occupations must be classed as
semi-shlled and other occnpations classified as skilled. We do not think
that this will bc a safe nicthod of demarcation: In one and thc same line
ofwork, there may be different degrees of skilled. It is on this confusion
that the workers complained that an occupation classified as skilled in one
locality or workshop was classified as semi-skilled i n another workshop
or locality. The assignment of a Darticular worker to one catwow or
y a matter of opinion based on standards recoqniscd
another must l a ~ e l be
in industry. In a matter of this kind, no differentiation can be made
between the industrial employees of Government and those employed in
private industry. The differentiation between the skilled and the highly
sktlled is again a matter of degree, depending to a certain extent also upon
experience and purposeful training. The extent to which a man can bc
trusted to work by himself or required direction or guidance is also a
material ingredient. It seems to us that it will be convenient if each
@ a t a n t industrial establishment will constitute a Board. sail of three of
its officers. to determine the class in which evew workcr in that
establishment is to be based. The classification w i l l of course be revic\ved
from time to time.“
S m d ~ ~ ’ (54.10
~ The Second CPC further dwelt on this issue and made the following
significant observations:-

“Some employees’ organisations have complained that thcre has been no

systematicjob evaluation, and that this has led to many groups of workers
being classified lower thm the contents of their jobs would justify. This
has also been mentioned among causes making for lack of unifoimity in
classification as between one establishment and another. Much of the
criticism of the present system of grading of jobs seems to arise from the
beliefthat all job evaluation must follow what is called the ‘points rating
-
sstcm, or the analogous ‘factor comDarison’ system. The ‘points rating‘
system involves brcdang each job into its component factors and allottins

692
 points to each factor according to a ire-determined scale and tben
convatmg the total number of points into money, again according to a prp-
determined scale. In the ‘factor comparison’ method also, each job is
broken down into its component factors, usually the following: mental
rcquirements, physical requirements, skill requirements, responsibility and
\workingconditions. *%r job descriptions have been plc;paicdlLey jobs
nhich represent various wage levels judgcd to be correct and fairly related
to one another and in line with rates prevailing in the district for similar
jobs, are sclccted and analyscd factor by factor. The jobs are considered
onc by one and a decision made as to how much of the current wage rate
for the job is being paid for each factor. A scale is prepared for each
factor on which the kcy jobs arc placed in order ~f their value assessed for
h a t factor. the rcmaining jobs are hen comparcd factor by factor with thc
lie? job factor scales and placed in position at their correct point on each
scalc, a comparative money valuc thus bcing cstablished for cach factor in
cach individualjob. Thc total of the factor values so determined for each
job represents its evaluated cash rate. Both these systems, it will be
obscncd, are very elaborate, and > c t , ncithcr provides for wha&mav be
considered an absolutelv obiective :valuation of iobs: in both cases, the
subicctive element comes in. These are systeniatic and not scientific
proccsses.

There arc two other, simpler methock of job evaluation - one known as the
‘ranking - svstem’ and the other as thc ‘classification svstem’. Under the

former each job is judged as a whole and jobs arc then ranked in groups in
order of difficulty or value, and an attempt is Made to equate or compare
jobs at diffcrent levels among the group. When all jobs under review have
been finally ranked, grade levels arc defined and wage levels allocated.
The classification system M e r s horn the ranking system in that grade and
wage levels are determined before jobs are ranked, and descriptions are
written defining the type of job which should fall into each group. The
’pointsrating’ system has been followcd in determining the pay structure
of onc or two groups of Central Government employees. .....But
orharily, the methods followed are what, in cssence, are the ranking and
the classificationsystcms. Even in industrially developed countries, there
is considerable difference of opinion about tlic advantages of the morc
elaborate systems ofjob evaluation. And whilc it may well be that a more
careful and systematic analysis and assessment of jobs in most of the
Ccntral Government industrial establishmcnts than has been made so far
is callcd for, we do not feel competent to commend any particular system
of evaluation in preference to others.‘‘

Third CPC 54.11 The Third CPC suggested that the Government might consider
desirability of setting up expert bodies under various ministries to go into the
question of reviewing the then existing categorisation of workshop staff and also
a coordinating machinery for maintaining uniformity in re-categorisation 9f
workers. With the exception of Railways, all major ministries agreed to set up
expert reclassification committees. A one man conmittcc was set up by Railiva!.s
io 1969 for this purpose. However, this Committee did not carry out job
e\’aluatioiL/classificationin the strict sciisc of the tcmm A joint committcc of
railivay administration and \vorkcrs’ organisntions. h o \ ~ c ~ ~esamincd
cr. this report.

693
Defknce 54.12 In pursuance of the rm'mmendations of thc Tlurd CPC the Ministry
Estnbhhrneiiu of befence set up an Expert Classification Committee (ECC) in October, 1974
headed by a rewedJudge of the Allahabad High Court. The ECC adopted 'points
rating method' for evaluating morc than 1700 industrial jobs after assigning
specific wcightage to various factors such as education. training, experience, job
skill, physical. mental, visual, efforts involvcd, rcsponsibility for machincs,
equipmcnt, marenals, etc. I'he ECC submitted its Report in J a n u q , 1979
recommcndllig 9 pay scalcs from the unslulled.categorq.to thc highly skillcd grade-
I. This was not acceptable to thc Defcnce industrial \vorkcrs who wanted to be
fitted into the 5 pa!. scaies recommended by the Third Pay Commission. The
rccoinmcndations of the ECC were csamincd and a proposal was submitted to the
Cabinet far the fitmcnt of the industrial workers into the 5 pay scales and
accordinglv the correlation point range was modified in the following manner:-

ECC Correlation point on Correlation point range

the basis of 9 pay scalcs cvolvcd on the basis of 5
pay scalcs introduced b? the
Go\.:
Pay Scale Point Score Pay Scale Point Score
(b.) ws.1 -
196-232 Up to 205 196-232 Up to 205
2 10-290 206-240 2 10-290 206-250
225-308 24 1-260
26G-350 26 1-290 260-400 25 1-328
(Subject to
marginal
adjustments)
260-400 291-3 15
320-400 3 16-340
330-480 341-375 330-480 329-388
330-560 3 76-399 380-560 389 and
above
380-560 400 & above

Anomalies 54.13 The Anomalies Committee set up for looking into the anomalies
Cornmillee
of ECC classification was converted into another expert bod!,. This Committee re-
evduated certain trades whch had lost the skilled gradc by marginal loss of points
in the ECC cvaluation. The Anomalies Committcc not only recommended
upgradation of certain semi-skilled trades to the skillcd gradc based on the re-
evaluation, but also recoinmended the provision of the gradcs of skilled, highly
skilled grade-I1 and hghly skilled grade-I in the ratio of 65:20:15 for certain
common category trades. The recommendation OR a benchmark inter-grade ratio
was implemented in 1984.

Coordination 54 14 The ' h r d CPC report also noted that the Government agreed to set
Committee
up an inter-departmentalcoordination machery for cnsuring a reasonable measure
of uniformit! of standards in the process of re-catcgorisation of workshop staff
The Ministry of Finance has informed us that a Coordination Committee \\as set
up under the Chairmanship of Joint Secretar).(PcrsonncI) and thc rcprcsentatn es
of major Dcpartmcnts cmploying industrial \\orl,crs as nicntbcrs of thc Committcc

694
 As and when the r m m d a t i o n s of the Expert Committee of a department were
finalised, these were considered by the Coordination Committee and
rmmmendations as agreed to by thus C o m t t e e were implemented The Ministry
has also advised us that the categonsabon of all the fndustnal workers of industnal
establishments under vanous Ministries and Departments is a time consuming job
and it takes years to finalise such studies and fWer that in case of Ministry of
Defence this job could bc finalised only in October, 1984 and some
recommendations are still under consideration

‘Utiskilled*- n 54 IS Many associations have pleaded against the retention of the

nrisnonrer
unskilled’ category on the ground that there is no trade which does not call for
application of skills
Discrrnrbiarion 54.16 There is also a i p e r a l feeling among industrial workers that being
ngortis~h e blue collar workers they arc generally discriminated against by the Pay
itidirslrail
workers
Commissions, while the white collar categories get a more favourable treatment.
As an example, it is said that a skilled worker starts at Rs.950-1500 just as an LDC
dues. While thp, Lower Division Clerk is promoted to the scale of Rs. 1200-2040
as Upper Dvision Clerk, thc skilled worker has to move through an cxtra scale of
Rs. 1200- 1800 bclbre he reaches the payscale of Rs. 1320-2040.
Denmiidfor 54.17 The Federations of Railwaymen have represented to us that the
merger of highlv Skilled artisans pass the rcquisite trade test and acquire higher knowledge and
skilled (;Lades
expertise through practical experience before getting the Highly SkilldSkilled
Grade 11 and Highly Skilled/Skilled Grade 1. The Federations have argued that
there is no justification for retaining the two grades in Highly Skilled categon and
the same should be merged into a single grade. We find merit in this demand.
A bolitioti of word 54.18 We have considered these arguments and find that there is some
I’Uriskillled ”
truth in them. Accordmgly, we propose to abolish the nomenclature of ‘unshlled‘
from the dictionary of Government to emphasize the point that we do not consider
any@, howsoever lowly, to be devoid of skills. Instead we suggest * Shramik’to
unWine the fad that physical labour or ’Shrama’ is the basic constitituent of the
skills used at that level. We also recommend that the two grades in highly skilled
category be merged. This would ensure that artisans also progress directly from
the grade of RS.950-1500to that of Rs.1320-2040.

As far as the remaining skill classification is concerned, we

recommend that it be retained as under:-

Existing Recommended
Classification Pay Scale (Rs.) Classification Pay Scale (Rs.)
Unskilled 750-940 Shramik 750-940 (*)
Semi-skilled 800-1150 Skilled-I1 800-1 150
Skilled-I1I 950- 1500 Skilled-I 950- 1500
Highly Skilled/ 1200-1800 1 Highly Skilled 1320-2040
Skilled-I1 I
Highly Skilled/ 1320-2040 1
Skilled I
Master Craftsman 1400-2300 Master Craftsman 1100-2300
(“1 (Minimum educational qualification of 8th pass be uniformly
prescribed)

54.19 We havc further received demands particularly from Defence

Establishments for abolition of Semi-skilled grade. In our opinion the semi-
skilled stage is important for a raw hand to learn skills and there is no
justitication tor its abolition. We do not favour this demand.

54.20 The Federationsof Railwaynen havc highlighted the change in the

job-content of Khalasis and Khalasi Helpers in Railways. They have brought to
our r d c c that the Khalasis ( Rs.750-940)used to be csclusively employed on the
i\’47r;.: of transportation, movemcnt of matcrial and assisting skilled artisans in thcir
wcr k. This concept, has become outdated with the modernisation ofthc rolling
stock and upgradation of their rccruimcnt qualifications from thc knowledge of
rcadiria and witing onl?. to Matriculation/IT!/Act Apprenticeship of the
appropriate trade. The job responsibilities of a Khalasi-Helper (Rs.800- 1 150)
havc Lxxn cnhanced by the administrativc instructions issued by the Railway Board
in 1982. These instructions stipulate as undcr :-

“Even thcugh the designation ’ Khalasi-Helper’ is assigned to semi-skilled

trades as a eonscqucnce to these classifications, the Ministry of Rail\vays
desire to obsenc that Khalasi-Hclpcr should be called Upoli to \vork
independently and can): out all the jobs in emergencies ctc.: which
nonnaliy a shlled worker would do. A Khalasi-Helper associated with thc
skilled workers will ham lo make contribution to production and out-turn
alongwith the skilled workers as the two will form the team.“

The Federationshavc dcmanded suitable higher scales of pay for such

khalasis and Khalasi Helpers.

54.21 The Ministry of Railways has explained to us that the mininium

recruitment qualification of Khalasis in Diesel and Electric Locomotive Sheas is
IT1passlkct Apprenticeship whereas the qualification of their counterparts in other
departments is simple literacy. The Ministry has proposed that the Fifth CPC may
consider prescribing a uniform minirrium qualification of ITYAcc Apprenticeship
pass for all Khalasis in view of technological upgradation of the systems in
Railways.

54.22 We frnd that the designation of ’Khalasi’ is outdated and a legacy

of colonial post. This should now be changed as ‘Shramik’ if recruited
without any technical qualification. The Ministry of Railways has furthcr
clarified that in DieseVElectric Loco/EMU Sheds Khalasis are recruited with onc
of the following qualifications.

1) Matriculation
2) Apprenticeship Pass under Apprentices Act in relevant trade.
3) Diploma in Elect./Mech./Electroni& Engg.

54 23 FOPMatnculates. IT1 pass IS a desirable qualification It may bc secn

that diz pat scale of Rs 750-940 is \ c n ION for these qualifications and docs not
conform to the e\isting and proposed pay scales for differcnt catcgorics 01
cr-plo\xxs w i t k thcsc qualifications We recommend that all such Khalasis
 should be recruited in the skilled grade of Rs.950-1%M)aod designated as
such, as already done in case of direct recruit skilled workers in Railways.

We have recommended basic minimum educational qualification of 8th pass

for all Shramiks in Government. The recruitment qualificatians for Khalasis
in general musi be considerdreviewed by the Railway administration in the
light of functional needs and worth-of-charge.

54.24 The pay scales of ordinary Khalasis (other than those referred
above) and Khalasi Helpers be revised according to the general
recommendations made by us. However, the designation of Khaiasi Helpers
bechanged to Shramik-Helperor Artisan Skilled Grade-11 in the ligh! of our
revised schemeoutlined above.
Recruitment . 54.2j The Defence Industrial Workers have brought to our notice that
cukCr ‘‘I
different directorates under thc Ministry of Defence have framed their own
Esto hlishnren~s
reauitment rules for industrial employees. They have demanded a common set of
Recruitment Rules for all industrial trades and grades within the Ministq of
Defence and !%her a three grade structure in the ratio of 35:35:30in the existing
grades of Rs.750-940, Rs.800-1 150 and Rs.950-1500 for unskilled
IabourerslMazdoors in Dcfencc Establishments. The Ministry of Defence, in
response, has clarified that &ffcrcnt organisationi under the Ministry have different
job requirements and qualificationr, are dependent on the job contents. The
Ministry considers this an administrative matter which need not be considered by
the Pay Commission. The Ministry has € h e r clarified that the unskilled
industrial employees are eligible for ‘in-situ’ promotions to the semi-skilled grade
of Rs.800-1150in terms of general guidelines of the Government in this regard and
that they need to achieve maturity for being classified and placed in the skilled
grade. We are in agreement with these observations of the Ministry. However, in
view of very large unskilled work-force in Defence industrial establishments, we
have recommended upgradation of minimum educational qualification to 8th
standard pass for unskilled labourer (now proposed to be redesignated as
‘Shranlik’) in Defence establishments where minimum educational qualification
prescribed at present is only 5th standard pass.

Inter-Grade Ratio 54.26 In Railway Workshops and Production Units a uniform intergrade
ratio for wol-kshop artisans has bcen prescribed as mentioned below -

YOage Share
Sluiled Grade - I11 30
Skilled Grade - Ii 30
Skilled Grade - I 35
Master Craftsman 05

54.27 The Federation of Defence ErnpIuyees has demanded h a t the Defence

industrial workers be given panty with Riulwvays in respect of inter-grade ratio. We
have atready noted above that in Defence industrial establishments, the Anomalies
Committee prescribed a benchmark intergrade ratio of 65:20:I5 for certain
common categon skillcd trades

54.28 The Anomalics Committee further noted the following distribution of

skilled workers.-

697
 Department HS grade I '?/o age HS grade I1 */o age Skilled O/O age
DGOF 7 20 14 80 74 00
MES 7 41 0 67 91 91
EME 25 84 13 88 60 28
Nat?? 2 1 75 30 15 48 10
,\A
AA!r Pep-? - o n [qn !!I70 - 1
J I ,u

Follcwng further comparison with Railways would be relevant -

I<citt Qualification of 25?4 1)K IOlh' IT1 P r o m o t i o ~ r a n s f e r i e ~ p- l o ~

skillcd workman 25% from SS.I;S (cduia- rned of ex-serwicemedfailing
(Rs.950-I 500) tional qualilicstion a in which Dr (2 yr. courx in ITITSC'1
Apprenticeship /\a) for m)
50% b. proriiotion

Ihkilled Workforce 12.9536 o f t h e total 23.73°,bofthetotal

.2ge o f Retirement SR ~ C J I S 60 years

Overtime to Tech. $0 Yes

Supemison

Induction Training DR: Skilled U'orhcrs Only Apprentices inducted from

(sripend Rs.900-20-940) iowm ranks given induction
Act Apprentice .6 months training
11'1 - 6 months
Matriculares - 3 yean

Incentive Bonus 10 Yes (50% Iinnt) Yes (75% limit)

U'orken

Ovenime to Incentive Generally no1 put on overtime Given ovrrtime work

Workers

Grade Structure Mandatory and u n t h m for Desired kndunarlc onIy for skilled
percentage all trades trades.

Inter-g-ade rtrlro 54 29 In view of the many differences between the workers of railu\a> s and
for i k f e t r c ~ ~ defence establishments, we are not 111 favour of a parity between their respcctivc
ilori ?r(
mter-grade rahos At the sane tme, \cry significant differences between thc intcr-
grade ratios are also Iihely to engcnder a feeling of resentment among the defence
employees With a uniform age of retirement at 60 years and a rnmmum entq
level of 8th pass at Shramik. some of the differences are being evcncd out

Considering the modernisation in Ordnance Factories and need for

improving the career prospects of Defence industrial workers vis-a-vis
industrial workers in Railways the following inter- grade ratio is
recommended for Defence Workers 2-

Skilled 4-2 t Iigher Skilled Gr.11 25

Higher Skilkd Gr.1 25 Mastercraftsman 05
 54:30 We have, however,recommended merger of Highly Skilled gades into
one grade only. The inter-grade ratio will thus be need to be worked out again
based on our recommendations on pay scales. We understand, that in Railways:
the inter-grade ratios are reviewed periodically, particularly after the Pay
Commission's recommendations. We suggest that the Ministry of Defence
likewise may review this ratio within the basic structure of 45:25:25:05
recommended by us and keeping in view the linkages of this ratio, if any, with
the incentive bonus scheme in Defence Establishments.
CXC Machine 54 3 I The Federation of Defence Ivorkers has demanded that the CNC
Uperalors i n
machlne operators in the skilled grade bc placed in the scalc of Rs 1320-2040 after
Llefence
ElrrUb/rshnl<' l l Y
completion of 5 years of service and their further promotion be made in the cadrc
of Supenisors-cum-CNC operator. as pro\xicd in the recruitment rules of the
s u p e n i s o ~cadres in the Ordnance Factorics

54 32 The computer numeric controlled (CNC) machines and higher Ie) els
of automation are being introduced in almost all industrial establishments of the
government CNC machines add to thc precision, quality of output and hlghcr
producti-.it!. While these machines givc n touch of sophistication to the skilled
att~san.they also result in less fatigue and s L :ss for the workers. As such, we are
of the opinion that there-is n o case to give a preferential treatment to CNC
machine operators in Defence or other establishments. They should follow
their normal career progression as laid down in the recruitment rules.
Master Crajsman j4 33 The concept of Master-Craftsman in the pay scale of Rs 1400-2300
was introduced With the basic objective of retaining skilled workers in the trade
The h 1 w a y and Defence Employees Federations have emphasised the continued
need to retam the skills of experienced industrial employees pdcularly in view of
the technical advancement and procurement of sophisticated machines m
Government workshops and factorie;s The Federations have argued for a hgher
replacenlent payscde and further pay scales for promotion of Master Craftsmen
The ordnance Factory Board anticipating re-onentation iq the technologies in use
and induction of neb technologies which use computer based programmable
manufactunng operations, has predicted increasing demand for knowledge based
operating skills in the ranks ctf industrial workers The Board has suggested
creation of two additional grades for Master Craftsmen as follows -

Existing Proposed by Ordnance Factory Board

Master Craftsman Master Craftsman Grade - I
Rs.14OO-23OO Rs.2000-3200
Master craftsman Grade - I1
RS.1600-2660
Master Craftsman Grade - 111
Rs.1400-2300
Our. 54 34 We accept the contention that the 'Knowledge-Worker' is the
reccmmendarrons
need of the hour. However, the grant of higher pay scale (s) as proposed
would disturb the existing relativities with the payscales proposed by US for
Technical supervisors in Workshops. Status quo may, therefore. be
maintained.
Mistries in 54.35 Mistries in Railway Workshops and Production Units are in the same
Railways scale of pay (Rs.1400-2300) as Chargeman ‘Bywhich is a promotioil post for
them. The Federations of Railwaymen have contended that the Mistries who are
promoted from ranks after long years of service and experience work like
Chargemen ‘B’ as supervisors i d technical advisors to the technicians. The
Federations b v ~ Cierefore,
, demanded that Mistry be redesignated as Chargeman
‘B’. The Minim of Railways has cxplained that the Mistries were in the scale of
pay of Rs.330-560 which was lower than that of Chargeman ‘B’ (Rs.425-700)
before the 4th CPC report. We have recommended a slightly higher pay scale of
Rs.1600-2660 for thc Chargeman ‘B’. Accordingly, the Mistn, being lower than
Chargeman ‘B77 cannot be rcdesignated as Chargeman ‘B’. We recommend that
the payscale ofthe Mistries be retained at the present level of Rs.1400-2300.
The Ministry of Railways in consultation with the recognised Federations of
Railw.aymen, has recently changed the designation of the ‘Mistry’ as
‘Supervisor’ without any change in duties, responsibilities and pay scale. We
suggest that the Ministry may consider the revision of designation of ‘Mistry’
to ‘Master Technician’ without any change in status.

TECHNICAL SUPERVISORS

Supervisors arid 54.36 The Technical Supervisors in befence and Railway industrial
Superyised : establishments are in the four standard pay scales of Rs.1400-2300, Rs. 1600-
I’roblem of same
scale of pa!’
2660, Rs.2000-3200 and Rs.2375-3500. The initial pay scale of the Technical
Supervisors is the same as that of for Master Craftsmen and Mistrics (in Railways).
This anomalous situation has arisen due to merger of the pay scales of Rs.425-700
(Chargeman), RS.380-500 (Mistry, Highly Skilled Grade-I) and Rs.425-640
,(Master Craftsman) by the 4th CPC and rcplacement of these scales with a
common scale ofpay of Rs.1400-2300. We have been informed that the identical
pay scales of Mastercraftsman. Mistry and Chargeman have resulted in a large
number of court cases. The New Deb Bench of the Central Administration
Tribunal in a case.0.A.No. 1527/1990 has directed the Ministry of Railways to
refer such cases to the 5th CPC.

54.37 The Minisw of Railways has submitted following facts for ow

consideration:

(i) The avenue of promotion leading to the post of Chargenian ‘A’ is as

under :

Chargeman ‘A’ (Rs.1600-2660)

A

I
Chargeman ‘B’ (Rs.1400-2300)
A

I
Mistry (Rs. 1400-2300)
A

I__ - - - -- - - - - -- - ---- ------ ---_____

A A

I
Master Craftsman (Rs. 14OO-23OO)

7 00
 Hish Skilled Grade-I
Artisan (Rs. 1320-2940)

(iir The posts of Master Craftsmen are filled from artisans in Highly
Skilled W e - I by umverting an equal number of posts of at1sans to
tile Graue of Master Craftsmen. The post reverts to High Skilled
Grade-I after the Master craftsman vacates the post The promotion
of artisans to the grade of Master Craftsman is thus personal sg
nature. The fitness as Master Craftsman does not gn e any advantage
to the Highly Skilled Artisan in seniority for promotion as

(iii) The Master Craftsmen have to seek promotion as Mistries who in turn
get promotion to thc posts of Chargcmcn ‘By.

(iv) The posts of Chargeman ‘B’ arc in technical supenisor)’ cadre and
those of Mistry are specifically escluded from this cadre.
Our 54.38 We find that the direct recruitment qualification for the initial pay
recommendatiotr .s scale of technical supervkors in Workshops is Diploma in Engineering of relevant
discipline or Graduation in Science. We have, as a generd principle decided to
improve &e remuneration of Diploma Engineers in Government. In accordance
with this general approach, we recommend following grade-structure for
technical supewisars in Workshops :-
Existing Recommended Revised Designations in Rmilwmyr(*) Wernarkr
m.1 (Rs.) decided bv the Ministrv in July’%.
Chargeman ’ B ’ I 1400-2300 1600-2660 Junior Engineer Chde-I1 (Workshopj Higher scale due lo
Chargeman tngg dlpioma en?
at this level
chargcman * A / 1600.2660 1640-2K@ Junior Engneer Grade-I (Workshop) D u c IG feeder grade
Senior Chugenun being upgraded
Astistant Shop Superin- 2000.3200 2o(y13SM) Section Engineer (Wokshop) Ighcr scale due 10
rendmmputy shop rationslisation as also
SupetirdeiadtnVhsii the degree in cngg
Fonrnu, (*) m.uy at this lwei
shop Supuintendcncl 2375-3500 23754750 Senior Section Engineer (Workshop) D u e to rationalisation
Foreman I_ -_1

(*) Part Direct Recruitment of Engineering Graduates in Railways

(# ) Other Departments may revise designations, if necessary, in
consultation with representatives of organised labour
Overtime 10 54.30 The Technical Supervisors in Railways have demanded Olertlrne
Technical Allowance for Supervisorystaff‘andSuperintending Allowance for Assistant Shop
Supervisors
Superintendent and Shop Supenntendent in Railway Workshops

54.40 In Railways, the staff are classified as ‘Intensive‘ ‘Continuous

‘Essentially Intumittent’ and ‘Excluded’ on the basis of weekly hours of work as
stipulated under Hours of Employment Regulations in the Railways Act, 1989.
There is no statutoty limit of work for ‘Excluded’ categories which include the
supervisory staff. The supervisory staff who have no statutory or rostered hours
of wcrk are not eligible for overtime allowance. The Ministry of Railwa\.s has
csplained to us that the exclusion of supenison. staff from the limitation of hours
of work is in conformity with thc Intcrnatiokd Labour Organisation Convcntion
(ratified by India) which provides that for the workers in supenisot). posts or
positions of trust and workers whosc activity is of such a nature that thcy arc not
subjcct to the limitations of normal workins day. the limitation of hours of work

70 1
 is not applicable.

54.4 1 The demand for Overtime allowance to ‘excluded’ and ‘supervisorq.’

staff in Railways has been otherwise raised at the forum of Departmental
Council/Joint Consultative Mach1.ner-y We, as a principle, do not favour
pnyment sf wertime to Supervisory staff and fully eiid.orse thz v k w a of ihc
Ministry in this regard. We also do not endorse the demand for
superintending Allowance to Shop Superintendents in Railway Workshops.
We understand that overtime is paid to Supervisors in Defence industrial
establishments, although the Third and Fourth CPCs had recommended
abolition of overtime to technical supervisors in defence establishments. We
would like to reiterate this recommendation and suggest that the payment of
overtime to these technical supervisors be stopped forthwith.

Stage Inspectors 54.42 The Fedaatiws of Ridwaymen h a w rcprcsented to us that the Stage
in Production Inspectors (pay scale Rs.1320-2040) in Production Control Organisation in
Control
Organ rsa lion
Railway Workshops and Production Units inspect thc finished work of artisans:
(PCOj in Railway including hose in skilled Grade-I. The Fcdcrations ha1.c demanded that in order
Workrhops to make this inspection effective, the Stngc lnspcctors should be granted a higher
pay scale of Rs. 1400-23CO. The Mnistr-; of Railways, howver, maintains that the
pay scale of Master Craftsman is grantcd to Highlj, Skilled Artisans on personal
basis without any change. in basic functions and dutics of the aritsans. I n our
opinion, the introduction of the pay scale of Master Craftsman should not
afkct the status of the Stage Inspectors. The present parity of pay scale
between Highly Skilled Artisans and Stage Inspectors is, therefore, in order
and need not be disturbed.

PCO Allowances 54 43 The Fedarat~snshave furthcr infornied us that the staff of Production
Control Orgatusation were entitled to PCO allo~ance@ lS% of pay whch was
lntended to compensate them for the loss of incentive bonus which the staff would
have earned on the shop floor if they had not opted to join the PCO The
Federations allegethat not only h s allo\t ance has been \wthdraw, specially from
thosejoining PCO dn promotion but the benefits of this allowance bemg counted
as pay for all purposes, has also been withdrawn by the Railway Adnurustration
The Federations have demanded restorahon of th~sallowance wth attnbutes of pay
for all purposes including retirement benefits

54 44 We have ascertained the position on PCO allowance in Railwa!

Workshops It is not factually correct to say that thc Railit ay Board had wthdraun
PCO allowance in respect of those promoted to posts in PCO In fact, the Board
had banned promotionS to PCO posts in 1984 Such of the staff who had gone on
promotion to PCO were gwen an opportunih to exercise an option either for the
pay in their substantive cadre on the shop floor plus special pay as adrmssible on
postlng to PCO or to Continueto draw pay in higher grade m PCO wthout special
pay The special pay (renamed as PCO allowance after Fourth CPC’s
recommendations on ‘special pay’ in general) continues for those posted to
PCO.The PCO allowance is no longer ’special pay’ and, therefore, we are
unable to accept the demand of the Federations in this regard.

Supervisors itr 54 45 The technical supervisors in Dcfcncc ’industrial establishments ha\ c

Defence demanded that they should be treated on a spccial footing on account of superior
Esla blishnreitls
tcchnologfin &fence cstablishmcntc arid given an cdgc o\.er their countcrparts in

702
 other departments in respect of payscales. Similariy, the Scientific Supervisors
(electronics discipline) in Directorate General of Quality Assurance have
represented that in view of their multifarious activities in the electronic and
scientific field, they should be delinked from the general supervisory stdfof
Ordriance Factories and other Defence establishments. They have demanded higher
pay scales over and above those in electronic discipline. in Public Sector
Undertakings. We, however, find that the progress in respect of technology is a
conimon denominator in all government industrial establishments. We cannot
make a distinction between technical supervisors in different Government
departments. Neither have we conceded the demand for parity of Government
employees with the staffof PSUs in general. We recommend that the four grade
structure recommended by us for Technical Supervisors be adopted in all
Government departments mutatis mutandis. ‘The peculiar problems o f
Defence industrial establishments are discussed by us in the Chapter on the
Rlinistry of Defence. However, we have considered the demand of technical
supervisors for granting an inter-grade ratio of posts in the supervisory cadre
OR similar lines as in Railways.

We understand that the inter-grade ratio in Railways is determined on the

basis :I‘ functional considerations, review of cadres and negotiations with the
organiscd labour. The inter-gade ratio for technical supervisors in Railways is as
under . -

%ape
(Rs.)
1400-2300 30
1600-2660 25
2000-3200 28
2375-3500 17
(Group ‘C’)

There are various organisations 111 Defence Industrial Sectors with different
and varied functional needs in respect of Technical Supervisors. We, however,
recommend following inter-grade ratio for adoption in Defence
Establishments with suitable changes wherever considered necessary :-

Chargeman ‘B* 35 0%
Chargeman ‘A’ 25 ‘/o
Asstt. Foreman 25 %
Foreman 15%

Incentive Bonus j4.46 The objective of differcnt incentive schemes in Railway

Schemes workshops/production units and Defence Ordnance factories is to improve the
productivit),of an average efficient ucrkcr. There are differences in the schemes
in respect of assumptions on the improvcrncnt in productivity under inccnti1.c
conditions, ceiling limits on incenti1.e profit ar?d mcthods of calculating incentivc
\\.ages etc. A comparative position is indicated below :-

703
RAILWAYS
__
Basic Wages guaranteed
to all workers
Time is the yardstick
for measuring work and
a standard time in fixed
for a given job on the
basis of time and motion
study for an average
worker.
The scheme based on thc
concept that an average
operative when working
under non-incentive
conditions is assumed to
be working at a rating of
60 units. He is expected
to improve his rating to
80 units i.e. 33 1/3% when
working under incentive
conditions.
It is expectcd that an
average operative would
complete an operation in
3/4th of the alIowed time.
The time saved/lost on the
time allowed in each worker
and the lass/gain is
balanced for each wage'
period.
The ceiling limit on
profit is fixed at 50%
of the time taken in each
of the operations.
The hourly rates of pay
for the purpose of
calculating rates for
incentive bonus are based
on the weighted mean of
the pay scales allottcd
to the categories
eligible for the incentive
bonus Qnl? basic pa! is
taken into account
escluding dearness
allowancc. house rent
ORDNANCE FACTORIES GOVERNMENT OF
INDIA PRESSES
Basic wages guaranteed The incentive bonus
to all workers scheme has been
discontinued in
The basic time required Government of India
for performing each Presses and replaced
operation is measured by productivity
by industrial engineering Linked Bonus
time study. Scheme.
The scheme is based on the
principle that an efficient
worker puttihg in normal
effort should be able to
get an additional 25 percent
of this wages as incenti1.e
profit.
The incentive schemc is
applicable to either
individual piece work or
gang piece work. In the
latter system the total
incentive payment is arrived
at is divided proportionately
among the various categories
of workers in proportion to
their actual pay.
Thcre is d i n g of 75% of
the minimumof the pay scale
on Incentive Profit in Ordnance
Factories.
The h o w rate of pay of the
assigned grade of workers is
calculated by dividing the
basic pay at the minimum of
the pay scale by 195
(representing the number of
standard hours for a month)
The scheme does not covers
supervisors. Indrat
workers engaged in activities
like maintenance of plant and
machinery, materials handling
and transportation ctc arc
paid on the basis of their
attendance (cal!ed Da! Ujork
basis).
704
 allowancc. ctc.(standard
hours in a month arc
takcn as 208)
Thc schcnic covcrs
supcn.bors upto Sr.
Chargcman and cscludcs
D\..Shop Suptd. and Shop
Supdt.staff in production
control organisation,
inspcction, millwright,
tool room and yard
organisations. Thc
chargcmcn and essential
indircct workcrs are
cligiblc for inccnlivc
bonus at 80% of d c
avcragc percentage of
thc bonus camcd by the
direct workcrs supcrviscd
andor assisted by them.
Mistries, however, get
-100% of thc average
percentage of profits
carncd by the direct
workers under their
control.
For csscntial maintcnancc
workcrs attachcd to a production
scclion, an inccntivc bonus
at thc riitc of SO% orthc piccc
work profit carncd during a
month by all thc piccc workcrs,
both individual and gang workcrs
of thc section is paid. For
csscntial maintcnancc workers not
attached to any production section.
the ratc of inccntive bonus is
calculated at SO% of thc avcragc
piccc work profit camcd during
a month by all the piccc workcrs
taking the factory as a whole.
Incentive workers arc put on
overtime and oaid OTA
Overtime payments in OFs
(Rs.in Lakhs)
1992-93 3723.96
1993-94 4096.49
1994-95 5306.61

The staff who are put

on incentive working
are not normally
required to work on
overtime.

Scope and 54.47 We have received a Large number of memoranda from Defence and
cowrage Of Railway employees and their Associations for extension of scope and coverage of
Incentive Schemes
in Defence
Incentive Bonus Schemes. The demands and arguments in support thereof received
&tab!ishrnenfi from the Railway employees can be summed up as follows :-
and Railways:
Demands I) Additional duties and responsibilities have been assigned to Senior
technical supervisors (Le., Shop Supdts./Dy. Shop
Supdts./Foremen/Asstt. Foremen) due to introduction of incentive
schemes in the workshop and production units. They do not get
incentive bonus.

2) Running Staff when promoted or posted to Stationary dutics arc

a l l o d 30% of pay in lieu of running allowance. Therefore. 20% of
the basic pay may be granted to Senior technical supemisors as
special pay in lieu of incentivc bonus.

: 705
 Tlic proccdurc for thc calculation of inccntivc bonus and its cligibilit!
critcria arc unfair Thc basic concept i s that a workcr undcr thc
inccntivc schcmc ~ 1 dclivcr
1 33 33% niorc goods i n a givcn tinic than
~ s h a hc
t nould havc doiic undcr normal coiiditions i n thc sanic tinic
But duc to gradual \\car and tcar of niachincs, i t i s not possiblc to
attain thc same ratc of output all thc timc I-fcncc.thc calculation of
tinic for working out inccntivc bonus i s dcfcctive

Thc calculation of inccntivc bonus is donc on thc \vcightcd mcan of

thc pay scalc with rcspcct to basic pay only without taking into
account DA or othcr allowanccs. Morcovcr, a largc numbcr of
workshop staIThavc bccn lcft out of thc purvicw of thc schcmc and a
good number of \voTkcrs havc bocn dcprivcd of thc full bcncfit duc to
thcir classification as csscntially indircct workcrs.

Thc incentivc bonus bc calculatcd on thc basis of actual salary

(Basic+DA) and not on wcightcd mcan of the pay scalc and
calculation of output bc donc aftcr giving duc allowancc for \war and
tcar .

All workers connected directly or indirectly \vith thc production be

given full incentive bonus without any distinction bctwccn dircct or
essentially indirect workers;

In a d d h n to staffalready covered, all othcr staff - techqical and non-

technical connected with workshop be brought under the pun.ie\v of
the incentive scheme;

The incentive bonus be reckoned as part of the pay for all purposes.
similar to running allowance.

We have carefully examined these demands and arguments and feel

convinced that there is no justification for extending incentive bonus scheme
to senior supervisors. Their case is also not comparable to running staff for
whom running allowance includes an element of pay. These supervisors are
eligible for productivity linked bonus which is paid every year to railway
staff.

54.49 The present incentive scheme which has not kept pace with the changes
in workenvironment, technology, introduction of high productivity machines and
design changes in rolling stock, has been reviewed by M/s Rail India Technical and
Economic Servia Ltd. (RITES) for the Railways. One of the alternative schemes
suggested by RITES has been approved by the Ministry of Railways for
implementation on a pilot basis.

54.50 There is no justification to extend the scope of existing incentive

scheme either in respect of calculation on the basis of Pay + DA or coverage
of excluded staff as demanded. We do not find any justification in comparing
the incentive bonus with running allowance of running staff.

54.5 1 Thc Dcfcncc Employccs havc also rcprcscntcd that thc Piecc work

706
 Katc Schciiic prcvailing i n thc Dcfciicc units covcrs workcrs and part of tlic
niaintcnancc workcrs only. laving out a largc scction of staff Thcy fccl that iii thc
changcd sccnano with niasuvc divcrsification and civil tradc activitics, thcrc IS a
nccd tp cvolvc a ncw schcnic of inccntivcs. cmbracing all thc cniplo>ccs of thc
Dcfcncc Units One such schcmc for Ordnancc Factorics is undcr acti\c
considcrabon of JCM at thc lcvcl of Ordnancc Factory Board. Thc cniployccs ha\c
suggcstcd that thc Fifth CPC should rcconiincnd introduction of’this schcnic and
its .cstcnsion to Director Gcncral Quality Assurancc (DGQA), Dircctoratc of
Tcchnical Dcvclopmcnt and Production (Air) [DTD & P (Air)] and Dcfcncc
Rcscarch and Dcvclopmcnt Organisation(DRD0)

54 52 It has furthcr becn argucd that thc Esamincrs in Ordnancc Factorics

arc industrial workers but thcy arc not cligiblc for incentive bonus bang paid to
othcr industnal cmployccs Awrdmgly, it has b a n dcmandcd that thc Evamincrs
should be madc cligiblc for inccntivc bonus

54.53 We do not find any justification for extending the scope of the
present scheme as proposed. The scheme adequately covers the indirect
workers and essential maintenance workers as explained earlier in this
Chapter. However, certain other aspects of the scheme have been discussed
in the Chapter on Ordnance Factories.

Governmeht of 54.54 The workers in Government of India Presses have suggested that their
presses recruitment be restricted to only unskilled categories and semi-skilled categories
should not be directly recruited. They have also proposed that the the qualifying
residency period for promotion to higher posts be reduced

54.55 We have examined the recruitment qualifications and career

progression of workmen in Government of India Presses We find that the
candidates with experience in relevant trade are invariably inducted at semi-skilled
level. Further, the experienced workers have to qualifL for entering the Offset
Press whch is technologically superior than the obsolete Letter Press. We are of
the opinion that the direct recruitment of a certain percentage of posts at
semi-skilled level is need based and must continue. We also notice that the
recruitment rules have been framed with reference to functional needs at
different levels and in keeping with the on-going modernisation of
Government Presses. We are, therefore, unabfe to accept the demands o f the
workers of Government of India Presses.

Mechanics 54 56 The Mechanics (Rs 1320-2040) in the Government of India Presses

(Printing Department) have demanded higher pay scale of Rs 1400-2300 on
account of upgradation of technology fYom Letter press to Offset technology They
have mformed us that dlfferent categories of employees were given suitable higher
pay scales after induction training for Offset technology Press but their pay scalc
rcmamed unchanged The Directorate of Pnnbng has explained that thc Kcchanics
havc not bcen able to justify their demand for re-classification of thc post as a
‘Mastcr of Craftsman’ and grant of pay scalc at par with the Mastcr Craftsman
Wc havc furthcr been informed that ttie Inter Departmental Committee on ‘Printing
Staff set up in pursuancc to thc recommendations of the Fourth CPC also
considered the pay scalc of thc Mcchanics to bc adequate We consider that any
re-classification of skill-status can be done after a proper job evaluation. We,

707
 therefore, do not suggest any change in the payscale of Mechanics in present
terms.

Itilltliti 54 57 Thc workshop cmployccs of the Indian Mctcorological Dcpartnicrit

crl
\ ll*Il’OrOkJ~1~ hatc csprcsscd rcscntmcnt hgainst acutc stagnation in thcir ranks and liavc
1) I a ~ ~ ( J f f I l i l ’ l t /
suggcstcd that Mcchmic Gradc-Ill and Carpcntcr Gradc-Ill bc classificd as skillcd.
arid Mcclianic Gradc I1 and I and Carpcntcr Gradc I1 and I bc ama!gamated and
clsssificd as H i e y Skllcd Wc find that thc workshop catcgorics havc following
pay structurc in Indian Mctcorological Dcpartmcnt

- Pay Scale (Rs.)

Masdoor 750-940
Matc 800- 1 150
Mechanic/Carpcntcr Gradc-Ill 950- I500
Mechanlc/CarpenterGradc-II 1200- 1 800
MechanidCarpentcr Grade-] 1320-2040
Mechanical Assistant 1400-2300
Profcssional Assistant 1640-2900

54 58 We have, in general, recommended amalgamation of highly

skilled levels into one grade of Rs.1320-2040. This recommendation will
cover employees in India Meteorological Department as well. We do not see
any difficulty in classifying the workshop categories as skilled and highly
skilled as demanded by the employees since the existing grade structure
matches the skill-classification recommended by us. Further, our
recommendations on ‘Assured Career Progression‘ would provide relief to
workers in Indian Meteorological Department against stagnation.

Snrall Itidustries 54.59 The Small Industries Development Organisation (SIDO) Employees
Developnre’i‘ Association has submitted the following for our consideration :-
Organisation
filllo)
a) The Lower Technical Staff working in workshops under SIDO are
designated ‘as Skilled workers, DarkRoom Technician and
Instrument Mechanics. Apart from imparting technical training to
existing and prospective entrepreneurs and artisans in different
dlsciplhes such as machme shop, practicc, milling, turning, carpentry,
etc., functions of these lower technical staff also include industrial
promotion and execution of job orders placed by small scale industries
on the workshops

b) Thcrc is stagnation due to very limitcd posts of skilled workcrs Gr I.

Time-bound promotiordpay scalcs may be gianted.

c) Originally slillled workcrs wcrc appointed as ‘Instructors’ in the SIDO

and thcir dcsignation was quite suitablc to the nature ofjob thcy
pcrformcd Conscqucnt on the 4th CPC‘s recornrncndatlons, their
dcsignahon has bccn changed as ‘Skilled Workers’ Siricc thcy 60 on
tour in Mobilc Vans, thcy arc espcctcd to pcrform thc duties of
Instructors/Demonstrators Thc Commission may considcr change of
dcsignation of skillcd workcrs as ‘Instructors’ in the SIDO

708
 S4.60 Thc Dcpamcnt of Small Scalc and Agro-Rural lndustrics. Ministry
of lndustrics has cndorscd thc suggestions abovc for our considcration .

54 61 Thc Iowvcr technical staflof SlDO arc cssctially workshop staff An!
chmgc in dcsignation as proposcd would cntail changc in sclvicc conditions lioiii
industrial to thosc of non-industrial catcgoq.

54.62 We are of the opinion that the reclassification of trades to provide

Skilled Gr. I posts as demanded can only be done by an expert job-evaluation
o r on the basis of functional requirements. The Department of SSI 81ARI
must review the cadres of lower technical staff for suitable relief in respect of
promotion avenues.

C'entrd Ck~utid 54.63 Thc Workshop Staff of Central Ground Water Board (CGWB) havc
wn~crnoclr~'
complained that thcir cadres havc not been restnrctwd in accordance with thc
ctassification schemc rccommcndcd!bythe 4th CPC. We have cxamincd thc
orgkisation sct up of workshop in'the CGWB with a view to stream line thc
structurc in accordance with our general recommendations in this chaptcr. Thc
csisting organisation is as under :-

Assistant Executive Engi?-r(Workshop)

I
V
(14) Foreman (Rs.1640-2900) Pr. FW DR (Diploma + 5 ?TS.)
I
V
(1 7) Asstt. Foreman (Rs. 1600-2660) Pr. 100% (67% Mech.
I 33% Elcct.)
V

I I'
v V
( I 1) Electrician(&. 1320-2040L Mechanic (Rs. 1320-2040)(35)
(DR 100% Matric + IT1 + 3 yrs. exp.) I
I I
V V
Asstt. Mechanic(+) Pr. 100% Slotting Machine Operator
(Rs.1200- 1800) (10 1) (Rs.1200-1 800)
I (12)
V
-----------------------------------
(2yrs.) I(20%) (2yrs.) I(40%) (40%) I17yrs.
V v .v
( 1 10) Welder (+) H T Driver (98) T&. Opcrator (M)
(Rs.1 150- 1500) (Rs.950- 1500 ) (Rs.750-940) Gr.'D'
DR 80% IT1 + 2 yrs. cxp 10th or 8th + IT1
Pr. 20% I8yrs.
V
Black Smith (1 4)
(Rs:950-1500)
1
V

709
 Iianrtncmia~i(Gr.*D*)
( 14)
(Ks xoo- I 150)

I (i) Including staff attachcd tvith drilling units}

54 0 4 In \'ic\v of rccruitincnt qualifications and promotion channcls the

followng rcconinxndaiions would streamline thc,cadre in to a standard workshop
structurc as rccommcndcd by lhc Fourth Ccntral Pay Commission

54 65 The pay scale of Welder be upgraded to Rs.1320-2040.Welders

may no longer be feeders to Asstt. Mechanics but be made eligible for
promotion to the post of Mechanic. The movement of Assistant Mechanics
and Slotting Machine Operators to the post of Mechanics be treated as lateral
movement and not promotion. Ten percent posts of Electricians and
Mechanics be upgraded to the pay scale of Rs.1400-2300 and be designated
as Master Electricians and Master Mechanics.

54 66 "lie pay scale of Technical Operator (Mechanical) be upgraded

to Rs.800-1150. The residency period of T.O.(M) for promotion as Asstt.
Mechanic be suitably reduced in view of proposed upgradation.

54.67 Thc position in rcspcct of Assistant Forcman and Forcman is as undcr:

Pay Scale Recruitment Oualifications

Rs .
Assistant Forcman 1600-2660 Promotion 100%
33% Electrician + 5 yrs experience
67% Mechanic + 5 yrs expcricnce
Forcman 1640-2900 Promotion failing which DR
DR Qualification: Diploma + 5 yrs csp

The pay scales attached to these supervisory posts are

appropriate and may be retained.

54.68 We also recornvend that the Technical Operator (Drilling) and

Technical Operator (Stores),begiven the pay scale of Rs.800-1150at par with
Technical Operator (Mechanical).

54.69 We suggest that workshop categories in small organisations

which have not been specifically covered by us in this Chapter may follow the
general pattern of skill-classificationand pay structure recommended by us.
The administrative ministries, however, may suitably decide the extent and
scope of implementation of these recommendations depending upon the size
of the cadre and functional need of skill levels in the organisation.