Professional Documents
Culture Documents
by
VIRAT RAJPUT
(A144104219002)
Relationship Between Ministers and Civil Servants
INTRODUCTION
DIFFERENCE IN ROLE OF A MINISTER AND A CIVIL SERVANT
A minister is a politician and holds the office only for a fixed period. On the other hand,
the bureaucrat is a permanent officer and enjoys continuity in administration and other
affairs. A minister is an experienced politician and feels the pulse of the people.
However, he is not an expert administrator. On the other hand, a civil servant does not
possess the qualities of a minister but he is an expert administrator. So both belong to
the opposite poles. This situation may create troubles for public administration.
If the above argument is accepted, it may naively be asked what would be the exact
relationship between the two. I believe that there is no short-cut formula as to the
relationship between the two. The civil servant must admit that the minister is the
representative of the people and he is accountable to them. Naturally, in the
decision-making process and in some administrative affairs he must be given priority.
On the other hand, the minister must admit that the top officer of his department has
passed through several stages of test and possesses wide experience in public
administration. In such a situation his opinion must be given due weight.
This is an easy formula, but the public administration travels along a zigzag way. An
experienced bureaucrat does not always surrender to the ill- conceived and politically
motivated policy or decision. If the bureaucrat sees that based on his experience he
finds no reason to tend support to the decision of the minister, it is natural that he will
object.
In the parliamentary form of government the tussle or conflict between the minister and
his departmental secretary is prevalent. The minister thinks that since he is the people’s
representative he should have the final say on every matter. On the other hand, the
permanent executive is less concerned with politics or political issues. He knows
administration and law. He feels that his accountability is to the proper application of
the two and not to the politics and electorate. These two stands are irreconcilable. I
think that these two opposite stands of minister and bureaucrat has made the public
administration very complicated issues.
The execution of policy also requires tact, courage and skill which of course the civil
services possess in an ample measure. If they find a particular policy unworkable, they
may point out flaws to the minister un-reluctantly and suggest modifications in the
policy.
The minister will be judicious enough to accept their mature counsel as he is fully
conscious of his limitations and the responsibility of efficient administration that he
owes to the electorates. He will not unnecessarily reject their advice just to show his
superiority to know it fully well that his prospect will be bleak if his administration earns
denunciation at the hands of the electorates.
Ramsay Muir has given a very analytical portrayal of relationship between the ministers
and the civil services in the words “Think of a newly appointed minister taking
command of a great public department such as Ministry of Health or the Colonial office.
He has obtained the position because of his achievement in general field of politics,
because he is a good platform speaker or a good parliamentary debater or commands a
great deal of social influence or is a prominent trade union organizer. In the majority of
cases he has no special knowledge of the immense and complex work of the
department over which he is presiding. He has to deal with a body of officials who may
be and often are men of far greater natural ability than himself. They bring before him
hundreds of knotty problems for his decisions but most of them, he knows nothing at
all. They put before him their suggestions supported by the most convincing arguments
and facts. Obviously, unless he is either a self-important ass or a man of quite
exceptional grasp, power and courage he will in 99 cases out of 100 simply accept their
views and sign his name on the dotted line. In the 100th case, some question of party
principle, some promise that has flourished on the platform may be involved. The
officials of course know this. They perhaps point out the practical difficulties in the way
of limited fulfilment of the pledges. They suggest to him a plausible compromise. They
know that with one type of minister, they will have to go-slow and that with the other
types of ministers they can suggest bolder devices on the whole the policy of the office
will nearly always prevail; its powers of quiet persistence and of quiet obstruction and
its command of all the facts are irresistible except to a man of commanding power”.
PAST INCIDENCES
A dynamic personality like Jawaharlal Nehru could make the secretaries dance to his
tune. Nobody had the courage to dictate terms to him. Shastriji, the next Prime Minister,
had to bank upon his secretariats advice quite a great deal because of his limitations.
When compared with his predecessor. Mrs. Indira Gandhi in the initial stages leaned too
heavily on K.L. Jha and later P.N. Haksar, her secretaries, as she did not come up with
clear majority in Lok Sabha and was shaky in administering national affairs.
With the passage of time she emerged out to be a very dominant leader and a capable
administrator. She no longer got dictation from her secretaries in political or
administrative affairs. Rather, she made them blow her trumpet. Rajiv Gandhi, her
illustrious son being a politically novice in the initial stage banked upon bureaucrats to a
great extent. Mrs. Sarla Grewal was one of such bureaucrats.
CONCLUSION
In India, the bureaucrats have a special role to play. The ministers are simply people’s
representatives. The public administration is not only a continuous process but also a
complicated one. It is not possible for ministers alone to run the administration
efficiently and effectively and naturally they are to depend on the bureaucrats. India is a
developing nation and it is in the process of transition—from developing to
development. For this, the management of resources is significant.
The minister’s duty is to collect resources and it is the duty of the civil servants to utilise
the sources so that the state can reach the most coveted goal of progress within a
stipulated time. In this field both the minister and the bureaucrats are essential. Our
point is—both must know this basic concept. Moreover, if it so happens, I believe, any
conflict between a minister and bureaucrat will never arise.
It may not, however, be irrelevant to say that the bulk of critics in India feel that
bureaucracy has in general earned a bad name. The Public accountability is sadly
missing from the Indian administrative system. The politico-bureaucratic wall has
become so strong that it defeats all possible attempts at enforcing the liability of both
the minister and his administrative secretary.
The minister must know that he is simply a people’s representative and not an expert
administrator. On the other hand, the bureaucrat must be well-aware of the fact that in a
parliamentary form of government the minister is his political master and chief actor in
the policymaking affairs. The minister must give a patient hearing to what the
departmental secretary says. If the minister is firm in his stand, the bureaucrat must
submit.
References
Anulekha Ray (2020) Narendra Modi govt's latest step to reform bureaucracy — Mission
Karmayogi, Available at:
https://www.livemint.com/news/india/union-cabinet-launches-mission-karmayogi-nationa
l-programme-for-civil-servants-11599037616349.html (Accessed: 10th September 2020).
R.K. Raghavan (2011) 'The Minister versus the civil servant', The Hindu, 11 February
2011, p. 03.
Ramsay Muir (1915) The Making of British India, 2nd edn., Michigan: University Press.
Sir John Crawford (1960) 'RELATIONS BETWEEN CIVIL SERVANTS AND MINISTERS IN
POLICY MAKING', Australian Journal of Public Administration, 19(2), pp. 99 [Online].
Available at:
https://onlinelibrary.wiley.com/doi/abs/10.1111/j.1467-8500.1960.tb00606.x (Accessed:
12th September 2020).