Professional Documents
Culture Documents
UPSC MAINS
PUBLIC ADMINISTRATION
SOLVED
QUESTION PAPERS
(2013-2019)
CONTENTS
PUBLIC ADMINISTRATION 2019 PAPER-1 2
PUBLIC ADMINISTRATION 2019 PAPER-2 15
PUBLIC ADMINISTRATION 2018 PAPER-1 33
PUBLIC ADMINISTRATION 2018 PAPER-2 47
PUBLIC ADMINISTRATION 2017 PAPER-1 61
PUBLIC ADMINISTRATION 2017 PAPER-2 73
PUBLIC ADMINISTRATION 2016 PAPER-1 86
PUBLIC ADMINISTRATION 2016 PAPER-2 99
PUBLIC ADMINISTRATION 2015 PAPER-1 112
PUBLIC ADMINISTRATION 2015 PAPER-2 123
PUBLIC ADMINISTRATION 2014 PAPER-1 134
SECTION-A rewarded. Against the widely accepted belief that
managers are rewarded according to their performance.
Answer the following in about 150 words each: 10 x 5 = The more senior the manager the less relevant is
50 Marks specific job knowledge and the more important are
social skills. These social skills and the way they are
Q1 (a) “Public Administration is constantly being applied are harder to assess than straightforward task
reinvented because it is contextual.” Elaborate. 10 skills.
Marks
Public Administration is a contextual discipline and one In a task-continuous organisation the hierarchy and
should be sensitive of this to develop a meaningful therefore seniority is aligned with the core task. As you
theoretical design, and (Public Administrative is a look further up the hierarchy you find deeper expertise.
purpose-oriented exercise and effort at delinking public In a task discontinuous organisation you find quite
administration from public is theoretically misleading distinct, separate skills at the higher levels. Good
and intellectually myopic.Unlike other disciplines in the examples of task continuous organisations would be
field of social sciences, Public Administration is a small family businesses, or business, run by
practice-driven endeavour in which the role of politics is experienced experts, with skilled workers and
also evidently significant that cannot be wished-away, apprentices underneath them. Task discontinuous
and in the context of the rise and consolidation of organisations are far more common nowadays. Modern
‘networked society’ , a scientific study of public corporations are almost invariably run by specialist
administration is possible once this dimension of a managers who have only a loose grip on the core
globalising world is appropriately captured and activity, if they have any proficiency at all. I think this
analysed. distinction between the two types of organisation has
big implications for software testing, and I’ll return to
(b) “Bureau pathology denigrates competence in that in my next post.
organization.” Explain. 10 Marks
Big corporations often act in ways that are inconsistent (c) “If there is ever to be a science of Public
with their supposed goals, and that a major reason is Administration it must derive from an understanding of
the way the hierarchy is structured and managers are man’s behavior”. Explain. 10 Marks
Public administration is a species of human behaviour. The process of delegated legislation enables the
As such, unlike that of physical phenomenon it is not executive to make a law without having to wait for a
subjected to uniformities of nature. Free will, choice, new Act of Parliament to be passed. Further, delegated
purpose and values play a vital role in its functioning. legislation empowers the executive to modify or alter
Exactness as Science is next to impossible in public sanctions under a given statute or make technical
administration as it deals with the human beings and changes relating to law. Delegated legislation plays a
their resultant behaviour. very important role in the process of making of law as
there is more delegated legislation each year than there
No two persons can claim identity in their attitudes, are Acts of Parliament. In addition, delegated legislation
perceptions, orientations and responses. Even the same has the same legal standing as the Act of Parliament
person may react differently in two different situations from which it was created. It is argued that delegated
or sometimes on two different days the same person in legislation enables authorities other than Legislation to
a similar situation may act differently. In the latter case, make and amend laws thus resulting in overlapping of
varying attitudes may cause such results. functions. It is against the spirit of democracy as too
much-delegated legislation is made by unelected
(d) “Chester Barnard in ‘The Function of the Executive’ people.
injected ‘the social’ in the study of organization.
Explain in this context how the executive is expected to Q2 (a) “Governance is neither a paradigm nor a
play a much greater role than a manager.” 10 Marks panacea for all the ills of government. It may be a more
Barnard's classic 1938 book, The Functions of the useful approach when other methods fail in providing
Executive discusses, as the title suggests, the functions public service.” Critically evaluate. 20 Marks
of the executive, but not from a merely intuitive point of Governance has been defined to refer to structures and
view, but instead deriving them from his conception of processes that are designed to ensure accountability,
cooperative systems. The responsibilities at the transparency, responsiveness, rule of law, stability,
executive level are much greater than at the manager equity and inclusiveness, empowerment, and
level. The promises are bigger, and the consequences of broad-based participation.
success or failure have a much bigger impact on the
organization as a whole. Barnard summarized the Governance also represents the norms, values and rules
functions of the executive as follows: of the game through which public affairs are managed
● Establishing and maintaining a system of in a manner that is transparent, participatory, inclusive
communication; and responsive. Governance therefore can be subtle and
● Securing essential services from other may not be easily observable. In a broad sense,
members; governance is about the culture and institutional
● Formulating organizational purposes and environment in which citizens and stakeholders interact
objectives. among themselves and participate in public affairs. It is
● To manage people and make sure they do their more than the organs of the government.
jobs
Governance systems set the parameters under which
(e) “Delegated legislation has become a strategic tool management and administrative systems will operate.
in the hands of the executive despite its utility.” Governance is about how power is distributed and
Comment. 10 Marks shared, how policies are formulated, priorities set and
stakeholders made accountable.
Governance is commonly defined as the exercise of Good governance has become vital to statecraft with
power or authority by political leaders for the well-being sophisticated GG metrics to measure aspects such as
of their country’s citizens or subjects. It is the complex service-orientation and public policy efficacy, focused
process whereby some sectors of the society wield on
power, and enact and promulgate public policies which 1. Voice and accountability;
directly affect human and institutional interactions, and 2. Political instability and violence;
economic and social development. 3. Government effectiveness;
4. Regulatory burden;
The power exercised by the participating sectors of the 5. Rule of law; and
society is always for the common good, as it is 6. Corruption.
essential for demanding respect and cooperation from
the citizens and the state. As such, a great deal about In terms of the rigor of decision-making structures and
governance is the proper and effective utilization of processes, these vary widely especially when talking
resources. about the differences between corporate, international,
national or local governance. However, there is an
(b) With the entry of the concept of ‘good governance’ increasing convergence and sometimes whole-sale
the discipline of Public Administration has shed its borrowing of governance norms, standards and
statist character. Explain. 15 Marks practices, with advances in corporate governance
Good governance is not about a more effective dictator. leading the way.
It is about guarding processes that make a complex
organisational whole function better and better over It’s important to see Good Governance and Public
time, in all its duties to those to whom it owes a duty. Administration as two sides of the same coin. They are
And yes, that applies to public administration also - inextricably linked and mutually dependent.
maybe especially so.
Good governance defines and reflects the quality of (c) Has New Public Management failed in promoting a
public administration in terms of how decisions are democratic polity? Analyze in the contexts of
made and implemented, and the rigor of the structures individuals as a citizen and individuals as a customer.
and processes in place to arrive at those decisions and 15 Marks
the way these acted on. Public sector services and The most vehement criticism against NPM has been
administration typically use internal management voiced by the advocates of substantial democracy. They
reviews, audits, inspectors-general, Ombudsman or believe that, by encouraging individuals to pursue
Public Advocates, and in cases of some countries, maximized self-interest, this efficiency-oriented
administrative or civil courts to examine how good movement only serves to attenuate the moral
governance standards and principles are being applied. dimensions of democratic life, leaving underdeveloped
such values as social justice, equality, social solidarity,
There are many principles of good governance to and public-spirited participation. Such an observation
assess public administration. The accepted minimum leads to the following intellectual curiosity: what would
quality dimensions for good governance are: happen if one country were to go through both
participatory, consensus oriented, accountable, demoralization and NPM simultaneously, as is the case
transparent, responsive, effective and efficient, with many countries today?
equitable and inclusive and follows the rule of law.
In the initial phase, the NPM reforms actually advocate society. The nation-state ceases to be an effective
certain core values also shared by liberal democracies, economic manager.
and because NPM measures help fulfill certain political
functions for regime transition, the two reforms actually Although the states continue to be the main actors in
reinforce each other early on in the process. international business they already suffer losses of
Nevertheless, as democratization proceeds, such sovereignty, functions, power. Many international
advanced goals as improving the quality of civil society institutions take over from the states prerogatives, in
and promoting grass-roots deliberation with regard to a almost all cases with their consent and they have the
collective future begin to be emphasized on the reform right to judge and to coerce what the states make on
agenda. NPM at this later stage is found to impose their own territory even to exercise jurisdiction and
challenges to further democratization. control over national issues. This way, nation-states
receive a double blow, on the one hand from the
Q3(a) “Globalization has constructed the international institutions becoming stronger and more
administrative state to save and serve corporate power influential, which make a dent in the control over their
structure.” Discuss how transnational corporations economies, judicial system, etc. and make them more
impact government and public administration in the and more unable to maintain their national character
contemporary era. 20 Marks and their cultural homogeneity, and on the other hand,
The end of the century and beginning of the new the global market and the globalization mechanisms
millennium has been characterized by a tight
competition between the forces and the conventional (b) “Red light and Green light theories provide
methods of social organization (state, nation) and the contrasting approaches to the role of administrative
new appearances (integration, internationalization, law.” Which of the two theories will be effective in
globalization), so that, in the international system that achieving the objectives of administration law? Justify
configures, some concepts seem to impose, by their your choice. 15 Marks
frequency: integration, globalization, major concepts,
considered by some as a way of reshaping the world, The Red Light Theory:
while others are unpredictable sources of trouble. The Red Light Theories are those which have an aim of
administrative law as being to control the state
The state as the traditional major factor in international activities as to protect the individuals. Here placing the
relations, is in competition with a variety of economical, court is the center of constitution. Court ruled different
political, cultural forces in a new formula called rules and regulations to protect the individual.
governance. A global civilization seems to be the
solution towards is heading the society in which we live. The Green Light Theory:
Globalization is forcing the states to restructure their The Green Light Theory says it is an administrative law
national economies, to interconnect with the global that exits the state meets certain policy objectives. It
economic flows, making them also more vulnerable to tends to minimize the role of the courts and underplay
the developments in the global economy and to the the existence of general principles. It wants to
oscillations of the flows in the world economy. The new encourage efficiency in the governing process and
ways of economic management of the states, the policy making.
various competitions between the states competences,
plus a number of specific local factors (such as Administrative Law:
secessionist trends) facilitate a fragmentation of the
Administrative law is the body of law that governs the aspects of accountability and a potential for subtle
activities of administrative agencies of government. forms of regulatory capture. These problems reinforce
Government agency action can include rulemaking, the dilemma of allowing for increased regulatory
adjudication, or the enforcement of a specific regulatory flexibility without sufficient accountability structures.
agenda. Administrative law is considered a branch of
public law. As a body of law, administrative law deals
with the decision-making of administrative units of
government that are part of a national regulatory
scheme in such areas as police law, international trade,
broadcasting, the environment, manufacturing, taxation,
immigration and transport.
So it is said that the main object of Administrative law is
the operation and control of administrative authorities.
Administrative law deals with the structure, powers and
function of the organs of administration, the limits of
their powers, the methods and procedures followed by
them in exercising their powers and functions. The Red
light theories are implemented on the state activities as
to protect the individuals and Green light theories are Q4(a) Contingency theory of organization is founded
implemented on the state meets certain policy on the interplay of ‘external fit’ and ‘internal fit’.
objectives and decision-making. Discuss. 20 Marks
Many contingency researchers have argued that
(c) “The advent of the regulatory regimes indicates the organizations must tailor their structures and decision
demise of the arbitrator state.” Comment. 15 Marks making processes to fit the demands of their external
The modern interventionist state of the late 19th and environments–the exigencies of their markets. They
20th centuries has produced new regulatory structures claim, for example, that uncertain environments–those
for both state and society. Regulatory regimes are with high degrees of change and unpredictability in
arrangements of steering and control mechanisms that technology and in customer and competitor
profoundly influence the operation of a particular sector. behavior–require more delegation of authority to highly
The constitutive elements of regulatory regimes extend trained specialists and quicker, more responsive
beyond material rules of behaviour to include the decision making. However, such experts usually favor a
procedures by which they are created and their validity slower, more analytical approach.
is preserved; institutions that establish, promulgate and
implement norms; as well as core principles and Here, internal and external requirements appear to be
narratives of justification. Each regulatory regime has inconsistent. These and similar inconsistencies indicate
potential for accountability shortfalls at one or more that the alignment among structural and process
levels. However, they differ in the specifics and what variables needed for good environmental fit seems
they suggest about consequences for regulatory sometimes to violate the dictates of internal
outcomes. The discouraging news for advocates of consistency. It is reasonable, therefore, to expect that
newer regulatory regimes is that the experiences where such inconsistencies occur, organizations will
reviewed here show potential shortfalls in different choose between achieving internal match and external
match: firms that closely match the demands of their and inaction. Individuals like a many-sided prism reflect
environment will lack internal complementarity, and vice a state’s strengths and its weaknesses. As she noted,
versa. “No government will be successful, no government will
endure, which does not rest on the individual, and no
The empirical research reported here demonstrates government has found the individual. … Democracy is
exactly this: organizations that achieve the best fit with not worked out in the polling booths; it is brought forth
environmental uncertainty have the weakest linkages in a genuine collective will, one to which every single
among structural and process variables. An exploratory being must contribute the whole of his complex life, as
taxonomy supports these results. However, internal and one which every single being must express the whole of
external fit are not always incompatible. We found, for at one point”
example, that fit with environmental diversity did not
have any implications for internal fit. One of the (c) “Media the Fourth estate is in chains.” Examine the
implications of this research is that managers may have statement in the context of governmental
to perform their adaptive tasks sequentially striving for accountability. 15 Marks
a harmonious alignment among their internal variables The term Fourth Estate or fourth power refers to the
in order to achieve smooth functioning, but periodically press and news media both in explicit capacity of
disrupting this harmony to adjust to a changing advocacy and implicit ability to frame political issues.
environment. Censorship is a thing of the past. Governments have
many other tools to suppress free media, especially
(b) Mary Parker Follett traced the foundational value of since unexpected market developments have made
business and enterprise on her way to understand the media organisations increasingly vulnerable to political
organism of governmental machinery. Comment. 15 interference. When a government wants to subjugate
Marks the media, there are four financial strategies it can
Mary Parker Follett was not a "business woman and she follow. These are as follows: public funding for
was initially interested in political institutions and the state-administered media, state or public advertising,
organism of the governmental machinery. Instead of state subsidies, and market disruption measures. There
emphasizing industrial and mechanical components, are of course efforts to overcome these challenges:
she advocated for what she saw as the far more while newspapers try to increase the revenues derived
important human element, regarding people as the most from print readers by increasing their prices, for
valuable commodity present within any business. She example, news sites are experimenting with
was one of the first theorists to actively write about and crowdfunding and online subscription methods in order
explore the role people had on effective management, to monetise their activities.
and discuss the importance of learning to deal with and
promote positive human relations as a fundamental Section-B
aspect of the industrial sector. A direct democracy, as Answer the following in about 150 words each: 10 x 5 =
Follett imagined it, engages and grows the aspirations 50 Marks
and the power of creative individuals for aligned Q5 (a) Contractualism has become a favorite policy of
collective action. the neoliberal forces, but now without its share of
controversy. Argue. 10 Marks
According to Follett the “individual is the state.” Nevertheless, from the contractualist perspective,
Individuals are politics. The “whole” of the state is neoliberal agreement depends on a collective choice
mirrored in each and every individual citizen, their action “based on a calculus of individual interests” ,which
excludes common presuppositions about the ultimate funds began to dry or dried people’s interest in it also
source of value and the valuation of individual interests. began to dry slowly and steadily.
When political decisions are based on common
presuppositions about the ultimate source of value and The students of public administration still study
valuation, decision-makers act as collective agents comparative public administration whenever any
(e.g., peoples) rather than individuals. necessity arises. The meteoric rise of comparative
public administration was due to the formation of
A central tenet of neoliberalism is that collective Comparative Administration Group and financial help
deliberation of this sort limits, and even undermines, given by the Ford Foundation. Today, students of public
individuals’ ability to maximize their self-interest. administration do not display excessive interest in the
Indeed, on the market model, and within the limits of subject. But sometimes they say that the administrative
market rules, individuals maximize their net wealth in systems of westerns countries should be studied in a
accordance with exclusively private values. comparative way in order to have a full understanding of
Consequently, coordination based on common values is all aspects of the subject
viewed as preventing people from freely exercising their
power. (c) “Maximum social gain” in public policy making is an
attractive goal which is rarely found in practices.
Rather than liberty, deliberation from the standpoint of Discuss. 10 Marks
“the people” is thought to lead to oppression. The A rational policy is one that achieves "maximum social
“collective” in collective choice merely signifies gain"; that is, governments should choose policies
individualistic political agreement on common political resulting in gains to society that exceed costs by the
principles. These principles are both chosen from the greatest amount, and governments should refrain from
standpoint of private interest and acted on in the sphere policies if costs are not exceeded by gains. First, no
of private calculation. As Dean clearly explains, the policy should be adopted if its costs exceed its benefits.
economic market cannot be viewed as “the mechanism Second, among policy alternatives, decision makers
by which the will of the demos manifests itself”. should choose the policy that produces the greatest
benefit over cost.
(b) The failure to discard its elitist character and
west-centric orientation has led to the decline of To select a rational policy, policymakers must
Comparative Public Administration. Explain. 10 Marks (1) Know all the preferences and their relative
Several reasons have been adduced to the decline in the weights,
importance and interest of comparative public (2) know all the policy alternatives available,
administration. (3) Know all the consequences of each policy
alternative,
One such reason is many eminent persons began to (4) Calculate the ratio of benefits to costs for each
think that only Public Administration was enough. And, policy alternative, and
if so, why Comparative Public Administration. (5) Select the most efficient policy alternative.
Rational policy making also requires
The Comparative Administration Group and the financial information about alternative policies, the
help provided by the Ford Foundation made some predictive capacity to foresee accurately the
people interested in the subject. But when the source of consequences of alternate policies, and the
intelligence to calculate correctly the ratio of
(c) Is William Niskanen’s “Budget Maximising Model” performance measurement methods. The possibility to
relevant today? Argue. 15 Marks apply the complex combination of performance
“Budget Maximising Model” refers to an economic measurement methods known in business sector and
model which tries to depict the typical behaviour of applied in public sector sometimes, as this combination
bureaucrats who work for the government. A would help to focus on the core decisions of the
government bureaucrat, according to this model, will organization in public sector, induce development of
constantly try to expand the amount of money and other internal processes, increase the employees’ motivation
resources that are under his control. The greater the for improvement and would serve as a tool to define the
amount of resources under his control, the greater the entity’s improvement as any organization cannot work
chances of him wielding power over people who are effectively and objectively without measuring its
dependent on these resources. The budget-maximising performance.
model of bureaucratic behaviour was first proposed by
American economist William Niskanen in the 1968 The critical moment in performance measurement of
paper, “The peculiar economics of bureaucracy”. the public sector is to identify the factors affecting the
performance results of the organization. This process is
The budget-maximizing model is a stream of public very important for decision-making, which would
choice theory and rational choice analysis in public determine the future results of the organization. The
administration inaugurated by William Niskanen. concept of value-creating factors is always changing in
Niskanen first presented the idea in 1968, and later the context of a dynamic environment and this causes
developed it into a book published in 1971. According to management problems. Therefore performance
the budget-maximizing model, rational bureaucrats will measurement systems are becoming more and more
always and everywhere seek to increase their budgets in important tools that help to make management
order to increase their own power, thereby contributing decisions of organizations in the public sector.
strongly to state growth and potentially reducing social
efficiency. The bureau-shaping model has been Besides, the practical application of the measurement
developed as a response to the budget-maximizing results – information – should be stressed not only with
model. Niskanen's inspiration could also have been regard to decision-making, but also in wider sense, i.e.
Parkinson's law sixteen years earlier (1955). for the purpose of accountability, transparency, publicity,
social responsibility, information and education with
Q7(a) Performance measurement remains an emerging regard to all the interested parties
issue but it is relegated to exclusively monitor and
assess the use of funds. In light of the statement, A number of the processes and practices that are, or
discuss various non-financial parameters of could be, involved in performance measurement are
performance measurement to evaluate public sector long established public-sector practices. These include
organization. 20 Marks the maintenance of large electronic administrative data
One way of classifying performance measures is by the systems; financial auditing practices within government,
phase of production that they pertain to (i.e. input, and audit-related procedures for protecting the integrity
throughput, output, and outcomes performance of information; arms-length data-collection practices;
measures). personnel evaluation activities and practices; public
opinion monitoring; and, particularly, program
In order to measure the performance of public sector’s evaluation. (In fact, high quality and comprehensive
organizations, it is very important to apply suitable program evaluation potentially spans all of the
processes and practices that are part of performance In 1991, in reaction to a severe macroeconomic crisis
measurement programs, except that performance involving high fiscal deficit and depleted foreign
measurement is normally an on-going activity whereas exchange reserve, India approached the World Bank for
program evaluations tend to be carried out on an a ‘structural adjustment’ loan. The structural adjustment
occasional basis.) programmes supported by the World Bank institutions,
while disbursing loans, began by encouraging reform in
(b) The imperatives of administrative ethics are trade policy. The emphasis gradually shifted to fiscal
necessarily an anudole to “I was only obeying the issues, in response to growing recognition that
orders” argument by public officials. Explain. 15 Marks inappropriate and unsustainable expenditure and
Administrative ethics denotes the professional code of revenue policies are, in many instances, the major cause
morality in civil service. They constitute the moral fiber of disappointing economic performance. Polak’s
of civil servants. They regulate the conduct and Model1, followed by IMF, asserted that the external gap
behavior of different categories of civil servants. Thus, (current account balance) is a reflection of the internal
they provide „rules of the game.‟ gap between revenue and expenditure. Structural
adjustment programmes, therefore, became more
The principle that public administrators act in a concerned with mobilising revenue through improved
responsible manner has been fundamental to the taxation and better pricing of public services. Tax
development of the field of public administration as a reform became an essential component of strategy of
profession and scholarly discipline since its inception. structural adjustment in developing countries, as it was
felt that “existing tax systems of many developing
Administrative responsibility is seen as the glue that countries are distortionary and contribute to a host of
connects administrative ethics to the more general economic problems, including production inefficiency,
questions regarding the proper role and behavior of capital flight, and fiscal and balance of payments
unelected officials in a democratic system. In the past disequilibria”.
two decades, explicit and implicit considerations of
responsibility continue to be significant factors in the SIMPLIFICATION OF TAX LAWS
continuing evolution of public sector ethics, thereby A number of changes were introduced to simplify some
providing a normative and descriptive base upon which of the calculations attendant to filing of return:
more specific topics, such as corruption, integrity of ● The calculation of depreciation on business
governance, public values, and social equity, can be assets was simplified by introducing ‘block of
examined in a balanced manner. assets’ system,
● Limits imposed on business expenditure in the
Paul H. Appleyby argues that morality and nature of entertainment, hospitality and
administration cannot be separated and that one would advertisements were removed or rationalised in
not doubt that morality in public administration is keeping with the current business practices.
sustained by patience, honesty, loyalty, commitment to ● The method for computation of
service, cheerfulness, and courtesy. long-term-capital-gains was changed by
allowing for indexation for inflation and a lower
(c) Discuss the major areas of change in the flat rate of tax9 instead of progressive
Tax-Reforms of the post liberalisation era. How do you exemptions.
justify the importance of the direct Tax reforms in this ● Government notified accounting standards that
context? 15 Marks required taxpayers to follow a uniform
accounting year and mainly mercantile system solving their common problems through self-help and
of accounting. mutual help Self-Help Groups (SHGs) are small
● Dividends became tax-free in the hands of voluntary association of people from the same
recipients by introduction of Dividend socio-economic background with a purpose of solving
Distribution Tax. their common problems through self-help and mutual
The donor-based Gift Tax Act was withdrawn but gifts help Self-Help Groups (SHGs) are small voluntary
from non-relatives were made taxable in the hands of association of people from the same socio-economic
the donees in the Income Tax Act (s 56 (vi)) wef background with a purpose of solving their common
30.09.98. Business reorganisation was made tax-neutral problems through self-help and mutual help Inequality
wef 1999-00. This helped in unleashing mergers and between men and women is one of the most critical
demergers making business more efficient. disparities in India and in developing world. This is not
only reflected in matters such as education and
There is a need for adoption of a differential opportunities available but also in more elementary
performance-based pay structure for tax administrators, fields of nutrition, health and survival which is basic
with visible reward to performers and punishment to human right.
non-performers. It is suggested that some routine
functions of the tax department may be considered for Self-Help Groups (SHGs) are small voluntary
privatisation to introduce a feeling of competition. The association of people from the same socio-economic
tax department should continuously analyse its background with a purpose of solving their common
utilisation of available human and financial resources, problems through self-help and mutual help.
so as to put them to maximum use. This paper suggests
some steps to free the workforce from routine low In India, usually self-help groups are women-oriented
productivity tasks and their redeployment in more and most of their activities are concentrated towards
productive areas. The tax department should consider savings and credit activities (apart from other activities
setting up a Tax Research Bureau and other focusing on women's empowerment, health and
pan-organisational facilities to continuously improve its educational attainment, etc). There is a common
working. perception in development literature that increased
participation of women in savings and credit activities
Tax reform does not happen on its own but has to be or economic attainment will empower women. Thus,
brought about. Tax reform has to be a continuous self-help groups are seen as an important tool for
process. Collection from direct taxes in India has grown empowering women. There is also the perception that
steadily. From 2008, direct tax collection has overtaken economic attainment will empower women's status in
collection from indirect taxes. However, there is scope family and in the community, giving them more power to
for further improvement. participate in decision-making process.
Q8(a) In a society marked by social inequity and Self-Help Groups (SHGs) are small voluntary
gender inequality women self-help groups are bound to association of people from the same socio-economic
play a marginal role. Do you agree? Give reasons for background with a purpose of solving their common
your answer. 20 Marks problems through self-help and mutual help Self-Help
Self-Help Groups (SHGs) are small voluntary Groups (SHGs) are small voluntary association of
association of people from the same socio-economic people from the same socio-economic background with
background with a purpose of
PUBLIC ADMINISTRATION 2019 PAPER-2
UPSC IAS Mains Exam 2019 PUBLIC ADMINISTRATION wages and working conditions of workers, and helped
(Paper-2) the farmers in times of calamities.
SECTION -A (b) The economic reforms have significantly infringed
the basic values and spirits of the Indian Constitution.
Q1. Answers the following in about 150 words each: 10 Examine. 10 Marks
x 5 = 50 Marks The Indian Constitution, admittedly the longest and
(a) In the text of Arthashastra, ‘the state is neither a most comprehensive document of its kind in the world,
police State nor merely a tax gathering State’. was the result of years of work by a full time
Comment. 10 Marks Constituent Assembly. It was the culmination of a
“In the happiness of his (king’s) subjects lies his long-drawn freedom struggle against the colonial
happiness, in their welfare, his welfare”. To Kautilya, the occupants of the country and was drafted in the
state was to promote the economic welfare of the immediate aftermath of a disturbing communal
people and fully regulate its economic life. The state carnage. Integrity of the country, preservation of
had to give subsidies for the development of trade; political freedom, democracy, rule of law and an
agriculture/ irrigation, mines, cattle welfare etc. independent judiciary, therefore, find pride of place in
the Constitution and are manifestly important elements
According to him, there are guiding principles for the of the new order that India established for itself. Given
state, first, the state should undertake those industries the low level of economic development of the country
which help directly in making the nation self-sufficient and mass poverty that characterized the bulk of its
and self-reliant, and e.g., gold, silver, diamonds and iron people, an equally important aspect of governance
and other metals should be in the charge of the state. ought to have been the economic system that the
Secondly, the activities related to farming, spinning and country adopted for eliminating mass poverty and
weaving, arts and crafts should be left to the individuals securing economic prosperity of the nation. It is
and the right of the ownership should be recognised. In believed by many scholars that the strong ‘state’ that
addition to the above function, the State regulated the was considered necessary and desirable for preserving
the integrity of India got written into the Constitution in measures for raising the level of judicial excellence for
the economic sphere too. In recent years the rates of achieving speedy justices. 10 Marks
growth have begun to slow down and there is demand A number of courts do not have data under the “Date
for further reforms and liberalization to accelerate filed“ column, the most crucial piece for identifying
economic growth and poverty reduction. There is also delays.The quality of data is circumspect and is
the opposite argument, namely the need to arrest these non-uniform between courts, which use different
‘neo-liberal’ policies and go back to the earlier ‘state’ abbreviations, categorisation, and formats which make
dominated economy. The Indian polity will resolve this comparing data between courts an arduous and costly
contentious debate and decide the way forward. Given process.
that both the dismal growth of the pre-1990s and the Significant progress has been made towards
relatively better performance of the post-1990s were computerisation of courts.However, computerisation
achieved broadly under the same Indian Constitution, it must include within its ambit the standardisation of
can be argued that prima facie, the Constitution itself data collection across courts and not merely
did not come in the way of choosing an appropriate computerisation within silos.
economic system or set of policies being adopted by
the government of the day. New technology should be leveraged, and not just
technology for data collection. Artificial Intelligence is
(c) Macaulay’s ideas on Indian Civil Service fast maturing and with further advances in machine
Corresponded to the elite theory of bureaucracy, which learning, standardised data collection can assist judges
continue to persist. Do you agree? Justify. 10 Marks in forming judgements.
The Macaulay Committee which gave India its first
modern civil service in 1854 recommended that the “Case management hearings“ should be introduced
patronage based system of the East India Company after pleadings have been completed by both parties
should be replaced by a permanent civil service based where timelines are set and the court should impose
on a merit based system through competitive entry sanctions against parties that fail to adhere to these
examinations. As Macaulay’s Report said, “Henceforth, timelines. Also, we should have a consolidated
an appointment to the civil service of the Company will “Adjournment Manual“ applicable across all courts
not be a matter of favour but a matter of right. He who which codifies the conditions under which adjournment
obtains such an appointment will owe it solely to his should be granted in order to reduce arbitrariness.
own abilities and industry”. The Report made it clear The high pendency in courts can decline only with
that only the best and the brightest would do for the effective measurement, process overhaul, constant
Indian Civil Service (ICS). The Report stated, “It is feedback, and by equipping the judiciary with
undoubtedly desirable that the civil servants of the technology and modern tools. This alone can enable the
Company should have received the best, the most emergence of a new and modern judicial system with
finished education that the native country affords' '. The the capacity to dispense justice speedily ¬ for, as we all
Report insisted that the civil servants of the Company know, justice delayed is justice denied.
should have taken the first degree in arts at Oxford or
Cambridge Universities. (e) Various commissions have reiterated the crucial
role of the Governor in Indian system of governance,
(d) There has been an opinion that the ethos of Indian but the successive governments have not heeded to
Judicial System continues to be colonial. Suggest make the Governor's office apolitical. Examine with
example. 10 Marks
by an authority subordinate to that by which he court of law for enforcing any condition of his service
was appointed. and for claiming arrears of pay. The power to dismiss at
2. No such person as aforesaid shall be dismissed pleasure any civil servant is not a personal right of the
or removed or reduced in rank except after an President or the Governor, as the case may be. It is an
inquiry in which he has been informed of the executive power which is to be exercised at the advice
charges against him and given a reasonable of the Council of Ministers. Doctrine of Pleasure as
opportunity of being heard in respect of those contained in Article 310, being a constitutional provision
charges: Provided that where, it is proposed cannot be abrogated by any legislative or executive law;
after such inquiry, to impose upon him any such therefore Article 309 is to be read subject to Article 310.
penalty, such penalty may be imposed on the
basis of the evidence adduced during such These provisions have been explained below in detail:
inquiry and it shall not be necessary to give (a) Conviction on Criminal Charge:
such person any opportunity of making The Supreme Court has emphasised under Art.
representation on the penalty proposed: 311(2)(a), the disciplinary authority is to regard the
Provided further that this clause shall not conviction of the concerned civil servant as sufficient
apply — proof of misconduct on his part. The authority is to
(a) where a person is dismissed or removed or decide whether conviction demands the imposition of
reduced in rank on the ground of conduct which any penalty and, if so, what penalty. For this purpose,
has led to his conviction on a criminal charge; the authority has to take into consideration the
or judgement of the criminal court, the entire conduct of
(b) where the authority empowered to dismiss or the civil servant, the gravity of the offense, the impact of
remove a person or to reduce him in rank is the offence on the administration, whether the offence
satisfied that for some reason, to be recorded was of a technical or trivial nature, and extenuating
by that authority in writing, it is not reasonably circumstances if any. This the Disciplinary authority has
practicable to hold such inquiry; or to do ex-parte and without giving a hearing to the
(c) where the President or the Governor, as the concerned civil servant.
case may be, is satisfied that in the interest of
the security of the State it is not expedient to The power has to be exercised by the authority “fairly,
hold such inquiry. justly and reasonably”. Hearing need not be given while
imposing the penalty after conviction on a criminal
3. If, in respect of any such person as aforesaid, a charge, but the right to impose a penalty the duty to act
question arises whether it is reasonably justly. For instance, a government servant convicted for
practicable to hold such inquiry as is referred to parking in the no-parking area cannot be dismissed.
in clause (2), the decision thereon of the
authority empowered to dismiss or remove (b) Impracticability:
such person or to reduce him in rank shall be It is important to know that this clause applies only
final." when the conduct of a government servant is such as he
Therefore, services of any civil servants cannot be deserves the punishment of dismissal, removal or
terminated at pleasure unless the mandatory provisions reduction in rank. Before denying a government servant
of Article 311 have been observed. This doctrine of his constitutional right to an inquiry, the paramount
pleasure is further restricted by the general law of the consideration is whether the conduct of the government
land which empowers any civil servant to file suit in a
is such as justifies the penalty of dismissal, removal or basis of which the satisfaction of the President or the
reduction in rank. Governor was arrived at for the purpose of passing an
order under Article 311(2)(c). In the absence of any
In Tulsi ram Patel case[20]the Supreme court explaining indication about the activities, it would not be possible
the scope of the clause has said “whether it was for the Court to determine whether the satisfaction was
practicable to hold the inquiry or not must be judged in arrived at on the basis of relevant considerations. The
the context of whether it was reasonably practicable to government is under obligation to place relevant
do so. It is not a total or absolute impracticability which material on the basis of which the satisfaction was
is required by cl. (b). What is requisite is that holding of arrived at subject to a claim of privilege under Sections
the inquiry is not practicable in the opinion of a 123 and 124 of the Evidence Act, 1872.
reasonable man taking a reasonable view of the
prevailing situation.” Q3(a) “Strong PMO is antithesis to the feature of
collective responsibility of Council of Ministers”.
The Supreme Court further held that the reasonable Examine the issues in relation to the position of PMO
practicability of holding an inquiry is a matter of via-a-vis Council of Ministers in the light of this
assessment to be made by the disciplinary as he is the statement. 20 Marks
best judge of the situation. Historically, the PMO had a modest origin. Under
Jawaharlal Nehru, the office used to be headed by a
(c) Reasons of Security: joint secretary while the bulk of the coordinating work
Under (c) the satisfaction has to be that of the President was carried out by the all powerful cabinet secretary. It
or the Governor as the case may be. The satisfaction was only after political complexities arose in the
must be with respect to the expedience or inexpediency 1960s—powerful and ambitious cabinet ministers; chief
of holding an inquiry in the interest of the security of the ministers defying the whip of the Union government and
State. Security of State being of paramount importance a series of crises—that the PMO became a force to be
all other interests are subordinate to it, “Security of reckoned with. The PMO of later years had its actual
State may comprise a situation of disobedience and origins under Lal Bahadur Shastri, who created the
insubordination on the part of members of the police Prime Minister’s Secretariat. Since then, the office has
force”. In the Tulsi ram Patel case the Supreme Court served as the nerve centre of governmental control.
has clarified that the question is not whether the Under Singh, the PMO lost much of its effectiveness.
security of the State has been affected or not, for the
expression cl(c) is “ in the interest of the security of Under the Modi government , a strong PMO-led by a
State”. The interest of the security of the State may be bureaucratic heavyweight as his principal secretary.
affected by actual acts, or even the likelihood of such This is necessary not only to implement his ideas
acts taking place. So the Court has observed “ What is effectively but also to minimize official resistance to his
required under cl.(c) is not the satisfaction of the diktat.
President or the Governor, that interest of the security of
the State is or will be affected but his satisfaction in the Two, even more importantly, he needs to streamline the
interest of security of State, it is not expedient to hold cabinet system. The groups of ministers and
an inquiry as contemplated by Article 311(2)”. empowered groups of ministers can be dispensed with
as they are the relics of a government where the prime
The government is under obligation to disclose to the minister was not in a position to make decisions. The
court the nature of the activities of the employee on the number of cabinet committees too should be kept to a
minimum. The time has come to tilt the balance will be taken to emphasize the development of proper
between the cabinet system and the PMO towards the ethics, commitment to work and empathy for the
latter. vulnerable sections such as differently abled, senior
citizens, SCs, STs etc.. The competency framework will
Three, the prime minister needs a coordinating device to be used to ensure that civil servants have the requisite
manage his relations with chief ministers. This is knowledge, skills and attitude to effectively perform the
perhaps the most delicate task of all and the PMO will functions they are entrusted with. The success of
have an essential role in this. training will lie in actual improvement in the
performance of civil servants.
(b) Capacity issues relating to employees have
hampered the implementation of several government Foreign training fills a crucial gap in the training system.
programmes. Trace the reasons in the context of the It provides opportunities for officers to gain exposure to
provisions of the National Training Policy, 2012. 20 the latest thinking on different subjects in some of the
Marks leading institutions of the world. It exposes them to
The National Training Policy was issued in April 1996 experiences and best practices of different countries
through a set of Operational Guidelines for the with differing models of development and governance.
development of the human resources of the Since 2001, the scheme of Domestic Funding for
Government. This followed the process of liberalization Foreign Training (DFFT) has become the main source
of the economy through de‐licensing and deregulation under which officers are now sent for foreign training.
began in 1991 and the 73rd and 74th Amendments to
the Constitution, which took effect in 1993 thereby A National Training Council, chaired by the Minister,
creating the third tier of Government at the Panchayat Ministry of Personnel, Public Grievances and Pensions,
and Municipal levels. shall be constituted for giving overall direction for the
implementation of this Policy. For monitoring the
Competencies encompass knowledge, skills and implementation of the National Training Policy and
behavior, which are required in an individual for taking appropriate steps to facilitate such
effectively performing the functions of a post. implementation, there shall be a Committee chaired by
Competencies may be broadly divided into those that the Secretary, Ministry of Personnel, Public Grievances
are core skills which civil servants would need to and Pensions and consisting of the Secretaries of the
possess with different levels of proficiency for different Departments of Urban Development and Rural
functions or levels. Some of these competencies Development, Administrative Reforms & Public
pertain to leadership, financial management, people Grievances, the Director of the LBSNAA and three
management, information technology, project Representatives each of the State and Central Training
management and communication. The other set of Institutions (on a 2 year rotational basis) with Joint
competencies relate to the professional or specialized Secretary (Training) as the Member Secretary. This
skills, which are relevant for specialized functions such Committee will meet bi‐annually.
as building roads, irrigation projects, taking flood
control measures, civil aviation, medical care, etc. (c) The strategy to deal with the non-performing assets
of banks may lead to overburdened taxpayers. Examine
The objective of training will be to develop a the role of the government to protect the interests of
professional, impartial and efficient civil service that is both. 10 Marks
responsive to the needs of the citizens. In doing so, care
Amid speculation that the government may have whereas, if banks file insolvency application, new
invoked a hitherto unused section to overrule the investor would be willing to take over the defaulting
Reserve Bank of India (RBI) on the pretext of "public entities only with 'huge haircuts' on debt.
interest", the central bank has shot back with its own
definition of "public interest". A bank is trying to recover Q4(a) Considerable attention has been paid to the
loans from borrowers, it is actually trying to get back restructuring of the administrative systems at the
depositors' money and it is not a case of "ruthless big Central and local levels, but very few reforms have
bank" versus "hapless borrower". been undertaken at the State level. What steps would
you suggest to rectify it? 20 Marks
A correct portrayal of the situation would be: public The central government now offers states the
interest (i.e. depositors and taxpayers) versus opportunity to shape their own destinies. To this end, it
borrowers' interest. It is speculated that the outlines the reforms that are within their power in areas
government, in certain cases where it differed with the of agriculture, industry, urban development,
bank, has invoked Section 7 of the RBI Act that infrastructure, health, and education.
empowers the government to consult the RBI Governor The national reforms have shaped the economies of
and direct the RBI to act on issues that it considers different states in India. It shows that, unlike China,
necessary in public interest. where growth has been uneven across regions, growth
One of the vexed issues between the two is related to acceleration in India has successfully penetrated every
RBI's circular on stressed assets wherein the RBI has state. Each state has grown faster during the last
ordered banks to initiate bankruptcy proceedings decade than any other decade in the post-independence
against all large accounts above Rs 2,000 crore if a era. Some of the poorest states, notably Bihar and
resolution plan was not met in 180 days. Orissa, have been among the fastest growing states.
Here, the government wants some relief for the stressed Reforms have also helped bring poverty down in every
assets in the power sector, saying it is different from the single state and across all major social and religious
other sectors as there are several external factors groups. The liberalization by the central government
beyond the promoter's control that turned it into a now offers states the opportunity to shape their own
defaulter and should be given a special consideration. destinies. To this end, it outlines the reforms that are
within their power in areas of agriculture, industry, urban
However, the RBI maintains that the recognition of development, infrastructure, health, and education. It
default or accounting for deterioration in the quality of draws on the experience of states that have
asset should be independent of the reasons for such successfully carried out some of these reforms.
default or deterioration.
(b) It is observed that non-functioning of District
The proponents of this line of thought argue that where Planning Committees is preventing the convergence of
the borrowers are affected by external factors beyond rural and urban planning needs. Do you agree? Justify.
their control, they should be treated as 'genuine' 20 Marks
defaulters and some leniency in prudential norms is District Planning Committee (DPC) is the committee
warranted. This is a fallacy. created as per article 243ZD of the Constitution of India
Another fallacy is the claim by the management of at the district level.. for planning at the district and
defaulting borrowers that the restructuring plan below. The Committee in each district should
proposed by them will result in 'zero haircut' for banks; consolidate the plans prepared by the Panchayats and
the Municipalities in the district and prepare a draft development committees, which consist largely of
development plan for the district. All States and Union elected representatives of legislatures and Members of
Territories except Meghalaya, Mizoram, Nagaland, J&K Parliament and some nominated members, sometimes
and NCT of Delhi are required to set up District Planning including elected representatives of Panchayats.
Committees in accordance with Article 243ZD of the
Constitution of India. In most States DPCs are yet to (c) The police-public interface is punctuated with
function as envisaged in the Constitution. They neither distrust and fear. Suggest how the police can reform
consolidate nor prepare draft district developmental its image in the eyes of the public. 10 Marks
plans. Very few States are preparing district plans even Because police are the most visible face of government
though some of them allocate funds to the district power for most citizens, they are expected to deal
sector. In several States, where there is no separation of effectively with crime and disorder and to be impartial.
the budget into District and State sectors, allocation of Producing justice through the fair, and restrained use of
funds to Panchayats does not match the legislative their authority.
devolution of functions to them. Funds given to
Panchayats are tied down to schemes, thus limiting the Following are some key issues and recommendations
scope for determining and addressing local priorities that were identified during the meeting, along with
through a planning exercise. In this regard, CSSs other promising practices, that can be used to help
pertaining to functions devolved to Panchayats now police departments and their communities to develop
constitute the largest element of such tied funds. Actual collaborative strategies for moving forward.
provision in State budgets also differs from the gross (1) Controversial uses of force and other incidents
outlays communicated. Some States do not provide can damage relationships between police and
matching funds to Centrally Sponsored Schemes, their communities.
reducing the actual flow of funds for such Schemes to (2) Transparency is essential to positive
local governments. Planning is of poor quality and is police-community relationships. When a critical
generally a mere collection of schemes and works, incident occurs, agencies should try to release
many of the works suggested by elected panchayat as much information about it as possible, as
members themselves is an ad-hoc manner. Integration soon as possible, so the community will not
of Gram and Taluk Panchayat plans into the District feel that information is being purposefully
plan, even when done, also tends to be mere summation withheld from them.
and not a synergistic integration. This is further (3) Many civil rights leaders and police executives
distorted by placing funds with MPs and MLAs, whose also recommend that officers at all levels
utilization falls outside the pale of any planning. Since receive training on diversity, implicit bias, and
the so-called planning exercise follows certain chain of cultural competency.
events at the State level as regards finalisation of (4) Personal interactions between police officers
budgets and plans, its quality suffers seriously for lack and community members build mutual trust,
of sufficient time. Thus detailed guidelines regarding which is essential to addressing neighborhood
consultation, consideration and decision making at problems and reducing crime. Programs and
different levels remain largely on paper and the planning initiatives to foster these interactions include:
process does not stir meaningful debate in ● Adult and youth police academies,
Panchayats.In the absence of a well functioning District ● Sports teams or “Police Athletic Leagues,”
Planning machinery, taking decisions on the priorities of ● Ride-alongs with officers,
a district is often left to officials, guided by district
● Police involvement in local school activities, deliberative democracy is generally seen as some form
and of an amalgam of representative democracy and direct
● Police participation in (or police-led) democracy, the actual relationship is usually open to
community events. dispute. Some practitioners and theorists use the term
(5) Police agencies need to present policing as a to encompass representative bodies whose members
profession. Departments should work to recruit authentically and practically deliberate on legislation
people who want to become officers based on a without unequal distributions of power, while others use
realistic understanding that the large majority the term exclusively to refer to decision-making directly
of police officers’ time is spent addressing by lay citizens, as in direct democracy.
community requests and that actual “law
enforcement” is a much smaller percentage of (b) “The RTI has started its journey, but is far from its
the time. destination.” In the view of the statement, examine the
present’s status of the RTI movement. 10 Marks
The right to information law meant to empower Indians
and bring transparency in governance appeared to be
losing steam with the number of queries going down
mainly because of stone-walling of information by
officials and slow disposal of appeals, studies based on
government data show.
The information watchdog, the Central Information
Commission (CIC), in a report released in March, said
the number of applications seeking information from
Central government departments has gone down for the
first time since the groundbreaking law was enacted in
2005.
SECTION -B RTI users say the first roadblock in most cases are the
Q5. Answer the following in about 150 words each: 10 information officers, who either don’t respond or provide
x 5 = 50 Marks incomplete information.
(a) The evidence suggests that the dream of The applicant will first have to file an appeal with the
deliberative democracy could not be realized in first appellate authority, an officer senior to the
practice at the grassroot level. Evaluate the information provider in the same department. Only after
impediments in the functioning of Gram Sabha. 10 the authority had decided on appeal, a second appeal
Marks can be lodged with the information commission. The
Deliberative democracy or discursive democracy is a RTI users say by the time information commissions
form of democracy in which deliberation is central to decided on an appeal — average of two to five years —
decision-making. It adopts elements of both consensus the information officer is transferred out.
decision-making and majority rule. Deliberative
democracy differs from traditional democratic theory in Government data from the CIC and other information
that authentic deliberation, not mere voting, is the commissions show that penalty imposed on errant
primary source of legitimacy for the law. While
officers for not responding on time or providing governing institutions across a country. It has provided
incomplete information was going down. for more autonomy for foundation hospitals. It has
provided for a structural framework where service
Another concern highlighted by activists are the providers in a local region coordinate with one another
commissions, set up to safeguard RTI, as the pendency while executing their schemes. It has provided for a
of cases are rising and quality of the orders going down more comprehensive development in local areas as
primarily because many posts of commissioners financial management has become more active with
remaining vacant for long periods. better forged relations with the centre. It has provided
for a better networking arrangement through the various
Last year, the Centre had proposed new RTI rules agencies operational in a local area.
allowing an applicant to withdraw his appeal and
abatement of an appeal if the applicant dies. (d) Effective ‘Performance Management System’ needs
to precede ‘taking deadwood out’ from bureaucracy.
This is dangerous considering that RTI applicants are Comment. 10 Marks
regularly attacked by those whom they intend to expose. The term ‘Performance Management’ is often confused
Till March this year, 67 RTI activists have died and 385 with ‘Performance Measurement’.
cases of assaults have been reported, Nayak said. The following definitions will help in distinguishing
between these concepts.
Despite increasing hurdles for RTI users, both the ● ‘Performance’ refers to the ability of the
government and activists agree that the RTI has government to acquire resources and put these
changed governance in a big way. to efficient (input-output relationship) and
effective (output outcome relationship) use to
(c) The concept of new localism arrangement may achieve the desired outcomes and impacts.
defeat the very purpose of local self-governance. Do ● ‘Performance measurement’ tracks processes
you agree? Justify. 10 Marks (such as compliance to formal rules), results
New Localism refers to an arrangement where urban (such as use of inputs, outputs produced or
local governance is seen provided with a uniform policy goals achieved) or more complex ratios
framework under an order of central government. New (such as efficiency, productivity, effectiveness
Localism evolved in the U.K in order to provide a or cost effectiveness)4. It also involves the
uniform agenda and framework for local governance design of balanced and well calibrated key
throughout the nation. It was observed that in the performance indicators, supported by a good
absence of some uniform framework, the local Management Information System.
governance institutions developed various disabilities ● ‘Performance management’ is a broad system
and there was widespread inconsistency in regards to of defining and measuring performance,
the functioning of such institutions. Some concerns besides developing incentives for individuals
have been raised in regards to the imperatives coming and organizations. It touches the processes of
from the central govt. for the local govt. institutions and planning, implementing, reviewing, evaluating
it has been observed that in such an arrangement and reporting to gauge the impact of policies
decentralisation will be forced to the reverse and take a and programmes. It promotes growth and
backseat leading to heavy centralisation thus defeating learning, and recognizes that capacity building
the very purpose of local self governance. It has been and improvement in individual performance
applied as a method of coordination between local
leads to better achievement of organizational Some of the noteworthy features of the programme
goals. are:
Performance management requires a performance ● Full Central funding, with 50% of the cess on
information system that can be audited and related to High Speed Diesel being earmarked for this
financial management and policy cycles. Its elements programme.
include planning, monitoring, capacity building, ● Preparation of Master Plans and Core Network
performance rating and a system of rewarding good for Rural Roads for all the Districts and Blocks,
performance. These elements of a comprehensively identifying the unconnected habitations and
designed performance management system are given in proposing the most cost-effective routes for the
the following figure as an adaptation from the tenth purpose.
report of the Second Administrative Reforms ● Design and Specifications as contained in the
Commission. Rural Roads Manual (RRM, IRC SP:20),
published by the Indian Roads Congress (IRC).
(e) All weather rural connectivity scheme to even ● Appointment of a dedicated State Level Agency
unconnected rural habitations has the potential to in all States with overall responsibility for rural
transform the rural economy. Do you agree? Justify. 10 road planning, programme execution and
Marks management.
Rural Road connectivity is a key component of rural ● Appointment of programme implementing
development by promoting access to economic and agencies, by all States, typically Public Works
social services and thereby generating increased Departments (PWDs) or Rural Engineering
agricultural incomes and productive employment Organisations (REOs).
opportunities. It is also a key ingredient in ensuring ● Independent State Technical Agencies (STA)
poverty reduction. commissioned by MoRD to vet designs and
estimates.
It was against this background of poor connectivity that ● Use of competitive tendering by the
the Prime Minister announced in 2000, a massive rural implementing agencies of all works on the
roads programme. The Prime Minister’s Rural Road basis of a Standard Bidding Document (SBD).
Programme (Pradhan Mantri Gram Sadak Yojana, ● Execution of the works within a period of 9-12
PMGSY) set a target of: months.
● Achieving all-weather road access to every ● A Defects Liability and maintenance period of 5
village/habitation with a population greater years specified in the Contracts for the roads
than 1000 by 2003 constructed under the programme, with funds
● Providing all-weather road access to all for maintenance being provided by the States.
villages/habitations of population greater than ● A central on-line web-based financial and
500 people [250 in case of hill States project monitoring system.
(North-Eastern states, Sikkim, Himachal ● A 3-tier Quality Management System.
Pradesh, Jammu & Kashmir and Uttaranchal), ● Operational management at Central level by the
the desert areas and tribal areas] by the end of National Rural Roads Development Agency
the Tenth Five Year Plan, i.e., 2007 (NRRDA).
The Ministry of Rural Development (MoRD) has been
entrusted with the task of organising the programme. Q6(a) The office of the District Collector has merely
become a bureau for funneling government schemes,
collecting statistics and an officer on attendance for as the Patwari to handle revenue functions as
unending VIP duties. Critically examine its role in the well.
light of the recommendations of the Second 6. The State Revenue Law has created the `Land
Administrative Reforms Commission. 20 Marks Revenue' machinery consisting of functionaries
Though major activities of the Rural Development such as the Commissioner, the Collector,
department stand transferred to the PRIs/ULBs, in some Assistant Collector, Tahsildar, Revenue
States, the Collector still continues to be the nodal Inspector, Patwari etc
authority for some programmes. 7. The system of land records management varies
from State to State depending upon their
Under the National Rural Employment Guarantee Act, historical evolution and local traditions.
the Collector has been designated as the District 8. Executive magistracy and maintenance of Law
Programme Coordinator in some of the States. and Order, Internal Security, Prisons, Remand/
Juvenile Homes
The planning functions in a district have been given to 9. Through powers given to him under Sections
DPC/MPC, the Collector coordinates with departments/ 106 to 124 of the Cr.P.C., he and the magistracy
agencies involved in execution of various works. The of the district can bind the people to maintain
Commission noted that some Collectors were not even peace, security and good behaviour
aware of all the laws under which they are empowered. 10. He also exercises powers for maintenance of
public order and tranquility through Sections
The Collector is also the Chairman of a large number of 129 to 148 of the Cr.P.C.
Committees at the district level. 11. Deployment and movement of armed forces in
the district in times of emergency and crisis is
The main functions of the Collector may now include: done under his guidance.
1. Land and Revenue administration, land 12. Licensing and regulatory functions with respect
acquisition, custodian of government to various special laws pertaining to Arms,
properties, registration, recovery of public Explosives, Cinemas etc.
demand
(b) Minimal accountability being the dominant norm in
the political system, the Lokpal can only be an ideal
2. The land revenue administration in a State institution with limited effectiveness. Explain. 20
operates at four administrative levels district, Marks
sub-division, tehsil/taluka/block and village. The problem of corruption is neither new nor it is
3. The Collector/DC is the head of the revenue restricted to developing countries only. Its nature can be
administration at the district level and is the extremely diverse and thus the context and relevance of
custodian of government land and properties the problem varied widely between countries and time
under his jurisdiction periods. India is the largest democracy in the world, it
4. At the village level, the States usually have a continues to struggle on a daily basis to fight corruption
designated revenue official called Patwari/ in every field at both the national and local levels.
Revenue Karamchari. Political, bureaucratic, corporate and individual
5. In some States, the Executive Officer of the corruption in India are major concerns. A 2005 study
Gram Panchayat or GP Secretary may double up conducted by Transparency International in India found
that more than 55% of Indians had first-hand experience
of paying bribes or influence peddling to get jobs done (c) ‘Sevottam Scheme’ had great potential to reform
in public offices successfully. The history of corruption service delivery, but opportunity is frittered away.
goes back to ancient times. Its nature can be extremely Comment. 10 Marks
diverse and thus the context and relevance of the Sevottam is an assessment - improvement model that
problem varied widely between countries and time has been developed with the objective of improving the
periods. The problem has become more focused in quality of public service delivery in the country. The
recent decades with an increase in global cooperation framework enables implementing organizations to
for achieving economic and social growth in all undertake a systematic, credible and authenticated
countries since the 1960s. Although the former Prime self-assessment (or ‘gap analysis’) for citizen-centric
Minister Narasimha Rao in the 1990’s took the first service delivery. Using this analysis, practical solutions
steps towards putting an end to corruption and tried to are gradually and systematically incorporated into the
make all government officials more accountable for organization’s day-to-day routine thereby ensuring
their actions, there is still much work that needs to be sustainable results.
done to reform the roots of political corruption in India. There are four broad ways in which the Sevottam
model can be used:
A Lokpal is an anti-corruption authority or body of ● As a self - assessment tool by organizations
ombudsman who represents the public interest in the already motivated to improve service delivery
Republic of India. The Lokpal is responsible for ● As a requirement standard
enquiring into corruption charges at the national level ● As a benchmark assessment process to be
while the Lokayukta performs the same function at the established
state level. ● As a rating model to recognize and reward
organizations that are doing commendable
Lack of Independence Most of our agencies like CBI, work in service delivery
state vigilance departments, internal vigilance wings of Sevottam has been launched as a certification scheme
various departments, Anti-corruption Branch of state which provides for the award of the Sevottam symbol of
police etc are not independent. excellence to public service organizations that
implement and are able to show compliance to a set of
Powerless Some bodies like CVC or Lokayuktas are management system requirements that have been
independent, but they do not have any powers. They specified in a specially created standard document. This
have been made advisory bodies. They give two kinds of standard, known as IS 15700:2005, was developed by
advice to the governments – to either impose the Bureau of Indian Standards (BIS) based on the
departmental penalties on any officer or to prosecute objectives of Sevottam. The standard takes into
him in court. account unique conditions of service delivery by Public
service organisations in India and the sectoral and
The biggest lacuna is the exclusion of the judiciary from regional variations in service delivery standards. It
the ambit of the Lokpal. There are no adequate offers a systematic way to identify weaknesses in
provisions for appeal against the Lokpal. There is a long specific areas and rectify them through systemic
way to go to ensure transparency and crusade against changes and process reengineering. India is among the
corruption are still on and yet to reach its destination. first countries in the world to have a Quality Standard
for public service delivery.
Q7(a) The National Policy on Disaster Management than continuing with a “business as usual” attitude. In
envisages a paradigm shift from hitherto reactive the event of a sudden disaster, the restoration of
post-disaster relief centric regime to more proactive disrupted services, the effective and efficient delivery of
and enabling environment. Examine the responses of services to the disaster-affected communities and the
State Governments in this regard. 20 Marks setting up of a transparent mechanism of ensuring that
The National Policy envisaged a paradigm shift from the the disaster affected people receive the relief
hitherto reactive post disaster relief-centric regime to a entitlements which are intended for them have to be
more proactive and enabling environment of necessarily integral components of a good governance
strengthened disaster preparedness, mitigation and and responsive administration at the district, state and
improved emergency response capacities of all national levels. With the good practice examples of
stakeholder groups. Mandated by the enactment of the deployment of information technology innovations like
Disaster Management Act 2005, institutional biometrics and smart cards in humanitarian assistance
mechanisms like the National Disaster Management in recent disasters in some of the countries affected by
Authority (NDMA) chaired by the Prime Minister of India disasters, our administrative machinery has to explore
at the national level, State Disaster Management ways of ensuring efficiency and effectiveness in the
Authorities (SDMAs) chaired by the Chief Ministers of delivery of services, minimising inordinate delays, red
the respective State Governments at the state level and tape and extraneous pressures of excluding real victims
District Disaster Management Authorities (DDMAs) and accommodating false claimants.
chaired by the respective District Collectors and
co-chaired by the Sabhapatis of the Zilla Parishads at (b) Efforts to strengthen State Finance Commissions
the district level were established. have faced apathy of State Governments over the
years, which has also affected the successive Central
However, in many cases, these institutions are not Finance Commissions in recommending appropriate
active and operational except for a few honorable fiscal transfers to local bodies. Substantiate the
exceptions. Similarly, even though the Disaster answer with example. 20 Marks
Management Act 2005 stipulated the setting up of the Since 1993-94, most of the states have constituted
Disaster Response Fund and the Disaster Mitigation three to four commissions keeping in line with the
Fund at national, state and district levels, only the constitutional requirement. A 2013 report by think-tank
National and State Disaster Response Funds have National Social Watch pointed out that Jharkhand did
become operational till now. The increasing frequency not appoint a SFC even after 13 years of the state
and damage to property, assets and infrastructure formation. The state finance commissions experience
caused by recurring disasters makes it imperative that constraints due to various reasons such as lack of
the provisions of the Disaster Management Act 2005 follow up from the local bodies, apathetic attitude of the
are enforced in letter and spirit. states, lack of clarity about the role and functions of
local bodies, and deplorable conditions of the finances
Good governance and responsive administration have to at municipal and panchayat levels. Another major issue
be seen as non-negotiable features of a dynamic is with the composition of SFCs. The SFCs are mainly
process of effective interface with the communities at dominated by the presence of bureaucrats rather than
risk from the devastating impact of disasters. This academicians. Unlike the Union Finance Commission
process must be driven by transparency and (UFC), the SFCs face dearth of reliable data. The local
accountability of public functionaries and their governments do not have a proper budgetary system
ownership of the transition to the paradigm shift rather and hence SFCs face problems while collecting data
and consequently assessing the financial condition of (c) Accountability of regulatory bodies would address
the local government. There is erroneous belief among the problem of over-regulators and help make them
several politicians, policy makers and even experts that truly facilitators. Analyze the present status of
SFCs and the local governments they deal with have an regulators and suggest measures to induce
inferior constitutional status when compared to the accountability in the mechanism. 10 Marks
UFC. The Union Finance Commissions have not Independence must go hand in hand with accountability.
analysed SFC reports properly and have not taken Along with independence, all regulators need to be
adequate steps to strengthen SFCs and address the accountable. Appropriate mechanisms are required to
problem devolution of finances to local bodies. make independent regulatory agencies accountable.
RBI Recommendations (2009) for strengthening SFCs: Accountability is of two types: political and legal.
1. Provide a uniform template to the SFCs so that Political accountability involves reporting to the line
there are not constituted in a casual manner ministry/legislature which may have a special
2. Incentivise the State Governments to set up a committee to scrutinise and debate its contents. Legal
data warehouse for the local bodies. accountability enables those aggrieved by a regulatory
3. Set up a central pool of fiscal experts from decision to issue a formal complaint or appeal.
which the State Governments may select at
least one member of SFC. Parliamentary supervision seems to be the ideal form of
4. Provide a timeline to the State Governments in political accountability as accountability to the line
link to the release of share in central taxes for ministry can often be associated with pressure being
making progress in the arena of SFC. exerted on the regulator to favour utilities being
In line with constitutional requirements, the states operated by the ministry. Similarly, vested interest
should constitute SFCs in a periodic manner. It is groups often find it easier to effectively pressurise the
important to acknowledge the role of SFCs. It is regulator through the line ministry rather than through
important to rectify the notion the SFCs are less the Parliament. Therefore, replacing the line ministry‟s
important the UFC and that local governments are control by Parliamentary supervision across the board is
insignificant. The Constitution treats a local government necessary.
on a par with a State government, especially when it
comes to sharing of financial resources.The information In general, regulatory bodies in India are required to
of responsibilities and funds allocated to local bodies submit their annual reports and/or audited accounts to
should be recorded properly so as to provide reliable the legislature. However, in most such cases, regulatory
data to the SFCs. The composition of SFCs should bodies are made accountable to the legislature through
incorporate representatives from the intellectual civil the line ministry. Legislative oversight over the
society/academicians and not solely comprise of regulator‟s performance does not seem to be effective
bureaucrats.To make India a sustainable and inclusive as annual reports submitted by regulators are hardly
country, it is important that the UFC reduce inter-state discussed with any seriousness. The regulator‟s
disparity and then only SFCs can reduce intra-state actions are questioned only when there is an impending
disparity by using horizontal distribution criteria. It is an crisis or a serious debate in the country. In fact, in most
urgent need to strengthen the SFCs to promote such cases it is the line ministry that is questioned, and
cooperative federalism and strengthen participatory not the regulator. Such misperception enables the line
democracy. ministry to interfere in the functioning of the regulatory
body.
Q8(a) ‘NITI Aayog’ has changed the way India forces cannot substitute state police and should be
strategized for economic development, but its deployed only in emergencies.
effectiveness is yet to be seen, especially when its
financial powers are far less than its predecessor. It said the central government has formulated standard
Analyze. 20 Marks operating procedures (SOPs) for deployment of CAPFs
The Aayog, unlike its predecessor Planning and according to it, the central forces would be able to
Commission, does not have financial powers nor any meet more pressing commitments like guarding
say in preparing annual plans of the states. The Aayog borders, fighting insurgency, anti-national operations
should be given financial powers to help address and in related situations which need immediate
regional imbalances. The Aayog would be given some mobilisation of forces.
role in allocating development expenditure to states,
then that would also "promote co-operative and The ministry, in the communication, said the state
competitive federalism". The Planning Commission governments often make requests to the Centre for
used to play a key role in deciding the expenditure plans deployment of CAPFs even for occasions where state
of central ministries as well as that of states. should normally be in a position to take all security
measures from their own resources by dispatching
NITI Aayog is a government think tank and it works for police and state armed police.
the government. It helps the government to get new
ideas and make policies. It also helps the government "State governments are reluctant to de-induct CAPFs
with feedback from the ground that it collects. In that and keep requesting for extension which should not
sense, NITI Aayog is independent to do all of these ordinarily be made unless there are adequate security
things on the basis of objective criteria. But of course, reasons for their extension.
you cannot expect NITI Aayog to be overly critical of the
government. Whatever feedback we need to give, we "Deployment of CAPF companies has a cost associated
can give without going to the public. NITI Aayog’s with it and the state governments are required to pay
autonomy is like that of the Reserve Bank of India, the charges as laid down in the government policy.
which is also part of the macro team. We all are Incidentally, there are significant outstanding amounts
autonomous and independent, but we do have to against the states and Union territories," it said.
maintain dignity and honour. We have never shied away
from using or publishing data as we think is right. In the (c) Performance grants devolved by Finance
water index that we brought out, we said that India is Commission of India have increased the Financial
facing acute water shortage. accountability of the local bodies. Elaborate. 10 Marks
The 15th FC, in its report to be submitted by October
(b) Even though the law and order administration is a 2019, is likely to propose giving more financial powers
State subject, it is paradoxical that the Central to the panchayats and urban local bodies and their
agencies- NIA or paramilitary forces under the Union greater accountability - an issue that was not mentioned
Government-have restricted the powers of State in the terms of reference (ToR), Business Standard has
Governments. Discuss. 20 Marks learnt. The ToRs mandated by the Constitution for the
Amid a tussle with the West Bengal government over the FC recommend the distribution of the proceeds of
deployment of forces in Darjeeling, the Union Home divisible pool of taxes between the union and the states
Ministry has told state governments that paramilitary and the allocation among states. These principles
should govern the grants-in-aid of the revenues of the
states out of the Consolidated Fund of India and steps allocation is 4.31% of the divisible pool. This is an
needed to augment the funds of a state to supplement increase over the grants for local bodies in 2019-20,
the resources of panchayats and urban local bodies. which amounted to 3.54% of the divisible pool (Rs
87,352 crore). The grants will be divided between
The total grants to local bodies for 2020-21 has been states based on population and area in the ratio 90:10.
fixed at Rs 90,000 crore, of which Rs 60,750 crore is The grants will be made available to all three tiers of
recommended for rural local bodies (67.5%) and Rs Panchayat- village, block, and district.
29,250 crore for urban local bodies (32.5%). This
UPSC Mains 2018 Public Administration Optional Works, Social Security, Justice, Welfare, etc. These
Categorised Analysis (Paper-1) services require not only POSDCoRB techniques but
SECTION "A" also have important specialised techniques of their own
which are not covered by POSDCoRB techniques. For
Q1. Answer the following questions in about 150 words example, if you take Police Administration it has its own
each: techniques in crime detection, maintenance of Law and
Q1. (a) "The scope of the discipline of Public Order, etc., which are much and more vital to efficient
Administration is determined by what an police work, than the formal principles of organisation,
administrative system does." Does it mean that the personnel management, coordination or finance and it is
scope of this discipline is boundaryless ? Explain. the same with other services too.
(Introduction) The first provides the basis for the second. One cannot
conceive of any discipline without thinking or deciding.
The POSDCORB view Thus Public administration is a broad-ranging and an
Gullick sums up the scope of the subject by the letters amorphous combination of theory and practice.
of the word POSDCoRB which denote: Planning,
Organisation, Staffing, Directing, Coordinating reporting (b) "The concepts of rationality and efficiency are
the Budgeting. Planning means working out in broad intertwined in the bureaucratic analysis of
outline the things to be done, the methods to be Max Weber." Comment. (Administrative Thought)
adopted to accomplish the purpose. According to The rationalization process is the practical application
Gullick the POSDCoRB activities are common to all of knowledge to achieve a desired end. It leads to
organisations. They are the common problems of efficiency, coordination, and control over both the
management which are found in different agencies physical and the social environment. Weber's general
regardless of the nature of the work they do. theory of rationalization (of which bureaucratization is
but a particular case) refers to increasing human
The Subject Matter View mastery over the natural and social environment. In turn,
We all know that public administration deals not only these changes in social structure have changed human
with the processes but also with the substantive character through changing values, philosophies, and
matters of administration, such as Defence, Law and beliefs. Such superstructural norms and values as
Order, Education, Public Health, Agriculture, Public individualism, efficiency, self-discipline, materialism,
and calculability (all of which are subsumed under policy solutions to focus more on brokering, negotiating
Weber's concept of zweckrational) have been and resolving complex problems in partnership with
encouraged by the bureaucratization process. citizens.
Bureaucracy and rationalization were rapidly replacing (d) "A leader is a people's developer" (Napoleon).
all other forms of organization and thought. They Which aspects of subordinates' development can be
formed a stranglehold on all sectors of Western society: positively influenced by a leader ? Discuss.
Rationalization is the most general element of Weber's (Administrative Behaviour)
theory. He identifies rationalization with an increasing A leader should give special attention to the individual
division of labor, bureaucracy and mechanization .He needs of his employees. The crucial part of subordinate
associates it with depersonalization, oppressive routine, development is empowering employees and positively
rising secularism, as well as being destructive of influencing them so that they can maximize their overall
individual freedom. potential.
1. A leader must set goals for subordinate
(c) “New Public Service approach is an employees
improvement over its predecessor, New Public 2. A leader must try to present himself as a role
Management." Discuss. (introduction) model for subordinate employees, it is the best
The New Public Service (NPS) approach starts with the way to connect.
premise that the focus of public management should be 3. Leaders must fix a consistent work ethic.
citizens, community and civil society. In this conception 4. A leader must create a positive executive
the primary role of public servants is to help citizens presence within the workforce
articulate and meet their shared interests rather than to 5. A leader must acknowledge the efforts of your
control or steer society. This is in sharp contrast to the employees.
philosophical premise of the NPM approach in which
transactions between (e) “Herbert Simon's book Administrative Behavior
public managers and customers reflect individual presents a synthesis of the classical and behavioural
self-interest and are framed by market principles. It is approaches to the study of Public Administration."
also distinct from the old public administration Explain. (Administrative Behaviour)
approach where citizens related to the bureaucracy as The publication of Simon’s seminal work Administrative
clients or constituents and were treated as passive Behaviour in 1947 led to further impetus to the
recipients of top- down policy making and service behavioural movement in public administration. In this
delivery mechanisms. book he advocated behavioural research in
administration. While highlighting “administrative
The New Public Service model approaches public behaviour” Simon observed that it is “a part of the
management from the vantage point of democratic behavioural sciences and the study of public
theory, premised on the notion of an active and involved administration should involve the study of individual and
citizenship. Citizens look beyond narrow self-interest to collective human behaviour in administrative
the wider public interest and the role of public officials situations”. He developed two interrelated concepts:
is to facilitate opportunities for strengthening citizen ‘bounded rationality and satisficing’ which basically
engagement in finding solutions to societal problems. constitute the core of his entire intellectual activity.
Public managers need to acquire skills that go beyond These two concepts primarily focused on the limits of
capacity for controlling or steering society in pursuit of
human and organizational gathering and processing of is critical rather than objective, suggestive rather
information. than conclusive."
These ideas discarded the concept of economic man (b) “The Phenomenological Approach advocated by the
and provide impetus to the behavioural study of New Public Administration has obstructed the path of
organizations. In his book, he makes the assumption theory building in Public Administration." Comment.
that administration can be reduced to science ‘simply by (Introduction)
applying logic to organization and decision making’. He Though New Public Administration brought public
maintains that to be scientific “the study of administration closer to political science, it was
administration must exclude value-judgments, criticized as anti-theoretic and anti-management.
concentrate on facts, adopt clear terminology, apply There are many different research theories in the field
rigorous analysis and tests postulates about that seek a better understanding and explanation to
administrative knowledge within the bounds of science problems in new public administration. These
and observation ' ''.He opined that behavioural approach approaches, which may agree on many research
provides the right perspective and logically clear and aspects, have different logics of inquiry to acquire
precise methodology to study public administration. knowledge and theory building.
Q2. (a) Dwight Waldo in his book, The Administrative But, there is no one appropriate approach that could be
State emphatically mentions that the roots of used in new public administration. The nature and the
administrative theory lie in political theory. conditions of every research question/problem
Critically examine Waldo's contention. determine which research approach fits better.
(Administrative Thought)
Each one of the approaches adds new elements to the
Administration and governance have their roots in theory and practice in new public administration. A
political science. Dwight Waldo believed public continuous discourse should be maintained to keep the
administration to be a separate study from political canal open among all the approaches of research in the
science and social science theories. field.
In the words of Dwight Waldo ”A public administrator
serves in many capacities and draws guidance from In the words of L D White “need to keep the
political science and law, whereas public management conversation going within and across the existing and
is routine managing focused on public good”. emerging narratives we weave to make sense of public
administration for ourselves and for others. This is the
Again, Waldo sought that public administration should only way in which research in public administration can
be separate from political and social science remain relevant to scholars, professional administrators,
studies/theories; he wanted public administration and the public we serve.”
noticed as a profession that connected many
disciplines. (c) Discuss the essential characteristics of public
sector-centred and market-centred perspectives in
Professor Camilla Stivers observed, "Despite public Public Private Partnerships and also compare the two.
administration's claim to be a science, Waldo declares, (Organizations)
it is a political theory [....] Political theory looks to error The starting point for both the public-sector-centered as
in the world and aims to envision new possibilities. It well market-centered approach to innovation is user
beginning recognized and advocated this kind of has always remained problematic." Discuss the
interaction. It is useful t o analyze political- statement in the context of the comparative merits and
administrative relations in terms of a model of limitations of departments, corporations, companies
complementarity in which two distinct and partially and boards. Give illustrations. (Organizations)
separated sets of officials come together to shape the The principal characteristics of departmental concerns,
governmental process. according to the Report of the Rangoon Seminar of
1954, are as follows:
1. The enterprise is financed by annual
appropriations from the Treasury and all, or a
major share of its revenues, are paid into the
Treasury;
2. The enterprise is subject to the budget
accounting and audit controls applicable to
other government activities;
3. The permanent staff of the enterprise and civil
servants and methods by which they are
recruited, and the conditions of service under
which they are employed, are ordinarily the
(c) "An effective Management Information System same as for other civil servants;
(MIS) is the key to successful headquarter- field
relationships."Comment. (Organizations) Limitations :
MIS makes use of information technology to help a. Permanent staff subject to rules and
administrators ensure a smooth and efficient running of regulations applicable to civil servants, thereby
the government. Information collected by these systems preventing both promotion on merit a promote
is structured so that the managers can easily evaluate disciplinary action, where necessary;
the company’s current performance vis-à-vis previous b. Tardy procedures for arranging funds; for
outputs. In any organization like the government, there instance, the necessity for getting sanction for
are many situations that call for input from several field expenditure and other matters in every single
organisations or departments before decisions can be case;
made. Without an efficient communication channel, c. Cash receipts have to be put into government
these decisions can take a very long time. Even with account and cannot be taken out without
good communication channels, if the different special sanction;
stakeholders don’t have access to all the available data, d. The complicated system of accounting and
the process would hit a number of snags before it’s audit; and
complete. Management Information Systems ensure e. The departmental methods of purchase of raw
that all the members of the decision-making group have materials, sale of products, etc., lead to delays.
access to all the data that’s required to make the
decision even if they are working from different physical According to the Report of the Study Team on Public
locations. Sector Undertakings (of the Administrative Reforms
Commission) central and provincial characteristics of
Q4. (a) “Form of an organisation influences the this form are as follows:
success of a public enterprise, but the choice of a form
a. It has most of the features of a private limited that is sound “State enterprise tradition”. It must,
company; therefore, be a rare exception to be resorted to when
b. The whole of the capital stock or 51 per cent or dictated by the need of secrecy, strategic importance,
over of it, is owned by the Government; etc. He, generally favoured the Company form for
c. All the directors, or a majority of them, are substantially commercial functions because of great
appointed by the Government depending upon flexibility. According to him, Corporation form should be
the extent to which private capital is used when the undertaking was to discharge what in
participating in the enterprise; effect wert how extension of government functions, for
d. It is a body corporate, created under a general example, broadcasting, irrigation, etc.
law, viz., the Companies Act; The governmental functions are operationalised by
e. It can sue and be sued, enter into contracts, and departments. However, along with
acquire property in its own name; departments/ministries, there exists certain other types
of organisations, namely, boards and commissions. The
Disadvantages: organisations with a plural chief executive have been
a. It evades the constitutional responsibilities preferred for several kinds of Governmental activities. In
which a State controlled enterprise has, in a our country ever since 1873, the executive authority is
democratic society, to the government and vested in an executive council of the Viceroy, which,
parliament. after independence in 1947, has taken the form of
b. The use of Company form and of the law Cabinet. Even today a Board or Commission plural
regulating commercial companies usually executive is an integral part of administrative
becomes a mere fiction because all or most of institutions.
the functions normally vested in the The question may arise as to why Boards and
shareholders and in the management, are Commissions are set-up over and above the
reserved to the government by the statue departments. There have been a lot of discussions
setting up the company. about the merits of single executives or the boards and
commissions type of plural or collegiate executive.
The principle characteristics of the Public Corporation,
according to Rangoon Seminar, are as follows: (b) "Chester Barnard's model of
a. It is wholly owned by the State. 'Contribution-Satisfaction Equilibrium' is still
b. It is generally created by, or pursuant to, a considered a logical model of organisational
special law defining its powers, duties and motivation." Do you agree? Give arguments.
immunities and prescribing the form of (Administrative Behaviour)
management and its relation to established Chester Barnard came out with a concept called
departments and ministers. Contribution- Satisfaction Equilibrium to explain
c. As a body corporate, it is a separate entity for individual motivation. By contribution, he refers to an
legal purposes, and can be sued, enter into individual's efforts and activities undertaken in
contracts and acquire property in its own name. pursuance of the organizational goal. By satisfaction, he
To sum up, each of these three types of organization refers to the incentives or the benefits provided by
has its strong and weak points. Thus, A.D. Gorwala has the organization towards the individual in exchange
held the view that the departmental management was in for the contribution. He says that the individual’s
many ways a direct negation of the requirements of motivation depends on individual satisfaction being
autonomy and militate against flexibility and initiative, more than individual’s contribution.
Though the first two principles are still in almost every In medieval society, scope for corruption was minimum
legal system of the world, the third principle was because only few authorities existed for the collection
protested by many of jurists of that time. of taxes.
Dicey's view and proposition of rule of law has During the British rule, Clive and Warren Hastings were
succeeded in part and wasn’t sustainable on others. found corrupt to the extent that they were tried by a
Most of the modern legal system implements the parliamentary committee after their return to England.
principles of judicial review and similar principles of
proportionality and legitimate expectations. Dicey's At present, India is viewed as the seventh most corrupt
views on written and unwritten constitutions are subject country in the world according to a non - government
to much debate and discussion. The modern German organisation called ‘Transparency International’
administrative law is a fine mixture of Droit .
Administratif, the French law system and Dicey rule of
law. (c) To what extent has e-governance made the
administrative system more citizen-oriented ? Can it
(b) Edward Gibbon, the author of the Decline and Fall of (e-governance) be made more participative ?
the Roman Empire remarked : "Corruption, the most (Techniques of Administrative Improvement)
infallible symptom of Constitutional liberty." Critically e-governance is the application of information and
examine this statement. (Accountability and Control) communication technology (ICT) for delivering
Corruption is a universal phenomenon. Corruption government services.
globally found in almost every society in one or the
other form since time immemorial. Bribery was a e-governance is government-to-citizen (G2C),
serious problem among the Jews, the Chinese, the government-to-business (G2B), government-to-
Japanese, the Greeks, the Romans as well as the Aztees government (G2G), government-to-employees (G2E)
of the New World as well as back-office processes and interactions
within the entire government framework.
In France, judicial offices were sold during the fifteenth
century. Through e-governance, government services are made
available to citizens in a convenient, efficient, and
England was described as a ‘sink-hole’ of corruption in transparent manner. Two-way communication allows
the seventeenth and the eighteenth centu- ries. citizens to instant message directly with public
administrators, and cast remote electronic votes
In the nineteenth century also, corruption was so (electronic voting) and instant opinion voting.
rampant in Britain that Gibbon described it as the most
infallible symptom of constitutional liberty. Services such as name or address changes, applying for
services or grants, or transferring existing services are
In India, Kautilya mentioned about forty types of more convenient and no longer have to be completed
embezzlement and corrupt practices adopted by face to face.
government servants.
Transactions such as payment of services, such as city
utilities, can be completed online or over the phone.
(d) "The issue of development of women is closely Administrative development should direct towards self
related to the issue of women in development." How -sufficiency and lesser dependence upon foreign
can women become equal partners in the process of support. It should be accompanied with delegation of
socio-economic development? (Development power to ensure speedy performance and specialization
Dynamics) of administrative tasks.
Women in development is an approach of development
projects that emerged in the 1960s, calling for Administrative development also requires administrative
treatment of women's issues in development projects. It changes and reforms. For administrative reforms. It is
is the integration of women into the global economy an essential ingredient of development in any country,
by improving their status and assisting in total irrespective of speed and direction of change.
development. The United Nations Development Program Administrative capacity becomes increasingly important
(UNDP) established a special Division for Women in in the implementation of new policies, plans and ideas.
Development, promoting concrete action to ensure that The improvements in administrative capacity may
women participate in UNDP projects. The United involve the removal of environmental obstacles,
Nations paper International Development Strategy for structural alternatives in traditional and innovatory
the Third United Nations Development Decade, issued institutions bureaucratically organized or otherwise.
in 1980, recognized a number of Women in This would also necessitate changing individual and
Development issues. The Gender and Development group attitudes and performance.
(GAD) approach in the 1980s attempted to redress the
problem, using gender analysis to develop a broader Q6. (a) In order to be development-oriented,
view. The approach is more concerned with bureaucracies need to be innovative, flexible,
relationships, the way in which men and women citizen-centric and result-oriented, but they are slow in
participate in development processes, rather than imbibing these virtues in a democratic system. Do we
strictly focusing on women's issues. need to go beyond the traditional models of
bureaucracy and create alternative structures ?
(e) "The process of administrative development is Elaborate. (Development Dynamics)
generally slower than the process of socio- economic There has emerged in recent years an exciting new
development." How can the speed of administrative paradigm known as high performance work systems
development be made faster that is changing the way we think about people and how
? (Development Dynamics) work is organized. A high performance organization
Administrative Development is meant by the could be defined as an organization in which each
development of Administrative capabilities. It aims person is a contributing partner to the business.
towards the adoption of structural and behavioural
changes in Administrative operations. Administrative High performance work environments require a deep
development is a pattern of increasing effectiveness in respect and trust in people. People are not viewed as
the utilization of available means for achieving extensions of machines, objects to be manipulated nor
prescribed goals. It, therefore, involves both qualitative costs to be controlled but rather as thinking and feeling
and quantitative changes in bureaucratic politics, human beings who bring enormous energy, creativity
programs, procedures and methods of work, and talent to their work. Most people want jobs that are
organizational structures and staffing patterns, number meaningful and allow them autonomy to make
and quality of development personnel of different types decisions and contribute to the company in significant
and patterns of relations with clients of administration. ways.
citizens in a broad sense; rather, government actions are
Effective organizations are those moving beyond usually intended to impact directly on stakeholder
attempting to control people to organizing around groups and their interests. Indeed, as customers are key
collaborative networks and trusting and empowering stakeholders for firms, citizens as users/customers of
people with the resources, information, tools, skills and public services are among the key stakeholders for
support to create value and manage their relationship government organizations. Yet, the customer role is just
with their customers in order to create products and one of the stakeholder roles that should be taken into
services of unprecedented quality. account when considering the impacts of government
actions. Government activities involve a wide range of
In high performance organizations people understand stakeholders and the application of stakeholder
the business, are committed to getting results and are analysis to government can lead to the identification of
organized into self-contained, multi-functional and a quite long list of possible stakeholders.
customer-focused business units or teams that take full
responsibility for making decisions, solving problems Conceiving stakeholders as roles played by citizens
and continuously improving the quality of their work. determines two relevant consequences. On the one
Everyone involved with a particular core process are hand it explains why the list of stakeholders involved in
members of the same team and are empowered with government activities can be so long. Actually, even
full authority for the success of a whole product, service when they are targeted toward a specific segment of the
or major segment of work. Roles and responsibilities population, government initiatives impact, at least
are much broader and more meaningful in scope than in indirectly, on all the citizens (if only because
a traditional organization. government activities use public resources); this makes
the emergence of conflicts of interests among different
The team is responsible for setting goals, coordinating stakeholders very likely.
and scheduling their work, interfacing with the
customer, training, making decisions and problem On the other hand, it highlights the possibility for an
solving, monitoring quality, and even measuring individual to play several different stakeholder roles,
performance and making hiring and selection decisions. either concurrently or in sequence. Thus, for instance,
an individual can simultaneously be a taxpayer that
“funds” public administration, a “consumer” that uses
The role of management changes from that of the services delivered by public administration and a
controlling workers and solving day-to-day problems to civil servant working in a government agency. This can
being facilitators and coaches. They define outcomes, determine the emergence of conflicts of interests that
manage boundaries, interface with other departments must be considered in evaluating a government
and, in general, ensure that the team has the resources, initiative from the point of view of the public value it
training, information and support they need to carry out delivers to citizens. Actually, as a user of the services a
the job. citizen would like to receive better services from the
public administration. However, this could determine a
(b) “Administrative values have no value unless they higher cost for service delivery (at least on the short
are valued by all stakeholders of the governance term), which could mean that the citizen has either to
system." Comment. (Personnel Administration) pay a higher cost for accessing the services or to be
It should be observed that government actions usually prone to incur in a higher level of taxation. Similarly, as
impact directly neither on particular citizens nor on a civil servant a citizen might want a higher wage, which
is a private value for him; however, this could mean that stereotyped views of Western scholars. The latter, in
public administration has to spend more for salaries their conceptualization, did not examine alternative
and this, as a consequence, could force public perspectives on the causes of poverty and
administration either to invest less in improving the underdevelopment in the Third World. As an example,
quality of the services (which means less value for the inadequate attempts were made to examine Marxist and
citizen as user) or to higher the level of taxation (which Neo-Marxist views and or interpretations on the
means less value for the citizen as taxpayer). processes of development and underdevelopment.
Proponents of this strand of thinking reached the
For this reason, to understand how an e-government conclusion that Western interpretations of poverty and
initiative could impact public value a careful underdevelopment are ethnocentric, Eurocentric and
identification of the stakeholders involved, of their often replete with numerous theoretical shortcomings.
interests and of their mutual relationships is needed.
This includes the identification of how the different (b) “Monetary policy of a country can help or
stakeholders could be impacted by an e-government hinder its development process." Discuss.
initiative and what are the aspects of public value that (Financial Administration)
could be more relevant for 1. A monetary policy decision cuts interest rate,
for example, lowers the cost of borrowing,
(c) “Lateral entry is an antidote to complacency in resulting in higher investment activity and the
civil service.” Discuss. (Personnel Administration) purchase of consumer durables. Monetary
Lateral is both a workaround for the civil services’ policy plays a stabilizing role in influencing
structural failings and an antidote to the complacency economic growth through a number of
that can set in a career-based service. Domain experts channels.
have been brought in from outside the services to head 2. Monetary policy uses its tools to effectively
various committees, advisory bodies and organizations check money supply with a view to maintaining
The second ARC report points out that it is both price stability in the medium to long term.
possible and desirable to incorporate elements of a 3. Monetary policy influences expectations about
position-based system where lateral entry and the future direction of economic activity and
specialization are common. The second Administrative inflation, thus affecting the prices of goods,
Reforms Commission (ARC) recommended an asset prices, exchange rates as well as
institutionalized, transparent process for lateral entry at consumption and investment.
both the Central and state levels. 4. The expectation that economic activity will
strengthen may also prompt banks to ease
The PMO has instructed the department of personnel lending policy, which in turn enables business
and training to prepare a proposal for middle-rung and households to boost spending.
lateral entry in ministries dealing with the economy and
infrastructure . (c) "Sound Performance Auditing is impossible without
systematic Performance or Outcome
Q7. (a) How does ethnocentrism impact development Budgeting." Explain the relationship between the two.
administration in achieving sustainable goals ? Argue (Financial Administration)
with examples. (Development Dynamics) Performance budgeting models seek to design
Development administration was not as effective as budgeting techniques so as more effectively to achieve
originally intended because it was dominated by the two objectives. These are, firstly, effective budgetary
service career. This training is usually provided at an "career development is the act of acquiring information
early stage of service life. and resources that enables one to plan a program of
lifelong learning related to his or her work life" (p. 216).
Maintenance or Refresher Training. This training is Although extension workers are responsible for
offered to update and maintain the specialized designing their own career development education, the
subject-matter knowledge of the incumbent. Refresher extension organization sometimes sets some criteria
training keeps the specialists, administrators, and provides opportunities for the staff by offering
subject-matter officers, extension supervisors, and options.
frontline workers updated and enables them to add to
the knowledge and skills they have already. (c) "A public policy without the active
Maintenance or refresher training usually deals with involvement of people in its formulation,
new information and new methods, as well as review of implementation and evaluation is only a facade."
older materials. This type of training is needed both to How can this anomaly be corrected
keep employees at the peak of their possible production ? (Public Policy)
and to prevent them from getting into a rut (Van Dersal, The essence of public policy is society. Societies
1962). however are made of cultures which are their
distinguishing mark as far as value laden basis is
On-the-Job Training. This is ad hoc or regularly concerned, life styles of its members from those of
scheduled training, such as fortnightly training under other societies, and action. Clyde Kluckhohn (1963:24)
the training and visit (T&V) system of extension, and is defines culture as “the total life of a person, the social
provided by the superior officer or the subject-matter legacy the individual acquires from his group. On the
specialists to the subordinate field staff. This training is other hand, culture is that part of the environment that
generally problem or technology oriented and may is a creation of man” (1965). This definition is important
include formal presentations, informal discussion, and because from it one understands that culture shapes or
opportunities to try out new skills and knowledge in the influences social action. It is clear that what influences
field. The superior officer, administrator, or does not necessarily determine a particular action, it
subject-matter specialist of each extension department can only be one among many factors affecting social
must play a role in providing on-the-job training to the behaviour.
staff while conducting day-to-day normal activities.
Environment ties a person to a uniform economic,
Career or Development Training. This type of in-service social, and political culture. As far as public issues are,
training is designed to upgrade the knowledge, skills, it can be justified that political culture is superior.
and ability of employees to help them assume greater Reasons behind this can emanate from the theories of
responsibility in higher positions. The training is state such as social contract and force theories.
arranged departmentally for successful extension Designated as political culture may mean widely held
workers, at all levels, for their own continuing education values, beliefs, and attitudes concerning what
and professional development. Malone (1984) opined governments and their actions, and the ensuing
that extension services that provide the opportunity for relationship between people and government. Political
all staff to prepare a plan for career training will receive culture is trans/inter-generational behavior shared
the benefits of having longer tenured and more satisfied through a socialization process over time. Environment
employees, which increases both the effectiveness and ties a person to a uniform economic, social, and
efficiency of an extension service. Malone stated that political culture. As far as public issues are, it can be
justified that political culture is superior. Reasons actions, and the ensuing relationship between people
behind this can emanate from the theories of state such and government. Political culture is
as social contract and force theories. Designated as trans/inter-generational behavior shared through a
political culture may mean widely held values, beliefs, socialization process over time
and attitudes concerning what governments and their
PUBLIC ADMINISTRATION 2018 PAPER-2
UPSC Mains 2018 Public Administration Optional analyse. (Philosophical and Constitutional
Categorised Analysis (Paper-2) framework of government)
SECTION "A" When Indian nationalists, victorious in their freedom
struggle, sat down to write a Constitution for
Q1. Answer the following questions in about 150 words independent India, they created a political system based
each: entirely on British parliamentary democracy and their
a. “A government next-door is the government that experience of what they themselves were deprived of.
matters most for the people.” Discuss the statement The Westminster model of democracy is not suited to
with special reference to the values of local our reality.
government. (Evolution of Indian Administration)
The primary purpose of local government is to bring The parliamentary system devised in Britain – a small
government close to the local people. This generally island nation with a few thousand voters per MP and
entails two things for the structuring of local even today less than a lakh voters per constituency –
government: (1) to ensure local democracy or civic assumes a number of conditions that simply do not
participation and (2) to apply the locality principle in exist in India, where the appeal of individual leaders
extending effective service delivery to the people. The often prevails. It also involves the British perversity of
democratic participatory theory contends that local electing a legislature to form an executive. So we have
government exists primarily to provide opportunity for legislators who are not interested in law-making but
democracy and political participation and education seek election to Parliament only in order to get into
of the citizens at this level. Sharpe (1970) for instance, government. Parliamentary vulnerability to legislative
remarks that the roles of the local government include majorities has also produced governments obliged to
political education, civilizing men through the medium focus more on politics than on policy or performance,
of self-government , and serving as a training ground for just to stay in power.
democracy for higher levels of government. c. “The attached offices and subordinate offices are
b. The philosophy of the Westminster model is at odds integral to the functioning of the Cabinet Secretariat.”
with the political culture of India.” Critically Discuss. (Union Government and Administration)
The attached offices “are responsible for providing well. But lateral entry shouldn’t descend into nepotism
executive direction required in the implementation of and politicisation of bureaucracy. The process of
the policies laid down by the Ministry to which they are selection needs to be transparent and above reproach.
attached.” In other words, such an office plays a dual The fact that Indian bureaucrats have come through an
role, that of directing the subordinate offices below and independent system and will remain in office
submitting proposals to the irrespective of the political regime insulates them, to
secretariat above. some extent, from undue pressure. In India, for any
job, there is often a tendency to compromise on merit
On the other hand, a subordinate office is a mere field and use “connections”. If lateral entry becomes a way
agency “responsible for the detailed execution of the for only those who are politically and ideologically
decisions of the Government.” Such a role is by no committed to the regime in power, the exercise will be
means unimportant. In fact, being at “the delivering of undermined. The government should go ahead with its
goods end,” its role can be very crucial. initiative, but with caution, while keeping the credibility
and integrity of the process intact.
In actual practice, however, we find no such clear-cut
distinction of functions as between the two categories e. “Contracting out tasks without effective
of offices. At best such distinction is blurred. Even the accountability mechanisms can be counter productive
Manual recognises that though the subordinate offices for effective service delivery." Comment. (Public Sector
generally function under the direction of the Undertakings)
attached offices, in some cases they may function Contracting out raises important issues of
directly under the ministry. This makes confusion worse accountability, as recognised by the inquiry being
confounded. As early as 1945-46, Tottenham ,therefore, conducted by the Senate Finance and Public
recommended the abolition of distinction between the Administration References Committee. The claim made
two categories of offices. by the Industry Commission that contracting out does
The First Administrative Reforms Commission examined not reduce government accountability for public
the problem in the wider context of secretariat and services is mistaken. Contracting out involves a
non-secretariat organizations and their relationship and trade-off of political accountability for efficiency.
made certain recommendations. However, despite all Accountability is also likely to be reduced through the
the above recommendations the older pattern still reduced availability of citizen redress under such
continues. But, while the attached offices have been instruments as the Ombudsman and FOI. At the same
able to better the conditions of service of their time, accountability may on occasion be increased
through improved departmental and ministerial control
employees and achieve a higher status almost co-equal following from greater clarification of objectives and
to that of the secretariat, the subordinate offices specification of standards. Providers may also become
continue to slog in their subordinate status. more responsive to public needs through the forces of
market competition. Potential losses (and gains) in
d. It is apprehended that lateral entry will lead to accountability need to be balanced against potential
politicisation of bureaucracy. Do you agree? Justify efficiency gains in each case.
(Civil Services)
Political and social realities have to be kept in mind Q2. a. "The market-driven profitability concerns have
while making changes in public administration. Diversity shaken the foundation of the public sector
must remain an important principle in lateral entries as
undertakings.” Do you agree? Give reasons. (Public b. It is argued that the NITI Aayog has broken the
Sector Undertakings) edifice of planning into fragments. Comment. (Plans
Public Sector Undertakings (PSUs) have laid a strong and Priorities)
foundation for the industrial development of the One of the main edifices of the Nehruvian era, the
country. The public sector is less concerned with 60-year old Planning Commission, has been disbanded
making profits. Hence, they play a key role in nation to be replaced by NITI Aayog. The NITI Aayog was
building activities, which take the economy in the right formed to bring fresh ideas to the government. Its first
direction. mandate is to act as a think tank. It can be visualised as
a funnel through which new and innovative ideas come
PSUs provide leverage to the Government (their from all possible sources — industry, academia, civil
controlling shareholder) to intervene in the economy society or foreign specialists — and flow into the
directly or indirectly to achieve the desired socio- government system for implementation. NITI Aayog is
economic objectives and maximize long-term goals. also bringing about a greater level of accountability in
the system. Earlier, we had 12 Five-Year Plans, but they
As agriculture is the backbone of Indian economy, were mostly evaluated long after the plan period had
Public Sector Banks (PSBs) play a crucial role in ended. Hence, there was no real accountability. NITI
pushing the agricultural economy on to the progressive Aayog’s Development Monitoring and Evaluation Office
pathway and helping develop rural India. Moreover, collects data on the performance of various Ministries
PSUs play a substantial role in the rural development by on a real-time basis. This performance- and
providing basic infrastructural services to citizens. outcome-based real-time monitoring and evaluation of
government work can have a significant impact on
The political and bureaucratic constraints that hamper improving the efficiency of governance. Using such
the functioning of many PSUs faced by Air India and data, we also come up with performance-based
BSNL must go. The government should fix the ground rankings of States across various verticals to foster a
rules and then let the PSUs operate at an arm's length spirit of competitive federalism. With its current
from the government. In many cases, PSUs have better mandate that is spread across a range of sectors and
systems, which minimises abuse of power by an activities, and with its unique and vibrant work culture,
individual or a group of individuals and, thus, avoid the NITI Aayog remains an innovative governance system in
pitfalls of expensive but unproven bets or ego boosting the country.
mergers and acquisitions that may endanger long- term
viability of the firm. c. “Autonomy of civil society is crucial for responsive
and effective administration.” Examine the
In short, Indian economy could lose its vitality without statement (Significant issues in Indian
public sector enterprises considering the country's Administration)
existing socio-economic structure. But there is an For creating a responsive and citizen-friendly
urgent requirement to address inefficiencies and administration, several issues need to be addressed
limitations pertaining to the sector. Mere privatisation urgently. It is necessary to draw lessons from success
of all public sector units could not be the only solution and failure of governance related initiatives in
to it. Rather, there is a need to have a fresh look on the developing and transitional countries, evaluate critical
role of public sector enterprises in Indian economy and citizen-focused interventions, create and reinforce
need to realign the policies accordingly. citizen interfaces :
1. With the strengthening of democratic on which grants-in-aid will be given to the States. The
decentralization, while aspirations of the people 15th Finance Commission was constituted on
have grown, the members of the civil services November 27, 2017, in the notification issued on
have tended to show a mindset that it not of November 27, the ToR recommended, “the Commission
service providers. This is evident in lack of shall use the population data of 2011 while making its
sensitivity to the needs of the people as well as recommendations.” The main bone of contention is the
lack of accessibility. Centre’s latest proposal where the 15th Finance
2. Absence of courteousness and humane Commission, formed and tasked with deciding how
behavior on the part of many government taxes are to be shared/devolved between different
functionaries when people approach them for states, has been told to use the 2011 Census data as its
redressal of their grievances. parameter. In the case of the 14th Finance
3. A lack of concern for weaker sections of Commission, that was 25%. Some of the other factors
society, especially when their interests clash that the Commission takes into account are per capita
with the interests of influential sections of income, area, and fiscal discipline. The 14th Finance
society. Commission had raised the amount of untied transfers
4. A lack of objectivity and propriety in from the centre to states while also reducing some of
decision-making, many a time. the centre’s obligations to states. The result was a
5. A generally a negative orientation, with lack of slight increase in aggregate transfers to states and
pragmatism and adoption of positive greater autonomy to use them as they wished.
problem-solving attitude.
6. A distinct decline in standards of ethics and b. “In the coalition era with elusive majority of a single
integrity as against expectations from the party in the State Legislature, the role of the Governor
services. becomes even more challenging." Discuss. (State
7. Intellectual sluggishness and lack of interest in Government and Administration)
acquiring new knowledge. As a matter of convention, the Governor has to first
8. Lack of openness to views of others, especially invite the single largest party to form the government.
for tapping the expertise and experience of But the decision has to be an “informed one” and “on
persons outside of the formal framework of sound basis,” with a view to provide a stable
government departments such as academia, government.
media, practicing professionals, NGOs, etc.
In 2006, the President of India (then) Dr A P J Abdul
Q3. a. Critically examine the criteria adopted by the Kalam while addressing the governors had emphasized
15th Finance Commission for allocation of resources the relevance of recommendations of the Sarkaria
to States. What have been the major issues of Commission and said “While there are many checks and
contention since the 10th Finance Commission? balances provided by the Constitution, the office of the
(State Government and Administration) Governor has been bestowed with the independence to
The Finance Commission determines the devolution of rise above day-to-day politics and override compulsions
allocation of state funds between the Centre and states. either emanating from the central system or the state
The Finance Commission, set up in 1951 under Article system.”
280 of the Constitution, basically decides how revenue
has to be distributed between the Centre and the States. Later, the M M Punchhi Commission also elaborated
In addition, the Commission also decides the principles that the governor should follow “constitutional
facilitate growth and development. In this context, civil keeping a gender perspective in policy/ programme
servants have to shift from being controllers to formulation.
facilitators and from being providers to enablers. They
need to equip themselves with the necessary skills and GB entails dissection of the Government budget to
capabilities to meet these new challenges. They need to establish its gender differential impacts and to ensure
master new technologies and new styles of functioning. that gender commitments are translated into budgetary
commitments.
b. “Financial inclusion needs legal backing but it also
requires increasing awareness for it to become a The rationale for gender budgeting arises from
reality.” Discuss (Financial Management) recognition of the fact that national budgets impact
In India, RBI has initiated several measures to achieve men and women differently through the pattern of
greater financial inclusion, such as facilitating no-frills resource allocation.
accounts and GCCs for small deposits and credit. Some
of these steps are: Women constitute 48% of India’s population, but they
1. Opening of no-frills accounts lag behind men on many social indicators like health,
2. Relaxation on know-your-customer (KYC) norms education, economic opportunities, etc. Hence, they
3. Engaging business correspondents (BCs) warrant special attention due to their vulnerability
4. Use of technology and lack of access to resources.
5. Adoption of EBT
6. GCC The way Government budgets allocate resources, has
7. Simplified branch authorization the potential to transform these gender inequalities. In
8. Opening of branches in unbanked rural centres view of this, Gender Budgeting, as a tool for
9. Pradhan Mantri Jan Dhan Yojana achieving gender mainstreaming has been propagated.
The most important aspect of financial inclusion is
financial literacy. There is lack of awareness, especially d. "Social audit has lent a critical edge to the
amongst people, both rural and urban about various implementation of programmes such as MGNREGA."
schemes of FIs. To increase awareness and interest in Comment (Rural Development)
the products offered under various schemes of FIs, Unlike other states that have implemented the
increase in advertisement in local language, on radio provisions of social audit only in certain schemes such
and television, and in the print media, with local icons as MGNREGA (the government’s flagship rural job
and artistes as brand ambassadors of the campaign, guarantee scheme), the Northeastern state has come up
could help in building public confidence. In this context, with a comprehensive law that covers almost all
the role of mobile phones and reach of mobile banking development projects. While social audits were
is immensely promising. pioneered by the Mazdoor Kisan Shakti Sangathan in
Rajasthan in the mid-1990s, they were first made
c. "Gender budgeting requires rethinking beyond statutory in the National Rural Employment Guarantee
allocations to become a powerful tool of gender Act, 2005, and later in other laws such as the National
mainstreaming." Discuss. (Financial Management) Food Security Act, 2013, and the Rights of Persons with
Gender Budgeting is a powerful tool for achieving Disabilities Bill, 2016.
gender mainstreaming so as to ensure that the benefits
of development reach women as much as men. It is not Social audits are different from government audits such
an accounting exercise but an ongoing process of as the ones conducted by the Comptroller and Auditor
General of India (CAG). Unlike government audits accused to the police within 24 hours; as well as the
[conducted solely by government auditors and confined upholding of the immunity clause.
to compliance of expenditures in specified amounts
under specified heads without involvement of affected The Security Forces Perspective
people] and people’s audit [the community examines The army’s views, as one of the important stakeholders
outcomes but their findings lack mandatory acceptance in the entire debate are based on its perception of the
by the government], a social audit is conducted jointly ground realities, particularly in the state of J&K. A
by the government and the beneficiaries of the scheme number of arguments have been given for the retention
being audited”. of AFSPA.
Social audits are increasingly becoming critical these First, India is fighting a proxy war in the state and,
days because the accountability and transparency therefore, AFSPA enables the security forces to fight
mechanism of India’s local government structure has both external and externally-abetted forces that threaten
not kept pace with the increasing responsibilities and not only the security of the state but also of the country.
flow of funds that are delegated to local governments. The encounter on March 28, 2012 in Kupwara, in which
five Lashkar-e-Taiba (LeT) terrorists were killed, testifies
But such audits can improve transparency in to this fact.
governance and give people the confidence to question
elected representatives and bureaucrats on a regular Second, the army has its military establishments,
basis – and not just before they go to vote for them. It intelligence set-up and even convoys that pass through
also helps to develop a cadre of social auditors at the areas where AFSPA is not operative. Therefore, the
panchayat level who will have deeper understanding of security of both men and material require the legal
government accounts and policy-making processes. For safeguards and operational powers of AFSPA.
example, in Andhra Pradesh, thanks to social audits of
the MGNREGA over the past nine years, the government Third, cases of hot pursuit could well take troops from
has recovered 50 crore. areas where the law is in force to where it may have
been revoked, thus leading to legal complications, as
e. "The AFSPA debate reveals that the Indian well as allowing terrorists to create safe havens for
paramilitary forces are caught between the imperatives themselves.
of national security and protection of human rights.”
Discuss. (Law and Order Administration) Fourth, the army, in its security assessment, sees a rise
in terrorist violence in the coming years, given the
Human Rights Perspective availability of trained and willing terrorist cadres in
In failing to protect and uphold human rights, the Act Pakistan, who are more likely to increasingly turn their
reinforces a militarized approach to security which has attention towards India after the de-induction of US-led
proved to be not only inefficient but, in fact, forces in Afghanistan. Under these circumstances, the
counterproductive in tackling security challenges. It army feels that once AFSPA is revoked, political
should be noted that many limitations of the law were compulsions will not allow its re-introduction even if the
removed by the legal sanctity accorded to the ‘Dos’ and situation in the state worsens.
‘Don’ts’ by the Supreme Court in the Naga People’s
Movement case mentioned above. These include: Q6. a. "Competency mapping is important for effective
adherence to procedures for arrest; handing over the allocation of responsibilities to administrators.” Do you
think that a generalist administrator can handle all as for example, the establishment of an Institute of
issues as effectively as a specialist Discuss. (Civil Public Administration, it is also lull of suggestions and
Services) obiter dicta which can be studied with profit. This is
Competency mapping identifies an individual's strengths more than can be said of most reports produced on
and weaknesses. The aim is to enable the person to such short acquaintance with the problems of this
better understand himself or herself and to point out country.
where career development efforts need to be directed.
Competencies are derived from specific job families c. "Performance management requires identification of
within the organization and are often grouped around indicators and measures to ensure that goals are
categories such as strategy, relationships, innovation, achieved efficiently." Discuss. (Financial Management)
leadership, risk- taking, decision-making, emotional Performance management can focus on the
intelligence, etc. So far as the way to go about for performance of an organization, a department,
competency mapping is concerned, the first step is job employee, or even the processes to build a product or
analysis, where the company needs to list core service, as well as many other areas. Armstrong and
competency requirements for the job concerned. The Baron (1998) defined it as a "strategic and integrated
next step should be the development of a competency approach to increase the effectiveness of companies by
scale for the job on the parameters improving the performance of the people who work in
identified. The actual mapping of employees can be a them and by developing the capabilities of teams and
self-done exercise or done by others like superiors. It individual contributors." A performance management
can also be done by using the 360-degree method where system is often used by the managers in order to align
peers, first reports and customers also rate the the goals of the company to the goals of their
employee. employees, thereby ensuring productivity. First, a
commitment analysis must be done where a job mission
b. “The recommendations of various commissions on statement is drawn up for each job. The job mission
administrative reforms have not made a radical statement is a job definition in terms of purpose,
departure from the Paul Appleby Report.” Do you agree customers, product, and scope. The aim with this
? Give reasons. (Administrative Reforms since analysis is to determine the continuous key objectives
Independence) and performance standards for each job position.
Paul H. Appleby had made a survey two years following
the Gorwala Committee report based on the public Following the commitment analysis is the analysis of a
administration in India. He recommended that the particular job in terms of the reporting structure and job
establishment of ‘organization and management description. If a job description is not available, then a
division’ for a continuous study and improvement systems analysis can be done to draw up a job
administrative methods and procedures in India. description. The aim with this analysis is to determine
Besides this, he also recommended establishment of the continuous critical objectives and performance
the Indian Institute of Public Administration. A complex standards for each job.
problem has not too easy or obvious a solution, and Mr
Appleby has not offered any. He has pointed out the The results of performance management exercises are
deficiencies. At the same time, he has provided an used in:
outsider's appraisal which must on balance be
encouraging rather than otherwise. Even if his report ● Employee development planning to select the
does contain some academic recommendations, such most appropriate and suitable development
intervention to improve employees' knowledge, of India has launched ‘Rural Employment Guarantee
skills and behavior Scheme’. Due attention has been given to develop rural
● Factual basis for compensation and rewards infrastructure and rural health. Gram Sadak Yojan and
(pay raise & bonuses being the most common) National Rural Health Mission are the other important
● Factual basis in consideration with other programmes in existence under this plan.
factors for mobility (Example: transfers and
promotions) b. “In the Network Era the TRAI has the challenging
task of protecting the Net Neutrality from digital
Q7. a. “Rural development programmes have failed to aggression.” Comment. (Significant issues in Indian
effectively address the problems of small and marginal Administration)
farmers.” Analyse and give suggestions. (Rural The Telecom Regulatory Authority of India (Trai) has
Development) come out in favour of net neutrality in its
The important agricultural development programmes recommendation paper released . The regulator has
bringing green revolution strategy like Intensive mandated that ISPs (Internet Service Providers) should
Agricultural Area Development Programme (IADP) and not deploy any discriminatory practices such as
High Yield Varieties Programme (HYVP) were blocking, degrading or slowing down of certain web
implemented in the country. It is observed that, the traffic while giving preferential treatment to any specific
benefits accrued only to the rich and progressive content at the same time.
peasants . Landless and agricultural labourers were left
untouched. ‘Integrated Rural Development Programme The Trai paper also suggests the formation of a
(IRDP) was conceived. The programme has been in regulatory body to monitor and deal with any such
operation since 1978-79 and has been made the violation of net neutrality.The issue of net neutrality
centerpiece of the anti-poverty strategy in the Sixth Five gathered momentum in 2015 when then US president
Year Plan. IRDP is regarded as a multi-level, multi-sector Barack Obama pledged support for it and urged the
and multi-section concept of rural development. As a agency to come with a strong rule on it. FCC ruled in
multi-level concept, it encompasses rural development favour of net neutrality, prohibiting any ISP from
at various levels such as viable cluster of village blocking, throttling, or giving special treatment in terms
communities, districts and blocks. As a multi-sector of speed to a content provider who has paid more than
concept, it embraces development in various sectors others.
and sub-sectors of the rural areas such as agriculture, In India, the debate on net neutrality picked speed after
industry, education, health and transportation etc. As a Facebook launched the Free Basics program in
multi-section concept, it encompasses socio-economic December 2015, earlier known as internet.org. Free
development of various sections and sub-sections of Basics gives free access to basic internet services to
rural Population such as small farmers, marginal users who could not afford 4G data plans and were still
farmers, landless and agricultural labourers, artisans, using slower 2G networks. Though, Facebook wasn’t
Scheduled Castes and Scheduled Tribes. charging users anything extra, the notion of favouring
access to certain content went against the basic
‘Swarnajayanti Gram Swarozgar Yojana’, which has principle of net neutrality. Trai banned Free Basics and
replaced the earlier programmes like IRDP, TRYSEM, etc. other similar services such as Airtel Zero in February
It is a single self-employment programme for the rural 2016.Another concern with lack of net neutrality is of
poor. In addition to this to mitigate unemployment different speed lanes and the effect it will have on
problem prevailing in the rural economy, the Government
CPGRAMS for identifying grievance prone The verdict referred to past efforts to usher in
areas, their root cause analysis and suggested transparency within political parties. It quotes the
systemic reforms for reducing such grievances, efforts to bring political parties under the Right to
has been carried out by the Department of Information regime. The judgment refers to
Administrative Reforms and Public Grievances. observations made by the CIC in Subhash Chandra
d. A Public Grievances Call Centre has been Agarwal v. INC and others to describe the position of
set up for reminding the concerned officials political parties in democracy.
of top 40
Ministries/Departments/Organizations for It is the political parties that form the government, man
expeditious disposal of grievances pending for the parliament and run the governance of the country. It
more than 2 months. is therefore, necessary to introduce internal democracy,
e. An Award Scheme has been launched for financial transparency and accountability in the
recognizing outstanding performance with workings of the political parties. A political party which
respect to disposal of grievances on does not respect democratic principles in its internal
CPGRAMS on a quarterly basis through issue working cannot be expected to respect those principles
of Certificate of Appreciation. vi. Training on in the governance of the country. It cannot be
CPGRAMS is conducted on a regular basis. dictatorship internally and democratic in its functioning
f. A new Mobile App which is more outside.
user-friendly for lodging of public grievances
has been developed. The Grievance Action c. "The disempowerment and depoliticisation of urban
Status can also be viewed on the mobile itself. local government has happened in multiple ways.”
This has been integrated with Unified Mobile Comment. (Urban Local Government)
Application for New-age Governance The disempowerment and depoliticisation of urban local
(UMANG). This initiative also facilitates government has happened in multiple ways. The
lodging of grievance anywhere anytime. “implementation failure” narrative tends to focus on
how local governments are financially constrained and
b.“Institutional change is a necessary but not a do not have the administrative capacity to carry out its
sufficient condition for reducing criminalisation of functions. It is also important to explore how urban
politics." Examine. (Law and Order Administration) local governments are actively disempowered and
Cleansing politics from criminal elements begins with depoliticised as an institution.
purifying political parties itself, as they are the central
institution of India’s democracy, a Constitution Bench of The disempowerment and depoliticisation has
the Supreme Court observed. happened in multiple ways.
1. Elected representatives at the city-level are
It also recommended that Parliament bring out a "strong rendered powerless by making them
law" whereby it would be mandatory for the political subservient to the State government. In most
parties to revoke membership of persons against whom municipal corporations, while the mayor is the
charges were framed in heinous and grievous offences ceremonial head, the executive powers of the
and not to set up such persons in elections for corporation are vested with the State
Parliament as also State Assemblies. government-appointed commissioner. This
disjuncture in municipal governance has been
exploited by State governments to ensure that
no city-level politician challenges their control inherently political spaces where multiple
over a city. interests compete.
2. Municipal corporations are further denied their
political role by the continued operation of
various parastatal agencies created by the
State government. These agencies, which
function with a certain autonomy, are
accountable only to the State government, not
the local government. Even urban planning and
land-use regulation (globally a quintessential
local government function) is with State
government-controlled development authorities.
3. Even for performing functions that are within its
purview (such as levying local taxes or
undertaking civic projects above a certain
budget) the local government requires State
government permissions. Hence, municipalities
are not yet autonomous units that can be
genuinely called as the “third tier” of
government in India’s federal system. Even after
the 73rd and 74th Amendments, India has
effectively only two levels of government —
Union and State.
4. The functions listed under the 12th Schedule —
which a State government is expected to
devolve to the local government — do not
include essential civic issues such as urban
transportation, housing or urban commons.
5. The 74th Amendment also contains an
industrial township exception whereby a
municipality need not be constituted in areas
which are declared as industrial townships.
These provisions have been employed by State
governments to keep local governments weak.
6. In fact, civil society’s fixation with nominating
its members into ward committees can further
depoliticise local governments and make them
captive to the interests of certain elite resident
welfare associations.
7. Instead of distrusting them, we must
acknowledge that local governments are
PUBLIC ADMINISTRATION 2017 PAPER-1
Section A Wilson’s essay stands as a major early effort at
articulating the essential ideation and dominant
Q1) Answer the following questions in about 150 words paradigm for the profession. Though the essay was not
each: read and cited until it was reprinted in 1941, it serves as
(a)Even after 130 years of its publication, Woodrow a benchmark in the development of the field of public
Wilson’s essay “The Study of Administration” continues administration.
to have great relevance even today.” Comment (10
marks) (Introduction) (b) “What is distinctive about the Classical and Human
Woodrow Wilson’s essay ‘The Study of Administration’ Relations Schools of thought administration is their
covers three broad topics: complementarity to each other “. Analyse (10 marks)
1. It is a review of the history of the study of (Administrative Thought)
public administration. The Human Relations theory is called the ‘neoclassical
2. It is the subject-matter, more specifically public theory’ because it, like the classical theory , accepts
administration. efficiency and productivity as the legitimate values of
3. He seeks to determine the best methods to the organization, although it relies on a different set of
develop public administration, both as a techniques to achieve these values. Both the classical
science and as a useful tool within the structure and human relations theories are alike in their
of the American democracy. objectives but differ in the methods adopted to
The Theory of Administration is first theoretical piece on accomplish those objectives. The human relationists
public administration , its influence was on later theory seek to maximize the value of efficiency and
rather than contemporary practice. Despite its productivity by eliminating the dysfunctions caused by
undoubted importance, the essay is remarkable for its overspecialization , alienating hierarchical
ambiguity , particularly in regard to his instance on the arrangements and general dehumanization of classical
politics- administration dichotomy. The essay for the approach.
first time expressed the need for a scientific and
systematic study of administration. Classical theory is based on the assumption that people
are driven by purely economic motives. Human relations
theory assumes that workers need to feel that their
work has value (beyond the purely economic) and that questions and recognize the value and potential of
the workplace should be a space where positive social doing things differently. A good leader is passionate
interactions led to increased productivity. In reality an about excellence and must therefore strive for
organization is both a formal structure and informal continuous improvements and change. The manager is
relations , these two aspects of an organization are not a copy; the leader is an original. The manager relies on
contradictory but allied to each other. control; the leader inspires trust. The manager accepts
the status quo; the leader challenges it.
c)“Conflict is the appearance of differences –the
difference of opinion and of interest”. (Mary Parker In this age of downsizing and restructuring global
Follet). Comment (10 marks) (Administrative Thought) companies have fallen due to lack of communication
To Follet , conflict is not warfare , but is only an and trust, the new change of policies is to leadership
appearance of difference- difference of opinion ,of and management should go hand in hand to fulfill
interests ,not only between employer and employees, pan-organizational objectives.
but also between managers, between directors or
wherever differences appear. Because of the distinct e) “Administrative Law is recognized by its substance
nature of human behavior, conflict is bound to take rather than its form .” Discuss(10 marks)
place in an organization. (Administrative Law)
The claim that administrative law focuses on form,
Follet says , it is possible to conceive conflict as not rather than substance, is largely associated with the
necessarily a wasteful outbreak of incompatibilities, but criticism that the federal system which was introduced
a normal process by which socially valuable differences in the 1970s is too heavily dominated by legal
register themselves for the enrichment of all concerned. procedures and the judicial approach to the detriment of
quality in substantive decision- making. To that extent,
Follet suggests three ways of resolving social conflict : the claim is one which was present to the minds of the
domination, compromise and integration. Domination members of the Kerr Committee when they delivered
implies coercion and persuasion and is a victory of one their report recommending the establishment of the
side or the other. Compromise means each side gives present system. All these suggest that substance - the
up something in order to have peace. Integration is a application of the rule of law to administrative action -
synthesis of competition and cooperation which gives lies at the heart of judicial review. And merits review
rise to creative solutions. should reinforce that characteristic of judicial review.
d) “Leaders do the right things; managers do them Q2) (a) New Public Management has been branded by
rightfully” – (Warren Bennis) . Is this distinction by him certain scholars as ‘Neo-Taylorism’ . Is it a justified
valid ? Explain(10 marks) (Administrative Behaviour) comparison? What factors have led to the decline of
This is the primary difference between a good manager NPM as soon after its birth?(20 marks) (Introduction)
and a good leader. It’s a distinction that speak volumes NPM known as ‘Entrepreneurial Government’ aims at
about a role that seeks to both manage and lead in an efficiency, effectiveness and economy in the
organization. Leaders have followers and Managers performance of public sector by employing managerial
have subordinates. tools as performance appraisal, cost cutting, market
orientations etc. NPM is a market ideology that talks
A good manager can accomplish only that has been about importing ideas generated in private organisation
defined for him or her, yet a good leader constantly into public sector organizations so that it can
effectively achieve its goals in the changing what motivates someone may differ from person to
environment of LPG. person.
Both Maslow’s and Herzberg’s theories point out that
Neo-Taylorism is concerned with internal organisation money cannot be the only motivator for an individual to
of the bureaucracy like introducing certain techniques work. Compared to earlier theories, emphasize the
and methods from private management into public meaning of recognition and responsibility, these
sector. motives can be found both on level four of Maslow’s
hierarchy and within the motivating factors of
Herzberg’s model. Herzberg was focussing particularly
Factors led to the decline of NPM : on work motivation while Maslow’s approach tried to
1. It sidelined publicness aspect of public describe overall human motivation.
administration.
2. There is a conflict between citizen orientation d) Civil Society supplements and complements the
and customer orientation. State. However, its capacity and role depend upon the
3. NPM perspective fails to present a concept of will of the State. Comment (15 marks) (Accountability
public accountability. and Control)
4. NPM fails to assign important place to policy Civil society is a non-governmental, voluntary groups of
making. citizens that organize themselves on behalf of
5. NPM fails to clarify the relationship advancing some public interest. Civil society works in
between citizens and political partnership with the state to complement and
representatives. supplement its capacity for responsible and transparent
6. NPM perspective , the idea of rollback of state governance. An active local civil society is an indicator
does not appear viable in a developing country of a functioning and democratic state as an alternative
like India. voices distinct from the state or the market.
(c) “Abraham Maslow’s ‘ Hierarchy of Needs’ and The political consequences of a weak state capacity
Frederick Herzberg’s “Two Factor Theory” have would vary according to the extent of the state's control
commonalities in the analysis of human motivation .” of the society, and the strength of civil society. Civil
Comment (15 marks) (Administrative Behaviour) society is 'strong' when the web of voluntary
Herzberg’s theory is consistent with Maslow’s hierarchy associations is dense, the associations in question are
of needs while Maslow talks of needs or motives, highly autonomous from the state, and the web has a
Herzberg concentrate on the goal or incentives which high capacity for self-regulation through bargaining
satisfy these needs. These are several examples in work among its units. The relationship between civil society
settings. Money and fringe benefits satiate and the state is best understood based on two
physiological and security needs. Motivators such as dimensions: autonomy and capacity for self-regulation.
increased responsibility, challenging work and growth Even in the most democratic of societies, the autonomy
and development satiate the esteem and self of private associations is limited by institutions, the
actualization needs. Maslow's and Herzberg's theories state in particular, and the self-regulation of conflict
is that they are content theories; both build on the same among representative associations is always
assumption that all individuals' posses the same set of constrained by the legal, administrative, and political
needs .Both theories accept that individual differences framework within which they operate.
may exist, in the way a person moves up the hierarchy or
The strength of civil society and the capacity of the
state are central factors in all the socio-political b) “Executive position imply a complex morality and
processes involved in the economic and political require a high capacity of responsibility” – (Chester
transformations. Bernand). Comment (15 Marks) (Administrative
Thought)
Q3) a)The Participative Management School of Argyris Barnard asserted that responsibility is the property of
and Likert advocates democracy within the an individual by which whatever morality exists in him
administrative system. Will this approach be equally becomes effective in conduct and Executive positions
useful to developing countries with evolving a. imply a complex morality, and
democracies?(20 marks)(Administrative Behaviour) b. require a high capacity of responsibility,
Participative management means involvement of c. under conditions of activity, necessitating
workers in management and decision making process. d. commensurate general and specific technical
In a sense, it is the sharing of power and authority abilities as a moral factor. Thus the endurance
between workers and management. It is a measure of organization depends upon the quality of
directed towards minimisation of class- feelings at the leadership; and that quality derives from the
workplace. In the workplace, this concept is sometimes breadth of the morality upon which it rests.
considered industrial democracy. The most extensive
form of participative management is direct employee Executive responsibility flows from leadership which is
ownership . the aspect of individual superiority in determination,
persistence, endurance, courage; that which determines
According to Likert (1961), the lowest level of the quality of action; which often is most inferred from
participation occurs where employees are given no what is not done, from abstention; which commands
information about the current situation or proposed respect, reverence.
changes in a business organisation. McGregor (1971)
envisaged the maximum participation occurring where Executive responsibility, then, is that capacity of leaders
the manager is indifferent to several alternatives and by which, reflecting attitudes, ideals, hopes, derived
allows workers to choose among them. largely from without themselves, they are compelled to
bind the wills of men to the accomplishment of
The Gandhian approach to participative management is purposes beyond
known as ‘Theory of Trusteeship’, where both capital their immediate ends, beyond their times. Even when
and labour are to function as trustees of each other and these purposes are lowly and the time is short, the
in combination become joint trustees of the property transitory efforts of men become a part of that
belonging to the community. It recognises the right of organization of living forces that transcends man
workers to participate in management. Gandhiji believed unaided by man; but when these purposes are high and
in gradual reduction in the power of management and the wills of many men of many generations are bound
its transfer to voluntary associations. The other most together they live boundlessly.
common approach to participative management in the
non-socialist countries is based on eclecticism. c) When the media is controlled by vested interests,
Participative management is introduced due to one or how can it control the vested interests in the
more reasons and later on its contents are modified to government? How can the media become more
suit the local conditions. The eclectic approach responsible and impartial ?(15 marks) (Accountability
emphasises on ‘joint consultation’. and Control)
The influence of corporate and vested interests was and Marxian. The absolutist tradition anticipates the
made particularly apparent by the leaking of tapes liberal democratic and Marxian traditions.
recording conversations between Niira Radia with Administrative traditions in places where absolute
clients such as a variety of business men, politicians, power was concentrated in the monarch can be termed
and journalists. In the absence of cross- media absolutist. In Indian history the earliest work dealing
restrictions and with government policies contributing with the absolutist tradition is Kautilya’s Arthashastra.
to further corporatization, diversity of news flows could Woodrow Wilson’s essay entitled ‘The Study of
be adversely affected contributing to the continuing Administration’, identified for understanding the
privatization of information instead of making “public evolution of the subject within the broad paradigm of
good”. liberal democracy. Marxist interest in the bureaucracy,
organisation and management became pronounced only
There is also considerable awareness that the media in the decade following the Second World War.
should be responsible in what and how it reports, and
how it ought to distinguish between giving information Golembiewski may be understood in terms of locus and
and editorialising. The ‘self regulation’ is possibly the focus. To him locus is the institutional ‘where‘ of the
mechanism most capable of striking the right balance field while focus is the specialized ‘what‘ of the field. On
between freedom and restraint. this basis, he has outlined the following four
developmental phases of Public Administration:
The role of media in times of public crisis — be it ● Phase I: The analytic distinction of politics
disaster management or terror attacks is clearly brought from administration.
out. In the case of the former the role of media is clear ● Phase II: The concrete distinction of politics
and simple — more information is better as it can only from administration.
help people who are affected, and help manage ● Phase III: A science of management.
disasters more effectively. The issue of international ● Phase IV: The pervasive orientation toward
terrorism and its spread raises fundamental questions public policy.
about the right to information of the public, policing by
the State and patriotism and loyalty. Nicholas Henry in his book entitled “Public
Administration and Public Affairs” has explained the
Q4)a) “With every major transformation in the applied evolution of the discipline keeping in view its
world of Public Administration , the study of Public definitional crisis into following five successive
Administration has grown in scope and intensity.” paradigms:
Discuss the relationship between the evolution of the ● Paradigm I: The politics/Administration
discipline and profession of Public Administration. (15 Dichotomy, 1900-26
marks) (Introduction) ● Paradigm II: The Principles of Administration,
1927-37
Public Administration as an independent and separate ● Paradigm III: Public Administration as Political
subject of study began in 1887. In order to understand Science, 1950-70
the profession of the discipline as a field of inquiry it ● Paradigm IV: Public Administration as
becomes essential to study its evolution. management, 1956-70, and
● Paradigm V: Public Administration as Public
Some of them have discussed it from the point of view Administration, 1970- Till Now
of traditions such as Absolutist, Liberal - Democratic
b)”Systems Theory” in essence is not a theory , but general control over delegated legislation is exercised
an approach to the study of administrative through the debate , through questions and notices and
phenomena.” Comment (15 marks) (Organisations) through moving resolutions and notices in the house.
A system is an entity with interrelated and Indirect control is exercised by Parliament through its
interdependent parts; defined by its boundaries and it is Committees.
more than the sum of its subsystem. Changing one part
of the system affects other parts and positive growth The factors for the ineffectiveness of parliamentary
and adaptation of a system depend upon how well the control over delegated legislation : The Parliament has
system is adjusted with its environment, and systems neither time nor expertise to control the administration,
often exist to accomplish a common purpose that aids the majority support enjoyed by the executive in the
in the maintenance of the system. Parliament reduces the possibility of effective criticism,
Parliament’s control is sporadic, general and mostly
A system can be defined as an entity, which is a political in nature and there is no automatic machinery
coherent whole such that a boundary is perceived for the effective scrutiny on behalf of the Parliament as
around it in order to distinguish internal and external a whole.
elements and to identify input and output relating to and
emerging from the entity. A systems theory is hence a SECTION B:
theoretical perspective that analyzes a phenomenon Q5) Answer the following questions in about 150
seen as a whole and not as simply the sum of words each:
elementary parts.Systems thinking comes from the shift a) “Budgeting is apolitical process” – (Aaron
in attention from the part to the whole , considering the Wildavsky) 10 marks (Financial Administration)
observed reality as an integrated and interacting unicum The budget process often suffers from a ‘democratic
of phenomena where the individual properties of the deficit’ due to the limited accountability provided by
single parts become indistinct. parliamentary scrutiny which is hindered by lack of
information but also Politics. Politicians are always
Under systemic perspective, instead need to apply a self-interested, short-sighted, politically motivated
global vision to underline its functioning. Although we individuals with little sympathy for technical analysis
can start from the analysis of the elementary and fiscal prudence. As a political tool, budget is value
components of a phenomenon, in order to fully ridden signalling the government’s ideological
comprehend the phenomenon in its entirety we have to commitment, political philosophy and policy platform. It
observe it also from a higher level: a holistic is a political statement of government policy expressed
perspective. in fiscal terms.
c) The principle of delegated legislation is, I think Budgets are also political documents, resulting from a
right, but I emphasise that it is well for Parliament to bargaining process that reflects the balance of power
keep a watchful and even zealous eye on it at all among different actors and interests within the
stages “- (Herbert Morrison ) Analyze. (15 marks) government and in the country as a whole. The
(Administrative Law) ritualistic nature of the budget formulation process
It is the legislature which grants legislative power to the serves the purpose of keeping taxpayers and donors
administration, it is primarily its responsibility to ensure happy, while during the budget execution phase the
the proper exercise of delegated legislative power, and attention shifts to maintaining political support, for
unwarranted use by the administration.Direct but
Public debt is the debt owed by a government. Today, the role of development administration is
Governments create debt by issuing securities, towards more of governance, then of direct
government bonds and bills. A broader definition of involvement. The development administration has to
government debt may consider all government play enabling, collaborative, cooperative, partnership
liabilities, including future pension payments and and regulatory roles.
payments for goods and services the government has
contracted but not yet paid. Governance implies that development administration
has to operate in a wider context and coordinate all
Governments incur debt when their spending desires efforts and activities of the governmental agencies at
exceed their receipts from taxes and other income various levels with that of the market/the private sector,
sources, and that the debt is ultimately repaid through a civil society groups, NGOs and contextual participant or
levy of taxes in excess of current spending and reduced elected local government bodies, self-help groups, etc.
services. Although it appears that its directly handled operations
have declined in some of the non-traditional areas,
Fiscal policy is the use of taxation and government development administration has to provide synergy and
spending for the purposes of macroeconomic goals. direction for many collaborative, cooperative and
Expansionary fiscal policy features increased regulatory activities with other segments of the society.
government spending and/or decreases in the tax rates,
while contractionary policy is the opposite (lower b)” Lateral entry of competent experts into the
government spending and/or higher tax rates). government will promote freshness and innovation, but
it can create problems of accountability.” (15 marks)
Q6 (a) “Liberalization, Privatization and Globalization (Personnel Administration)
have transformed the nature of development Lateral entrants may not only bring specialised
administration .” Discuss (20 marks) (Development expertise, good practices and work culture, but they
Dynamics) could also induce competition within the system. When
The role of development administration under LPG civil servants are made to compete with outside talent,
requires dismantling of a regime of regulations, the lethargic attitude will diminish. So the prospects of
controls, restrictions, licences, secrecy and delay. The lateral entry will always propel overall efficiency. The
development bureaucracy has to play an investor Sixth Pay Commission and Second Administrative
friendly, responsive, transparent, open and competitive Reforms Commission (ARC) were unanimous on lateral
role. So, this requires necessary administrative reform, entry.
which should aim at the elimination of redundant
practices, procedures, administrative laws and Transparency and accountability are two important
corruption. Thus, the policy of LPG affects the role, factors that should not be underplayed in hiring lateral
values and skills of development bureaucracy. It also entrants. Discretion on lateral entry may pave the way to
decreases the scope of the functions of the state, charges of being “politically motivated”, which may
resulting in a minimum of state interference in the lives degrade the system. For this, the ARC recommended the
of the individuals. The state is called upon to oversee establishment of a central civil services authority to
the operational side of the enterprises. This gives the deal with issues concerning lateral entries. But the body,
state a new role as regulator. which would have ensured a robust and accountable
system of lateral entry, is yet to come into existence.
Civil servants should also be encouraged to move out Fred, Riggs developed the “Fused-Prismatic-Diffracted”
and work for different sectors on a short-term basis to model to explain the differences between
enrich their knowledge and enhance their motivation underdeveloped-developing-developed societies and
and efficiency. Therefore, lateral exit is as important as their corresponding stage of development vis-a-vis their
lateral entry. This has the potential to raise the civil administrative structure and ethos. His ecological
services from its slump. approach emphasizes the interaction between
institutions and their contextual factors such as social
c) “There can be no performance auditing without structure, tradition and culture. This classification was
performance budgeting ``.( 15 marks) (Financial inspired by the Max Weber’s typology of Traditional
Administration) Charismatic Legal-Rational Authorities.
Performance means the yield or results of activities
carried out in relation to the purposes being pursued. Its Charismatic: By virtue of possession of charisma or an
objective is to strengthen the degree to which exceptional quality, a hero or a leader casts a spell over
governments achieve their purposes. his followers, who accept his domination because of
their faith in the person.
The need to enhance public sector performance has
become more urgent as governments face mounting ● Traditional: The legitimation in this form comes
demands on public expenditure, calls for higher quality from the belief in the goodness of the past, in
services and, in some countries, a public increasingly the appropriateness of traditional ways of doing
unwilling to pay higher taxes. Performance budgeting things.
and performance management seek to move the focus ● Legal: Legitimation of legal type of domination
of budgeting, management and accountability away is based on the belief in the rightness of law.
from inputs towards results, i.e. better value for money.
Performance audit refers to an independent Riggs introduced a new model for studying the
examination of a program, function, operation or the bureaucracy in the Third World transitional, developing
management systems and procedures of a countries and argued that the Weberian model is not
governmental or non-profit entity to assess whether the suitable for studying the administration in such
entity is achieving economy, efficiency and countries. The Riggsian model called the
effectiveness in the employment of available resources. “sala--prismatic” model of bureaucracy recognizes both
administrative rationality and non-administrative
Performance auditing relationship to performance considerations. This model is typical for developing
budgeting, varies between countries, based on the countries having factors such family, kinship and caste
scope and nature of the both the performance auditing considerations, community feeling, nepotism,
function and performance budgeting. corruption, which play an important role in
administrative recruitment, administrative functions and
decision-making. This model is, however, considered
Q7(a) “The Riggsian models of Fused too broad, too over-generalized and abstract.
–Prismatic-Diffracted Societies and their
administrative systems have been inspired by Max (b) “Bureaucracy has inbuilt limitations to act as the
Weber’s typology of Traditional Charismatic prime catalyst to multi-faceted development in a
Legal-Rational Authorities .” Analyze( 20 marks) democratic country”. Analyze this statement with
(Comparative Public Administration)
appropriate examples ( 15 marks) (Development 1. The purpose of statutory audit is to hold the
Dynamics) government accountable for how it is spending
The bureaucracy and Development have been famous taxpayers' money.
and complex terms and growth of sound Bureaucracy 2. Being subject to a statutory audit is not an
has been considered unavoidable for development. With inherent sign of wrongdoing. Instead, it is often
the end of colonialism and imperialism, there has been a formality designed ,the same also applies to
a constant change in the priority areas of government. other audits.
Though the developing countries rely upon bureaucracy 3. The purpose of a statutory audit is to determine
for their developmental requirements, the bureaucrats if funds were handled properly and that all
themselves owe their way of functioning to the required records and filings are accurate. If
imperialist requirements where people were subjugated inaccuracies are found, appropriate
to serve the interests of government in power. consequences may be levied.
A social audit is a formal review of a company's
After the countries gained independence, under endeavors in social responsibility. Civil society
planning raj, the attitude of those who were required to organisations (CSOs), Non-governmental organizations
act as change agents did not change in a similar (NGOs), political representatives, civil servants and
manner. This resulted in a slow pace of development. workers of Dungarpur
The reasons for such sub-optimal performance of district of Rajasthan and Anantapur district of Andhra
bureaucrats are manifold like power-conflicts within as Pradesh collectively organise such social audits to
well as outside the bureaucratic arena, bribery, prevent mass corruption under the Mahatma Gandhi
corruption, and nepotism play a significant role in National Rural Employment Guarantee Act (MGNREGA).
deterring the system to function well but any effort to 1. Social audits are optional.
curb the menace will not succeed unless the 2. A social audit is an internal examination of how
bureaucracy itself is receptive to proposed changes. a particular business is affecting a society.
3. In the era of corporate social responsibility,
c) Can be say that statutory audit and social audit are Good public relations is key; the way a company
two sides of the same coin? Or, are they separate coins is perceived usually has an impact on its
with varying values?(15 marks) (Accountability and bottom line.
Control) 4. A social audit examines issues regarding
The term statutory is used to denote the audit is internal practices or policies and how they
required by statute. The purpose of a statutory audit is affect the identified society.
to determine whether an organization is providing a fair 5. As a social audit is completely voluntary, the
and accurate representation of its financial position by results of the audit are not required to be
examining bank balances, bookkeeping records and released to the general public or any regulatory
financial transactions. It is governed by the Indian agency.
Accounting Standards (Ind-AS) issued by the Institute of
Chartered Accountants of India from time to time. A Q8( a) “Various components of Human Resource
Chartered accountant holding a certificate of practice in Management are inter-related .” Discuss (20)
India is qualified to be a statutory auditor of an entity. It (Personnel Administration)
is mandatory for a company in India to get the Statutory Human resource management (HRM or HR) is the
Audit of its financial statements done according to the management of human resources. Human resource
provisions of the Companies Act 2013. management is about recruiting, hiring and managing
employees. Some of the components of human In the words of GlanStahl ‘Problem of ethical conduct of
resource management system are Payroll, Time public official arises by virtue of the power and influence
Management, Benefits, Recruitment, Training, and HR that he commands and the commitment that he
Administration. undertakes of loyal and disinterested service to the
public’
The Payroll helps to prepare to deposit the remuneration
amount into the employee account. Time Management India has not developed any ethical code for public
helps to prepare details such as work hours of the administrators, here we have , the government servant
employee for a particular month. The Social Benefits conduct rules. It lay down what constitutes misconduct
helps to keep track of insurance, compensation, and for the public servant. Such misconduct, which is not
retirement benefits of the employee. permitted, is also unethical conduct. Keeping in view the
growing role of administration in preserving and
The Recruitment is used to select the right candidate for promoting public interest, the issue of administrative
the various posts in the organization. Recruitment and ethics by the civil servants has gained vast significance.
retention may seem like a given for HR management
systems, it is the anchor of all HR's policies and c) “Off all the processes involved in public policy,
systems. implementation is of greatest importance.”Examine the
impediments in policy implementation (15) (Public
Almost all employees , require some level of training Policy)
because each organization runs things in a different It is, perhaps, for its importance that some scholars
way. After finalization of recruitment with the help of HR refer to the policy implementation stage as the hub of
administration, the training process begins. policy process. Fundamentally, policy implementation is
the process of translating a policy into actions and
HR Administration prepares HR related documents. presumptions into results through various projects and
They explain company policies and procedures to programmes . The pattern and nature of policy
employees. implementation is the major explanation for the failure
or success of any given policy. The implementation of a
b) “Administrative ethics includes the code of conduct policy is the most vital phase in the policy process as it
of civil servants, but goes beyond it as well.” Discuss is at this stage that the success or failure of a policy is
(15) (Personnel Administration) determined. In order words, the hallmark of any
Administrative Ethics denote the professional code of successful policy is effective implementation as it is
morality in civil services. Code consists of traditions, only effectively implemented policy that solves societal
precedents and standards which have to be kept up by problems.
the civil servants. It constitutes the moral fiber of civil
servants. It regulates the conduct and behaviour of Impediments in policy implementation :
different categories of civil servants. In the context of 1. Legal and institutional barriers
the growing size and role of administration and its 2. Financial barriers
impact on the society, the civil servants are expected to 3. Political and cultural barriers
set-up high moral standards not only for themselves but 4. Practical and technological barriers
also for the community at large. Successful policy implementation requires not only
adequate financial resources and the backing of local
PUBLIC ADMINISTRATION 2017 PAPER-2
SECTION A feels empowered, making him or her participate in
Q1) Answer the following questions in about 150 words nation-building with full vigour and enthusiasm. As a
each: result, the law that has emerged having been interpreted
a) “Constitutionalism is the foundation of the by the Constitution Bench of Indian Supreme Court
administrative edifice in India.” Discuss (10 marks, navigates through diverse social, economic, political,
150 words) (Philosophical and Constitutional cultural, historical and ethical moors. This has made the
framework of government) Constitution of India a living organic document keeping
Constitution is descriptive of a complicated concept, pace with the changing times.
deeply embedded in historical experience, which
subjects the officials who exercise governmental b) “The status and functioning of the Cabinet
powers to the limitations of a higher law. Secretariat face a stiff challenge from the Prime
Constitutionalism proclaims the desirability of the rule Minister’s Office (PMO).” Argue both in favour and
of law as opposed to rule by the arbitrary judgement or against the contention.(10 marks, 150 words) (Union
mere that of Public officials. Throughout the literature Government and Administration)
dealing with modern Public Law and the foundations of The cabinet secretariat, is supposed to act as a link
statecraft the central element of the concept of between the prime minister and the central ministers
constitutionalism is that in political society government and the chief ministers but also between the secretary
officials are not free to do anything they please in any of the federal government and the chief secretaries of
manner they choose, they are bound to observe both the the states. Both of Cabinet Secretariat and PMO are
limitations on power and their procedures which are set headed by the Prime Minister, first one as the head of
out in the supreme, constitutional law of the community. the cabinet and other one as the office of PM.
It may therefore be said that the touchstone of
constitutionalism is the concept of limited government Nehru was interested in having a powerful and
under a higher law. professionally competent PMO to assist him and advise
him in decision making and agreed to the persuasion
Constitutionalism is the primary edifice on which the that he should use the institution of the cabinet
Indian democracy stands. The rule of law is the secretariat for this purpose and at the most the
hallmark of our democracy, due to which every Indian secretariat of the External Affairs Ministry.
Accordingly, the PSEs were exposed to competition (Philosophical and Constitutional framework of
from domestic private sector companies as well as government)
large multinational corporations. Given the competitive Until the end of the 1970s, and to a large extent even in
environment, the PSEs undertook significant initiatives the 1980s, development was state-directed and
for upscaling technologies and capacities in order to state-driven. The preamble pointed out that the priority
operate at par with the private counterparts in the given to the concept of justice as compared to liberty,
liberalized economy. The continued focused efforts equality and fraternity and to social and economic as
towards achieving excellence have helped several of the compared to political justice. To achieve the ideals of
PSEs to become self-reliant and to play a critical role in social and economic justice the state is required to
building the Indian economy. involve in different social justice schemes like
reservation for SC/ST/OBCs, MGNREGA, Mid Day Meal
e) Do you agree that “All India Judicial Service (AIJS) Scheme, Sarva Sikha Abhiyan, etc. A fundamental shift
would contribute to timely delivery of justice to the from this perception to one supporting a liberalised
citizens? Argue your case(10) (Union Government and economy occurred in the early 1990s.
Administration)
The proposal to create an All-India Judicial Service Social development has many dimensions.Equally,
(AIJS) along the lines of the All India Services (AIS) is growth does not automatically result in increased social
one that has been endlessly debated since the idea was sector expenditures. There has to be a definite policy
first mooted by the Law Commission in the 1950s. focus. Social sector expenditure must be prioritised to
reflect the needs of the society. The administrative
This is also a proposal with serious drawbacks.If the framework and delivering systems must be such as to
answer is to fill up vacancies faster, compare the maximise benefits. Reforms, to be credible, must not
vacancy position in the AIS and the subordinate only result in higher growth but also benefit all sections
judiciary. The total number of positions in the of society. Government must therefore, pursue a two-
subordinate judiciary as of October 2016 was fold strategy: of accelerating growth through an
21,374 while the total number of sanctioned posts for appropriate reform agenda and deploying the surpluses
the three AIS was 14,355. Of these, 22.67% of the posts generated through growth to augment social welfare.
were vacant in the subordinate judiciary while it was The market reforms of our country are focussing more
20.47% of posts in the AIS. It is likely to be a and more on the expansion of capitalism and
combination of delays, cost, uncertainty, inefficiency privatisation, and continuously focus is diluted from the
and corruption. Not one of these problems is solved to issues of social justice except in certain conditions
any degree by centralising the manner of recruitment of when state intervenes is indispensable to control the
judges. On the contrary, this endless, stagnant debate market forces i.e. demand and supply.
on the AIJS only takes up time and energy instead of
focussing attention on implementing more direct b) “The idea of lateral entry into the Civil Services
solutions to address the problems of the Indian would energies Indian administration.” What are its
judiciary. possible advantages and limitations? (20) (Civil
Services)
Q2) a) “The market reforms have not infringed the With recommendations of the Seventh Pay Commission,
basic structure of the Constitution of India, but have the debate on lateral entry into the civil services has
largely comprised the realization of the ideals of social restarted. The idea of lateral induction is not new.
and economic justice.” Comment (20 marks)
Q3)a) “The position of council of ministers in a state The features of the British administrative system, like
is reduced to that of a body of a secretary in the Central and state administration, Civil Services, District
presence of a domineering of chief minister.” Critically and Regional administration, the procedures of work,
analyse with examples (20) (State Government and Rule of law, and Local government, etc. continue to be
Administration) the main points of the present Indian administrative
The Constitution provides that there shall be a Council system.
of Ministers with the Chief Minister at the head in a
state to aid and advice the Governor. The governor Sardar Patel was instrumental in the creation of the All
appoints the Chief Minister and further on his advice India Administrative Services which he described as the
appoints/dismisses other Ministers. The Chief Minister country’s “Steel Frame”. In his address to the
allocates or re-allocates the portfolios and departments probationers of these services, he reminded them that
among the various ministers. the ICS was neither Indian, nor civil, nor imbued with any
spirit of service. He asked them to be guided by the
CM summons and presides over the meetings of the spirit of service in day-to-day administration.
Council of Ministers and monitor and coordinate their
work. If there is any conflict of opinion between the c)” Digitalization of land records is a necessary but not
Chief Minister and any other minister, the latter has to sufficient precondition for ensuring transparent district
resign. If the Chief Minister resigns, the entire Council administration.” Explain (10) (District Administration
of Ministers is bound to resign. It is clear from the since Independence)
above discussion that the position of council of The main components of the programme are:
ministers in a state is reduced to that of a body of a computerisation of all land records including mutations,
secretary in the presence of a domineering of chief digitisation of maps and integration of textual and
minister. In support of this claim the example of Chief spatial data, survey/resurvey and updation of all survey
Ministership of Digvijay Singh in MP, Jayalalitha in TN and settlement records including creation of original
and Mayawati in UP can be quoted. cadastral records wherever necessary, computerisation
of registration and its integration with the land records
b) “Indianisation of Public Services is a slow but maintenance system, development of core Geospatial
steady process.” Explain (20)( Evolution of Indian Information System (GIS) and capacity building.
Administration)
India became independent in August 1947 and a new In the digitisation process, the tehsildars would first
Constitution was framed and adopted on January 26 compile land data. Complete details of a parcel of land,
1950 with India became a republic. Britisher’s governed from the original owner, period of ownership, year of
the country by establishing various institutions. Though purchase to number of transactions to the current
Indians were happy to get rid of the colonial rule it was status of land, the revenue officials need to collect all
soon realised that the governmental system and these details and take an image of the land (property).
administrative apparatus developed by the Britisher’s For records on land availability, a fresh survey of lands
was capable of meeting all the needs of the country. would be conducted and every parcel of land counted
therefore, the same administrative system was and details noted. After this, digitisation process
maintained even after independence of course, with begins. Online data would be compared with the manual
some changes as per the requirements of the time. data to rule out any errors. Digitisation of land records
would ensure requisite details - map of the land,
mutation, photo ID, etc. – a step towards conclusive considered to be 'a linchpin' in the administration. The
ownership. functions of chief secretary by and large depend upon
the role he opts to play in the workings of the state
Q4( a) “ Bureaucracy has to balance the need for government. There are all sorts of examples of strong
environmental sustainability and developmental and weak chief secretaries playing the alter ego of the
imperatives .” Discuss (20) (Philosophical and chief minister. In addition to
Constitutional framework of government) enormous amount of authority, dignity, status and
The topic of ‘bureaucracy, development and influence the chief secretary is a sort of administrative
environment’ is of profound significance both for the head who is linked with every organ of the state
academic seeking to unravel the developmental government. Chief Secretaries are chosen by the Chief
phenomenon in societies inhabited by nearly two-thirds Minister.
of the world’s total population and for the country as a
whole. At the same time, the subject is The job of Chief Secretary itself includes the following
multidimensional, being amenable to discussion from a important responsibilities in a State administration:
variety of angles and perspectives. While not ❖ guardian of the morale of the civil services and
underrating the validity and worth of such disquisitions, in particular the All India Services;
it seeks to address itself to questions, such as what ❖ design and continuous improvement of
peculiar challenges public administration in general, and administrative systems;
bureaucracy in particular, are likely to face in India in the ❖ human resource development in the civil
context of development as embodied in the nation’s services;
most authentic developmental blueprint, namely the ❖ preserve integrity, neutrality and
Fifth Five Year Plan. The aim of ecologically sustainable responsiveness in the civil services;
development is to maximise human well-being or quality ❖ as a holistic representative of the government,
of life without jeopardising the life support system. The ensure an integrated image of the government
development policy should follow the following norms internally and externally;
to balance the need for environmental sustainability and ❖ install and activate appropriate long-term
developmental imperatives : planning, implementation and evaluation
1. Make all attempts to not impair the natural systems.
regenerative capacity of renewable resources
2. All planning strategy must attempt
non-renewable to renewable resource
3. A phase-out policy for non-renewable resources c)’District Planning Committee (DPC) has been the
weakest structure in the local self-government
b) “The chief secretary is often termed as the alter ego mechanism in India .” Analyze with examples (10)
of the Chief Minister.” Discuss, with examples, the (District Administration since Independence)
dynamics of their relationship in State administration. District Planning Committee (DPC) is the committee
(20) (State Government and Administration) created as per article 243ZD of the Constitution of India
Chief Secretaries are members of the Indian at the district level for planning at the district and
Administrative Service (IAS) and functions as the below.
central point of interdepartmental coordination at the
departmental level. Chief Secretary is considered to be ● All States and Union Territories except
the Chief Executive of the state government and Meghalaya, Mizoram, Nagaland, J&K and NCT
of Delhi are required to set up District Planning a) “The institution of Gram Sabha has very little
Committees in accordance with Article 243ZD connection with the Gandhian spirit of direct
of the Constitution of India but in many states it democracy.” Critically examine (10) (Rural
has been not yet constituted. Development)
● There is confusion in states as to whether the The spirit of the 73rd Amendment to the Constitution is
DPC is to be established as a separate and to take the democratic governance and its institutions
permanent office or whether it denotes only a to the grass root levels and it states In all states there
meeting that is periodically called and which shall be a Gram Sabha in each village to which the
can be serviced by a part-time secretariat. Panchayat will be accountable. The power and function
● There is a feeling that the DPC ought not to shall be assigned by a law passed by the state
emerge as yet another layer of bureaucracy to legislature. For, it is the only way to realize the value of
vet people’s plans. As a result the steps taken democracy from the grassroots level as it will enable
to operationalise the provisions of Article 243 the people to participate in taking and implementing
ZD of the Constitution of India by the States decisions without a rigid and strict control of any higher
have been far from satisfactory. authority. Moreover, it is the only alternative to reduce
● The fact that the DPC is held intermittently and the interference of the state in day-to-day affairs of the
without permanent support undermines its people. Gandhi never believed in half-way house
effectiveness as a constitutional institution and democracy, or disinterest decentralization. Thus, his
a coordinating mentor. linking for decentralization originates from his urge for
Despite shortcomings DPC should become the base of the shrinking of the state and the deepening of the roots
the planning effort in the district, and should have the of democracy. By the Gandhian conception of
capacity to undertake the tasks expected of it. democratic decentralization, the higher units of the
government get their strength and power from the lower
units. As a result, the panchayat has to be the basic unit
of democratic decentralization and the higher units will
have to coordinate the activities of the village
panchayats with a view to increasing the efficiency and
skill of administration and public service.
b) “There is a need for greater inclusion of technocrats
in bureaucracy to ensure effective governance in
India.” Do you agree” Elucidate (10)( Civil Services)
To recruit persons possessing expertise, and skills in
public administration and to place them in positions
without loss of time, suitable structural changes in the
civil service would seem urgently called for. A much
larger number of experts and specialists will necessarily
Section B have to be inducted into the civil service and their role
and place in the generalist dominated syndrome of
Q5) Answer the following questions in about 150 words bureaucracy has to be appropriately reorganized.
each:
Measures towards enhancement of administrative Under the provisions of the Public Servants (Enquiries)
capabilities at all levels of government and all along the Act, departmental as well as public agencies can be
hierarchy must be formulated and put in operation right instituted against a public servant for his misconduct.
now without any further waiting. Stress may here be laid Not day-to-day dealings but more serious matter of
on the need for experts and specialists acquiring maladministration comes under the purview of this Act.
administrative experience and training to enable them to
move into positions of administrative responsibilities in The government has also created Department of
various areas and levels of government. Administrative Reforms and Public Grievances. This is
the nodal agency of the government for Administrative
Bureaucracy, at any rate, a considerable segment of it, is Reforms as well as redressal of public grievances. The
under an inescapable obligation to inculcate a enactment of Administrative Tribunal Act 1985 opened
disposition towards work in the field more especially in a new Chapter in the sphere of administering justice to
the rural areas and amongst the vulnerable sections of the aggrieved government servant and in some cases
the population. The rural and the social administrator public members.
bears a crucially important responsibility in putting
through the various programmes of action. This d) Do you think that Public Service Guarantee Acts
demands structural and procedural changes in public passed by various State Governments are an extension
administration and attitudinal changes in the to the Citizen Charter? Give reasons (10). (Civil
bureaucracy. A broadening of the social base of the Services)
latter would also seem necessary. Every public authority is required to publish a citizens
charter within six months of the commencement of the
c) “Civil servants should avoid airing grievances in the Act. The Charter will detail the goods and services to
media.” In the context , discuss the grievance redressal be provided and their timelines for delivery.
mechanisms available to the Civil Servants in
India.(10) (Civil Services) Various state governments implemented the Public
The cardinal principles of civil service, viz. Service Guarantee Act with an aim to provide public
professionalism, anonymity, integrity and neutrality, are services in a time-bound manner. The Public Service
slowly withering. Guarantee Act included services pertaining to
departments of Police, Finance, Energy, Medical, Traffic,
A civil servant can move the court to seek remedy Public Health Engineering, Food, Housing, Water
against any wrong done to him in the course of Resources and Social Justice among others.
discharge of public duty. This is called judicial remedy.
Many kinds of administrative tribunals have been set up The Act provides for the right to public service to every
to provide cheap and speedy justice to the complainant. eligible person within the specified time limit in a
transparent manner. An eligible person can demand
Parliamentary Procedure provides for opportunities to performance of duties and functions in accordance with
raise questions in Parliament by the elected the Act. He is empowered under the Act to hold the
representatives concerning their constituencies. Also, concerned designated officer accountable for any
there is a Parliamentary Committee called the service deficiency. He is also empowered to seek
Committee on Petitions. compensation with respect to non- providing of service
or deficiency in service.
e) “The Office of Comptroller General of Accounts initiatives. “ Discuss some such initiatives by the Civil
(CGA) is expected to strengthen public financial Servants in this context.(20) (Civil Services)
management in India”. Discuss its mandate. (10) Government was almost the sole provider of goods and
(Financial Management) services, which left a lot of scope for ignoring one’s
Controller General of Accounts is the principal Accounts shortcomings. However, now, very often, people
Adviser to the Government of India and is responsible perceive that the private sector offers better services
for establishing and maintaining a technically sound than Government. Alternatives now being available in
management accounting system. several areas, the responsibilities of Government
officers have increased. This increase is not in terms of
He prepares a critical analysis of expenditures, scope of work, but in terms of the challenge.
revenues, borrowing and the deficit for the Finance
Minister every month. He also prepares annual The Prime Minister presents awards for Excellence in
Appropriation Accounts and Union Finance Accounts for Implementation of Priority Programmes and addressed
presentation to the parliament. Civil Servants on the occasion of the eleventh Civil
Services Day. V.S. Pandey, a senior IAS officer, Uttar
The Constitution of India provides for the manner in Pradesh cadre, joined hands with Julio Ribeiro, the
which the accounts of the Government have to be kept. former police chief, and a few others, under the
An Article of the Constitution provides for the creation auspices of a non-governmental organisation-styled
of a Consolidated Fund of India, Contingency Fund and India Rejuvenation Initiative (IRI), to file a writ petition
Public Account. on the need to ferret out black money owned by Indians
and stashed abroad.
CGA was set up in the Finance Ministry Department of The few mavericks who display a semblance of
Expenditure in 1975 to administer matters pertaining to remonstrance are heavily penalised so as to deter
departmentalization of accounts of Union. potential dissenters. It is this sordid state of affairs that
Justices Chelameshwar and Sikri will have to be hailed
The duties of CGA include: for coming squarely to the rescue of a hapless senior
a. Prescribing the form of accounts relating to the official of the U.P. government for his alleged
Union and State Government. intransigence.
b. Laying down of accounting procedures.
c. Framing and revising rules of accounting by b) “Implementation of Goods and Services Tax (GST)
Central (civil) Accounts officer. has led to a paradigm shift in the Centre-State
d. Consolidation of the monthly and annual relations , both financially and politically .” Analyze
accounts of the Government of India. with examples (20) (State Government and
e. Administration of rules under Article 283 of the Administration)
Constitution. The implementation of GST charts a new course for
f. The Controller General of Accounts prepares fiscal federalism in India. It paves the way for India’s
the condensed form of the appropriation largest-ever tax reform. It defines a new vision of
accounts and the finance accounts of the Union federalism where the tangles between the Union and
Government. state governments in the exercise of their taxation
powers give way to collective and harmonious tango.
Q6) a) “The Prime Minister's Awards for Excellence in
Public Administration encourage good governance GST enshrines the following guiding principles :
● First, the tax will apply to both goods and Indian Army, ONGC, Coal India and the Supreme Court,
services and any mixture of the two. among others, are on the list of over 600 defaulters who
● Second, the tax will apply to the full supply have failed to file the mandatory annual RTI returns,
chain and by way of sale or lease or any other giving the details of the number of cases that they have
arrangement. handled.
● Third, tax will apply only on a destination, rather Harassment and murder of RTI applicants across the
than origin, basis. country is also a grave challenge, forcing the court to
● Fourth, tax can be levied on a given base by step in and to ask authorities to give special protection
both the Centre and the states concurrently. to RTI applicants. But the Centre is simply passing the
Presently, taxation powers of the Centre and the buck to the law- enforcing machinery of state
states are mutually exclusive. governments.
● Finally, no tax can apply to impede the free flow
of goods and services in the common market of Q7(a) “Disaster preparedness and management has
India. become an important component of district
The biggest apprehension of the states has been the administration in India.” Discuss with suitable
loss of fiscal autonomy. The Constitutional Amendment illustrations (20) (Significant issues in Indian
strikes a delicate balance between the demands of the Administration)
fiscal autonomy of the states and the need for District administration is most important parts of the
harmonisation of 38 different taxes. Indian administrative system for disaster management.
It was hierarchical sub-system of the state
● First, the Centre and the states retain the power administration performing the specific tasks assigned
to design taxes as they consider appropriate to it and was developed to bring the totality of
within the defined framework. government closer to the people.
● Second, the states have insisted on the 1. At the district level, the District Magistrate is
exclusion of large chunks of the economy such the chief coordinator, focal point for
as petroleum, alcohol, electricity and real estate coordinating all activities relating to prevention,
from the GST base. mitigation and preparedness apart from his
● Third, the states have also retained the existing responsibilities pertaining to response
autonomy to set the tax rates under GST within and relief.
a narrow band of 2%. Finally, the states have 2. The District Coordination and Relief Committee
been given assurance of compensation for any is being reconstituted/re- designated into
loss in revenues for a five year period. Disaster Management Committees with officers
from relevant departments being added as
c) “The Right to Information (RTI) has started its members.
journey but is far from its destination.” Comment (10). 3. The district heads and departments engaged in
(Significant issues in Indian Administration) development added to the DCRC so that
There is talk about "striking a balance" between the mitigation and prevention is mainstreamed into
need to have disclosure of information and the limited the district plan.
time and resources available with public authorities. 4. District Disaster Management Committees have
already been constituted in several districts and
The non-serious attitude of many public authorities are in the process of being constituted in the
towards RTI is a serious concern. For example, the remaining multi-hazard prone districts.
b) In view of the contemporary internal scenario should a. Colonial Legacy: The Indian police have not
“law and order” be made a part of the Concurrent List been able to wipe off the colonial stigma
of the Constitution of India? Justify your opinion (20) attached to them.
(Law and Order Administration) b. Archaic Laws : IPC, CrPC, Evidence Acts and
The role of both Union and States are equally important even the Indian Police Act, are basically
as far as the issue of “law and order” has been colonial in nature and have become old, archaic
concerned so placing “law and order” as a part of the and outdated.
Concurrent List of the Constitution of India is a c. Poor PCR : Police community relations in India
wonderful idea : are normally negative in nature. (iv) Poor Image
1. 'Police' and 'Public Order' are State subjects : The functional image of police in India is poor.
under the Seventh Schedule to the Constitution d. Overburdened organisation : An over burdened
of India and it is the duty of the State policemen unable to work with full efficiency.
Governments to prevent, detect, register the e. Politicisation, corruption and criminalisation of
criminals. Central Government supplements law-enforcement services
the efforts by providing them financial f. Absence of sensitization to women’s rights and
assistance for modernization, training and other above all human rights
infrastructure.
2. Intelligence inputs are regularly shared by the Some of the prerequisites to bring about improvement
Central Security and Intelligence Agencies with in police efficiency are the following:
the State Law Enforcement Agencies to prevent a. Organizational development
crime and law and order related incidents. b. Police Public relations transformation
3. The National Crime Records Bureau under the c. Modernization of police
Ministry of Home Affairs, is engaged in the d. Decentralization of police function e) Human
process of crime statistics with a view to help Rights training
the States to evolve appropriate strategies for
prevention and control of crime. Q8) a) Discuss, with sustainable examples, the
4. NCRB has established computerized systems emerging challenges faced by the Regulatory
at every District Crime Records Bureau (DCRB) Commissions as to the arbitrary agents between the
and State Crime Records Bureau (SCRB), across State and the market forces (20). (Significant issues in
the country, to maintain a National - level Indian Administration)
Database of Crimes. There are three sets of justifications for regulatory
interventions -- prevention of market failures, restriction
c)”The image of Indian Police can be improved if its or removal of anti-competitive practices, and promotion
structure and orientations are transformed radically.” of public interest.
Do you agree? Elaborate (10) (Law and Order
Administration) Market failure is a condition in which the market
The Police in India suffer with a variety of mechanism fails to allocate resources efficiently to
organizational, procedural, personnel and behavioural maximize social welfare. In such cases, regulation may
ailments and paradoxes. Various Committees and be necessary to protect consumer interests. In doing so,
Commissions, at the State and Central levels, have been regulation might bar the entry of new firms into the
set up from time to time revealed these paradoxes :
sector and protect the monopoly status of the a. POCA criminalised only bribe-taking and not
incumbent operator. bribe-giving.
In India, because of the adoption of regulatory reforms, b. POCA does not stipulate a time limit for
rising demand and fixed cost reducing technology, completion of trials relating to corruption.
telecom is no longer a natural monopoly. The electricity c. Prosecution of public servants under POCA
sector was originally a bundled monopoly but requires prior sanction from the competent
unbundling has led to the introduction of competition in authority.
certain segments. Two segments, transmission and After India’s ratification of UNCAC, the Government of
distribution, are still natural monopolies. The water India initiated measures to amend POCA to bring it in
sector is still a natural monopoly and completely line with international standards. These included –
controlled by the government. Asymmetric information
is a situation where one party to a transaction knows a. Prosecuting private persons for offences,
more about the product than another. This prevents the b. Stipulated time-limits for trials,
market mechanism from achieving an efficient c. Take control of tainted property,
allocation of resources. For example, a patient at a d. Handling the act of offering as bribe
clinic knows less about his ailment and necessary
treatment than his doctor, a situation the latter can c) “The Second Administrative Reform Commission
manipulate to his advantage. This creates a role for (ARC) makes a strong case for the principle of
regulation of market transactions or provision of subsidiary .”Elaborate (10) (Administrative Reforms
information by a third party to remove or minimise since Independence)
information asymmetries. The Second Administrative Reforms Commission had
been set up in 2005 to give mandate to suggest
b) “The ‘policy of non-action’ regarding the measures to improve governance, the core principles of
institutional mechanisms and legal provisions to which are:
eradicate corruption is a feature of Indian ● Rule of law
Administration.” Critically examine (20) (Significant ● Accountability at each level of administration.
issues in Indian Administration) ● Minimization of unfettered discretion.
Corruption has been seen as an immoral and unethical ● Citizen first.
practice in India. India’s legislation relating to corruption ● Ethical Governance .
and corrupt practices includes a web of legal provisions ● Principle of subsidiarity
and Government regulations. The Prevention of
Corruption Act of 1947 was enacted immediately after The principle of subsidiarity holds that a larger and
independence. central body (subsidiary function) should not exercise
functions which can be carried out efficiently by one
The IPC criminalised taking bribes, influencing a public smaller and lesser, but rather the former should support
servant through illegal means and public servants the latter and help to coordinate its activities with the
accepting valuable gifts. All these provisions were activities of the whole community.
repealed by the POCA.
"Positive subsidiarity,'' which is the ethical imperative for
In 1988 POCA was enacted to consolidate all laws communal, institutional or governmental action to
relating to offences by public servants. create the social conditions necessary to the full
development of the individual, such as the right to work,
Paper-1: Section-A to advance management and policies so that
Answer the following question in about 150 words government can function." Some of the various
each: Q.1) definitions which have been offered for the term are:
a) “Taylorism is considered very controversial despite "the management of public programs"; the "translation
its popularity.” (Stephen P. Waring) Comment. of politics into the reality that citizens see every
Taylorism is considered very controversial, despite its day";and "the study of government decision making, the
popularity. It is often criticized for turning the worker analysis of the policies themselves, the various inputs
into an "automaton" or "machine." Due to techniques that have produced them, and the inputs necessary to
employed with scientific management, employees claim produce alternative policies."
to have become overworked and were hostile to the
process. Criticisms commonly came from workers who c) “Morale can drive an organization forward or can
were subjected to an accelerated work pace, lower lead to employees” discontent, poor job performance
standards of workmanship, lower product quality, and and absenteeism”.
lagging wages. Workers defied being reduced to such Morale can drive an organization forward or can lead to
machines, and objected to the practices of Taylorism. employee discontent, poor job performance, and
Many workers formed unions, demanded higher pay, and absenteeism . With low morale comes a high price tag.
went on strike to be free of control issues. This ignited a The Gallup Organization estimates that there are 22
class conflict, in which Taylorism was initially meant to million actively disengaged employees costing the
prevent. Efforts to resolve the conflicts included American economy as much as $350 billion per year in
methods of scientific collectivism, making agreements lost productivity including absenteeism, illness, and
with unions, and the personnel management movement. other problems that result when employees are unhappy
at work. Failing to address this issue lead to decreased
b) “Public Administration is the translation of politics productivity, increased rates of absenteeism and
into the reality that citizens see every day.”(Donald F. associated costs, increased conflicts in the work
Kettl and James W. Fesler) Explain. environment, increased customer or consumer
Public administration is the implementation of complaints, and increased employee turnover rates and
government policy and an academic discipline that costs associated with the selection and training
studies this implementation and that prepares civil replacement staff.
servants for working in the public service. As a "field of
inquiry with a diverse scope" its "fundamental goal... is
imposed by the statute. When the legislature has transparent, such that their decisions and activities are
provided a clear and unambiguous law, agencies are not able to be evaluated by the public and by legal review
justified in altering, modifying, or extending the reach of boards.
law. Administrative agencies are expected to apply just
and fair discretion. These agencies should comply with b) “Good governance is ensuring respect for human
established principles of justice while exercising rights and strengthening democracy, promoting
discretion. It would amount to abuse of discretionary transparency and capacity in Public Administration.”
power if administrative agencies act arbitrarily, (Kofi Annan) In the light of the statement, critically
carelessly, fraudulently, or without factual basis. examine the criteria of good governance as provided
by the United Nations and Nayef Al-Rodhan.
Q.3) a) “if the Regulatory Commissions…..are wholly The United Nations is playing an increasing role in good
independent, they are completely irresponsible for the governance. According to former UN Secretary- General
doing of very important policy determining and Kofi Annan, "Good governance is ensuring respect for
Administrative work ….. on the other hand, to rob the human rights and the rule of law; strengthening
commissions of their independence is seriously to democracy; promoting transparency and capacity in
menace the impartial performance of their judicial public administration." To implement this, the UN goes
work.” (Cushman) Examine. follows 8 characteristics:
A regulatory agency is a body in the U.S. government ● CONSENSUS ORIENTED i.e the in good
with the authority to exercise authority over some area governance the government should base on
of human activity in a supervisory capacity. An solving the conflicts and confrontations
independent regulatory agency is separate from the between its citizens
other branches of the federal government. These ● PARTICIPATORY i.e in good governance the
agencies are within the purview of the executive branch government should allow the participation of
of government, but are internally regulated rather than citizens in various serious and constructive
subject to the direct control of the President. state affairs
Regulatory agencies exist to supervise the ● RULE OF LAW i.e the government and its
administrative functions of organizations for the benefit personnel should be under the law and all
of the public at large. To carry out this function, decisions should follow the common law of the
regulatory agencies are composed of experts in a state
specific policy area of administrative law, such as tax or ● EFFECTIVENESS AND EFFICIENCY i.e the
health codes. Agencies may carry out investigations or government and its officials should deal with
audits to determine if organizations are adhering to the goals or problem of citizen effectively
federal regulations. ● ACCOUNTABLE TRANSPARENT RESPONSIVE
Regulatory agencies are authorized to produce and ● EQUITABLE AND INCLUSIVE Using these
enforce regulations by Congress, and are subject to methods, the UN focuses on strengthening
Congressional and legal review as they carry out their decolonization, localization and, human rights
functions. Congress may determine that regulatory around the world.
agencies are obsolete, for example, and may therefore
discontinue funding them. Similarly, Congress may Nayef Al-Rodhan, in his 2009 book Sustainable History
choose to expand the authority of a regulatory agency in and the Dignity of Man: A Philosophy of History and
response to a perceived threat to public safety. Civilisational Triumph, proposed eight minimum criteria
Additionally, regulatory agencies are designed to be
for ensuring good national governance. Al-Rodhan's function because the executive is responsible to the
eight minimum criteria are: Parliament.
1. participation, equity, and inclusiveness,
2. rule of law, Q.4) a)”Blake and Mouton defined leadership styles
3. separation of powers, based on two dimensions-concern for people and
4. free, independent, and responsible media, concern for production.” In the light of statement,
5. government legitimacy, discuss the Managerial Grid Model. Explain with
6. Accountability, reason which one of the styles is the best.
7. transparency, and The Blake Mouton Managerial Grid is based on two
8. limiting the distorting effect of money in behavioral dimensions:
politics. In the book, he argues that good
national governance is an important component Concern for People: this is the degree to which a leader
in creating a history of sustainability for the considers team members' needs, interests and areas of
human race. For Al- Rodhan, the eight minimal personal development when deciding how best to
criteria of good governance are expressions of accomplish a task.
the fundamental values of democracy and more Concern for Results: this is the degree to which a leader
liberal constitutionalism. emphasizes concrete objectives, organizational
efficiency and high productivity when deciding how best
c) “The legislative control over administration is not as to accomplish a task. The Blake Mouton Managerial
effective as it ought to be”. Grid :
In U.S.A., the control of the Congress over delegated 1. Impoverished Management – Low Results/Low
legislation is highly limited because neither is the People The Impoverished or "indifferent"
technique of “laying” extensively used nor is there any manager is mostly ineffective.
Congressional Committee to scrutinise it. This is due to 2. Produce-or-Perish Management – High
the constitutional structurization in that country in Results/Low People This type of manager is
which it is considered only the duty of courts to review autocratic, has strict work rules, policies and
the legality of administrative rule-making. procedures, and can view punishment as an
effective way of motivating team members.
In England, due to the concept of Parliamentary This approach can drive impressive production
sovereignty, the control exercised by Parliament over results at first, but low team morale and
administrative rule-making is very broad and effective. motivation will ultimately affect people's
Parliamentary control mechanism operates through performance, and this type of leader will
“laying” techniques because under the provisions of the struggle to retain high performers.
Statutory Instruments Act, 1946, all administrative 3. Middle-of-the-Road Management – Medium
rule-making is subject to the control of Parliament Results/Medium People A Middle-of-the-Road
through the Select Committee on Statutory Instruments. or "status quo" manager tries to balance results
Parliamentary control in England is most effective and people, but this strategy is not as effective
because it is done in a non- political atmosphere and as it may sound. Through continual
the three-line whip does not come into operation. In compromise, he fails to inspire high
India, parliamentary control of administrative performance and also fails to meet people's
rule-making is implicit as a normal constitutional needs fully. The result is that his team will likely
deliver only mediocre performance.
4. Country Club Management – High People/Low budget be. Therefore, the bureaucrat's objective will be
Results The Country Club or "accommodating" to maximize the quantity of services supplied, subject to
style of manager is most concerned about her a social welfare break-even constraint. This means that
team members' needs and feelings. She the deadweight loss generated by excessive production
assumes that, as long as they are happy and of services must never be higher than the elector's
secure, they will work hard, work environment consumer surplus (otherwise, the Legislature would
that is very relaxed and fun, but where notice that something was wrong with the department's
productivity suffers because there is a lack of activity, which would be causing social losses and not
direction and control. gains).
5. Team Management – High Production/High In other words, a typical, private-sector utility
People Team management is the most effective maximizing model would anticipate that the department
leadership style. It reflects a leader who is would expand services (and budgets) to the point that
passionate about his work and who does the the marginal cost and marginal benefits are equated. In
best he can for the people he works with. Niskanen's model, he would predict that average costs
and benefits would be equated instead of the marginals.
b) “ bureau-Shaping Model has been developed as a
response to the Budget-Maximizing Model.” c) “Civil Society performs a key role in defending
The budget-maximizing model is an influential stream of people against the state and market and in asserting
public choice theory and rational choice analysis in the democratic will to influence the State”. Analyze the
public administration inaugurated by William Niskanen, statement with suitable
in 1971. It argued that rational bureaucrats will always “Civil society is a sphere of social interaction between
and everywhere seek to increase their budgets in order the household (family) and the state which is
to increase their own power, thereby contributing manifested in the norms of community cooperative,
strongly to state growth and potentially reducing social structures of voluntary association and networks of
efficiency. The bureau-shaping model has been public communication … norms are values of trust,
developed as a response to the budget-maximizing reciprocity, tolerance and inclusion, which are critical to
model. Niskanen's inspiration could also have been cooperation and community problem solving. As it
Parkinson's law sixteen years earlier (1955). develops, civil society will consist of a range of local
The model contemplates a bureaucrat who heads a groups, specialized organizations and linkages between
public administration department, and who will try to them to amplify the corrective voices of civil society as
maximize the department's budget, thus increasing its a partner in governance and the market” (Connor, 1999).
salary and prestige.
There is a demand for the department's services on the Civil society has been widely recognized as an essential
part of electors and voters, but, contrary to publicly 'third' sector. Its strength can have a positive influence
managed firms, which directly offer their products and on the state and the market. Civil society is therefore
services to these electors, the department is seen as an increasingly important agent for promoting
responsible for producing the services which will then good governance like transparency, effectiveness,
be supplied by the Legislature to the electors. openness, responsiveness and accountability. Civil
It will therefore be the legislature, or Government, the society can further and improve good governance, first,
agent which defines the department's budget, by policy analysis and advocacy; second, by regulation
depending on the quantity which it supplies. The more and monitoring of state performance and the action and
services the department supplies, the higher will its behavior of public officials; third, by building social
meets regularly to discuss issues of interest to them numerous differences, both techniques can work well or
and to look at solutions of commonly experienced even fail, depending on the situation in which they are
problems. The group may or may not be promoted by used. The rational model is aimed at maximising
Government or non-Government institutions. efficiency and 'net value achievement'. This means that
The SHG is group of rural poor who have volunteered to all of the values of society are known and that any
organise themselves into a group for eradication of sacrifice in one or more values required by a policy is
poverty of the members. They agree to save regularly compensated for by attainment of other values. This
and convert their savings into a common fund known as definition could be viewed as interchangeable with the
Group Corpus. The members of the group agree to use concept of efficiency - it comes down to more than
this common fund and such other funds that they may money - all social, political and economic values have to
receive as a group through a common management. be considered.
d) “Riggs observed that three ‘trends’ Could be Q.6) a) “Fred Riggs continuously changed his theory in
discerned in the comparative study of Public order to create the perfect model.” Comment.
Administration.” Discuss. Riggs’s famous model agraria and industria was faced
Post F.W. Riggs observed that the World War II three with criticisms and he subsequently admitted certain
important trends can be discerned in the field of Public drawbacks of his model. But he was sure that public
Administration: (A) A shift from non-ecological studies, administration cannot be properly and fruitfully
(B) A shift from normative to empirical studies, (C) A analysed ignoring the influence of environment upon the
shift from ideographic one to “nomothetic studies state activities and administration. He, therefore,
“Ideography” studies are one-nations, one institute or decided to revise his earlier theory in the light of
one-case stress the theory building exercise on the criticism and experience he gathered from the study of
basis of cross national and cross- cultural analysis of public administration of states.
administrative systems. Thus Riggs attempts at theory In 1975 he wrote another book — Prismatic Society
building in the field of Public Administration are Revisited. He thought that the real societies are never
exercises in the construction of modes adopting one dimensional. In other words, the societies of the
structural, functional, systematic and ecological real world cannot be explained simply in the light of
approaches which are designed to help the analysis of agrarian and industrial. There are different types of
development processes throughout the world, but more societies many of which remain beyond his model. In
particularly in the so-called developing societies. order to make his theory more comprehensive and
realistic a new model is required to be devised and this
e) “In Public Policy Marking, ‘Rationalism’ is the he did in his new book Prismatic Society Revisited. He
opposite of ‘incrementalism’.” has said that the societies of the real world may be
The debate of rational versus incremental models of divided into three categories or types and these are
policy making is could be viewed as a debate over fused, prismatic, and diffracted. This model is known as
alternative political systems and values. Rational Fused-Prismatic- Diffracted model. Modern societies
decision making has a centralising bias, while are not one dimensional, rather three dimensional.
incrementalism tends to favour representative and Let us now explain what Riggs means by
pluralist decision making. Additionally, the rational Fused-Prismatic-Diffracted model. In his revised version
model tends not to favour any community contribution Riggs has said that some societies perform certain
while incrementalism leans towards widespread popular specific functions and these societies are termed
participation in decision making. Despite their “functionally specific”. Of course there may occur minor
changes in the function. But generally the society’s development has resulted in the hierarchy of developed
functions are confined within limits. Let us now see and underdeveloped nations, where the developed
what is meant by “fused” society in his view, when the nations are seen as more advanced and superior to the
societies are functionally diffused they are called underdeveloped nations that are conceived as inferior,
“fused” societies. If the societies in need of help from the developed nations, and desiring
are functionally specific they are called diffracted. There to be like the developed nations. The post-development
are some societies which are in-between fused and school of thought points out that the models of
diffracted-these are called prismatic. development are often ethnocentric (in this case
The Riggsian model says that in the real world there are Eurocentric), universalist, and based on western models
three types of societies —fused-prismatic- diffracted. In of industrialization that are unsustainable in this world
his judgment these are the ideal types of societies of limited resources and ineffective for their ignorance
found in the real world. This modification reveals that of the local, cultural and historical contexts of the
Riggs’s earlier model was not the correct picture. While peoples to which they are applied. In essence, the
preparing this model Riggs thoroughly studied the problem post- development theorists see in
social, political and administrative structures of all development and its practice is an imbalance of
countries- particularly the newly independent states of influence or domination by the west. Post development
Asia and Africa. Riggs also refers to the sala model of theorists promote more pluralism in ideas about
development.
administration. Sala means administrative sub-system
of prismatic societies. The new model of Riggs is highly c) “Information Technology brings efficiency and
complicated and many people have raised the transparency to Public Administration.” Examine the
authenticity of this model. statement with suitable examples.
The development of information technologies has led to
b) “The idea of development stands like a ruin in the a new form of communication with the government –
intellectual landscape’ and “It is time to dismantle this e-government. It is believed that this form of
mental structure”. (Wolfgang Sachs) In the light of the communication with the state not only leads to more
statement, Critically examine the anti- development efficient and less costly administration, but also brings
thesis. about fundamental changes in the relationship between
Post-development theory arose in the 1980s and 1990s citizens and public authorities and local governments.
through the works of scholars like Arturo Escobar, Electronic control system provides that any person or
Gustavo Esteva, Majid Rahnema, Wolfgang Sachs, entity may make inquiries to government agencies to
James Ferguson, Serge Latouche, and Gilbert Rist. obtain necessary information and perform legal
Leading members of the post-development school transactions through the Internet. In this arrangement,
argue that development was always unjust, never the relationship “a citizen – the state” can be expected
worked, and at this point has clearly failed. According to to increase the efficiency of public administration and
Wolfgang Sachs, a leading member of the curb corruption. Electronic control can change the
post-development school, "the idea of development nature of power, make it more transparent and
stands like a ruin in the intellectual landscape" and "it is accountable to the public. E-governance also provides
time to dismantle this mental structure." the real participation of citizens in political processes,
particularly in law. Every citizen can participate in the
To cite an example of this "mental structure", creation of laws, discussing them and voting for them
development theorists point out how the concept of on the web.
● Making available to the public with objective government's budget position. e.g.
and reliable information on the activities of Expansionary fiscal policy involves tax cuts,
public authorities, which strengthens the higher government spending and a bigger
credibility of the state and its politics; budget deficit.
● Interaction and ongoing dialogue with the ● Monetary policy involves influencing the
citizens of the state and public institutions, as demand and supply of money, primarily though
well as the necessary level of public control the use of interest rates. It can also involves
over the activities of state bodies and unorthodox policies such as open market
organizations; operations and quantitative easing.
● Integration of information resources and Fiscal policy and monetary policy are the two tools
services of state and local governments to used by the state to achieve its macroeconomic
strengthen national information space; objectives. While for many countries the main objective
● Improving public administration, optimizing the of fiscal policy is to increase the aggregate output of
structure of the state apparatus, reducing the the economy, the main objective of the monetary
financial and material costs for its policies is to control the interest and inflation rates. The
maintenance, a gradual transfer of government IS/LM model is one of the models used to depict the
services that have value in a system of effect of policy interactions on aggregate output and
government online services that meets the real interest rates. The fiscal policies have a direct impact
needs of citizens and organizations; on the goods market and the monetary policies have a
● Effectively support the economic activities of direct impact on the asset markets; since the two
public entities that are engaged in economic markets are connected to each other via the two macro
activities, allowing them to effectively integrate variables output and interest rates, the policies interact
into a national and global economic space; while influencing output and interest rates.
● Interaction and cooperation with government Monetary policy is most widely used for ‘fine tuning’ the
authorities in other countries and international economy. Making small changes. However, monetary
organizations. policy has its limitations. In serious recessions, we
invariably need a combination of the two policies.
Q.7) a) “Fiscal policy and monetary policy are the two
tools used by the state to achieve its macroeconomic b) “A central reason for utilization of Performance
objectives.” Examine the statement and point out the Appraisal is performance improvement of the
differences between the tools. employees.” In the light of the statement, analyze the
The aims of fiscal and monetary policy are similar. They needs of Performance Appraisal in an organization.
are both used to: An effective appraisal may not only eliminate behavior
● keep inflation low and work-quality problems, it can motivate an employee
● maintain positive economic growth to contribute more.
● aim for full employment If the appraisal is used as an opportunity to describe the
The principle aim of fiscal and monetary policy is to criteria on which performance is judged -- using
reduce cyclical fluctuations in the economic cycle. meaningful and relevant examples -- then the employee
Often it is inflation targeting which is stressed most for will walk away from the meeting with a better
monetary policy. understanding of how to best perform his job
● Fiscal Policy involves changing government The performance appraisal is the perfect opportunity to
spending and taxation. It involves a shift in the address long-term goals that may not be on the
everyday to-do list. Not only does this provide the and the government are one. That anyone claims there's
employee with an opportunity to be of greater use to an an actual difference is baffling.
organization, the employee feels pleased and valued.
Celebrating a job well-done is the easy part of the Q.8) a) “The key to understanding performance-based
performance appraisal. Noting areas of improvement is budgeting lies beneath the word ‘result’ ”. In the light
not so easy. Nevertheless, no one is perfect, and the of the statement, examine the elements of
performance appraisal is an ideal time to diplomatically performance-based budgeting.
highlight areas that need improvement. Performance budgets use statements of missions,
Appraisals also provide a framework when making goals and objectives to explain why the money is being
decisions about compensation -- and layoffs. If the spent. It is a way to allocate resources to achieve
organization becomes the unfortunate party to a specific objectives based on program goals and
lawsuit, the performance appraisal can refute or support measured results.” The key to understanding
claims. As a result, the effective use of performance performance-based budgeting lies beneath the word
appraisals helps an organization operate efficiently and “result”. In this method, the entire planning and
with focus. budgeting framework is result oriented. There are
objectives and activities to achieve these objectives and
c) “The problem is to achieve the right balance these form the foundation of the overall evaluation.
between a competitive market economy and an According to the more comprehensive definition of
effective state: Markets where possible, the state Segal and Summers, performance budgeting
where necessary.” Justify your answer. comprises three elements:
When markets don’t achieve efficiency, government ● the result (final outcome)
intervention can improve society’s welfare. That is, ● the strategy (different ways to achieve the final
when markets go wrong, an appropriately designed outcome)
government policy can sometimes move society closer ● activity/outputs (what is actually done to
to an efficient outcome by changing how society’s achieve the final outcome)
resources are used. Segal and Summers point out that within this
There is no market without government which is why framework, a connection exists between the rationales
before modern markets move in they require first a for specific activities and the end results and the result
violent and forceful imposition, costly in terms of is not excluded, while individual activities or outputs
human life, productivity, and indigenous property but are. With this information, it is possible to understand
highly profitable for parasitic government created state which activities are cost-effective in terms of achieving
franchise we often refer to as corporation. All value the desired result.
added by the corporation to the area is destroyed by the As can be seen from some of the definitions used here,
destruction it caused moving in, the corruption they Performance-Based Budgeting is a way to allocate
always encourage in their favor, and the destruction it resources for achieving certain objectives, Harrison
causes when it leaves and it always does when the area elaborates: “PBB sets a goal, or a set of goals, to which
starts to get it's head above water. The idea that monies are “connected” (i.e. allocated). From these
markets somehow replace the state is indeed part of goals, specific objectives are delineated and funds are
discussion one often sees among idiots who like to play then subdivided among them.”
hopscotch with definitions and philosophy in order to
believe how they please in spite of the facts. The market b) “Disciplinary action may be informal and formal.”
Explain and point out the provisions made in the
Constitution or Statute to check the misuse of power to repeat of the offence within 12 months may result in
take disciplinary action. dismissal.
If an employee's performance or conduct does not meet
your standards, you should try to help them improve. If the alleged breach falls within the gross misconduct
Have an informal discussion with them as soon as category the employer will follow the formal procedure
you're aware of a problem. If the employee's poor as outlined above. If the employer is satisfied that an
conduct or performance continues, you may have to offence has occurred the employee will be dismissed
take formal disciplinary action. summarily: ie without notice and without wages in lieu
Your disciplinary procedure should - at the very least - of notice.
comply with the statutory dismissal and disciplinary
procedures. c) “The term ‘work study’ may be used in narrower and
Remember that the employee has the right to be wider senses.” Elucidate.
accompanied by a work colleague or Trade Union According to the British Standard Institution, “Work
Official (who may be either a full-time official employed Study is a generic term for those techniques,
by a union or a lay union official who has been particularly Method Study and Work Measurement,
reasonably certified in writing by his/her union as which are used in all its context, and which lead
having experience of, or as having received training in, systematically to the investigation of all the factors ,
acting as a worker’s companion) at any formal which affect the efficiency and economy of the situation
disciplinary meeting. being reviewed in order to effect improvement”.
When taking formal disciplinary action, the employer
should comply with the Statutory Procedures by Objectives of Work Study
ensuring that the following steps are taken at all stages
of the formal disciplinary process. ● To improve operational efficiency
● Step 1: Statement of grounds for action and ● To increase productivity by ensuring the best
invitation to meeting possible use of human, machine and material
● Step 2: Hearing resources and to achieve best quality
● Step 3: Appeal product/service at minimum possible cost.
If the alleged breach falls within the minor misconduct ● To measure the work content of the job by
category the employer should follow the formal measuring the time required to do the job for a
procedure outlined above and the following action will qualified worker and hence to establish the
be taken if the employer is satisfied that an offence has standard time.
occurred: ● To analyse the present method of doing the job
● Stage 1:verbal warning. in order to develop a better method.
● Stage 2:first written warning
● Stage 3:final written warning. Benefits of Work study
● Stage 4:dismissal.
If the alleged breach falls within the major misconduct ● Provides better job satisfaction to employees
category the employer will follow the formal procedure Basis for sound incentive schemes.
as outlined above. If the employer is satisfied that an ● Better Industrial Relations and Employee
offence has occurred the employee will receive a final morale.
written warning which will contain clear notice that a ● Provides a Standard of Performance to
measure labour efficiency.
Paper-2: Section-A ● Council of Bengal: Lt-Gen John Clavering,
George Monson, Richard Barwell, and Philip
Q.1) Attempt all of the following questions in about Francis.
150 words each: ● A supreme court was established at Fort
a) “The Regulating Act of 1773 not only introduced William at Calcutta. British judges were to be
value in administration but also laid the foundation of sent to India to administer the British legal
centralized administration in India.” Explain. system that was used there.
The Regulating Act of 1773 was an Act of the
Parliament of Great Britain intended to overhaul the b) Do you think that some of the ideals enshrined in the
management of the East India Company's rule in India. Preamble of the Constitution remain only on paper
● The Act limited Company dividends to 6% until even today? Critically evaluate.
it repaid a GB£1.5M loan (passed by an The constitutional values are reflected in the entire
accompanying act, 13 Geo. 3 c. 64) and Constitution of India, but its Preamble embodies ‘the
restricted the Court of Directors to four-year fundamental values and the philosophy on which the
terms. Constitution is based’. The Preamble to the Constitution
● It prohibited the servants of company from is a brief introductory statement that conveys the
engaging in any private trade or accepting guiding principles of the document. The Preamble to the
presents or bribes from the natives. Indian Constitution also does so. The values expressed
● The Act elevated Governor of Bengal, Warren in the Preamble are expressed as objectives of the
Hastings to Governor-General of Bengal and Constitution. These are: sovereignty, socialism,
subsumed the presidencies of Madras and secularism, democracy, republican character of Indian
Bombay under Bengal's control. It laid the State, justice, liberty, equality, fraternity, human dignity
foundations for a centralized administration in and the unity and integrity of the Nation.
India. Governor of Bengal became the Governor
General of Bengal with an executive council of c) Examine the efficacy of the measures taken to
four to assist him. Decisions would be taken by redefine and execute cooperative federalism in India.
majority and Governor General could only vote For working India’s federal system, one has to go
in case of a tie. beyond brute parliamentary majorities and grapple with
● The Act named four additional men to serve the multilevel government-opposition matrix, which is
with the Governor-General on the Supreme the architecture of Centre- State power- sharing.
Based on the idea that a state leader’s vision from and research and development. The committee has
below could transform India’s federal polity, the desire taken into account current categorization of CPSEs
to make a perceptible if not spectacular change in the such as Schedule ‘A’, ‘B’, ‘C’ and ‘D’ and their status
system of governance appeared to be a consuming as Navratna, Miniratna, loss / profit making CPSEs, and
passion. With one eye on history and the other on also CPSEs referred to BIFR or BRPSE as well as CPSEs
politics, dramatic gestures and rhetorical flourishes under Industrial DA / Central DA pattern. In 2010, the
have become a distinguishing feature of this style of government established the higher Maharatna category,
governance. which raises a company's investment ceiling from Rs.
The National Institution for Transforming India (NITI) 1,000 crore to Rs. 5,000 crore. The Maharatna firms can
Aayog, which is slowly unfolding as a half- baked clone now decide on investments of up to 15 per cent of their
of the institution it sought to replace. Visualised as a net worth in a project while the Navaratna companies
vehicle of the new cooperative federalism, it was initially could invest up to Rs 1,000 crore without explicit
projected as a think tank that would shed the government approval. Two categories of "Miniratnas"
overbearing financial allocations-cum-approvals role afford less extensive financial autonomy.
that so infuriated Chief Ministers. What its contribution
to federalism will eventually be is still an open question, e) “The growing prominence of NGOs in development
given its vast and vague charter. areas is strongly related to the declining legitimacy of
Superimposed on the Aayog is a Council of Chief the State.” Explain.
Ministers, akin to the National Development Council, The growing prominence of NGOs in the field of
which presumably died a natural death along with the development is strongly related to the declining
Commission that wished it into existence. We now have legitimacy of the state. 'Good governance' is believed to
a Plan (2012-17) up for mid-term review. What shape it consist of two functions: facilitating the free play of
takes in its remaining years, if it survives this exercise, market forces, and enabling decentralised institutions
will give a clearer picture of this new vision. Groups of of 'participatory management' to be formed.
Chief Ministers are working on blueprints for Participatory management is the new mantra for the
transforming India, notably with fewer central schemes provision of services through local municipalities and
and greater autonomy for the States. panchayats, as well as in the sphere of natural resource
management. This new trend in development thinking
d) Evaluate the performance and efficacy of the and practice initiated by the World Bank had its echo
Maharatna, navratna and Miniratna type of Public from other quarters too. For instance, an
Sector Undertakings in the context of Liberalization, ADB-sponsored study argued for "a self-enforcing
Privatization and Globalization (LPG). governance structure that would reduce collective
The public sector and in particular the competition from action problems, directly involve "social groups and
the Private Sector and MNCs, the Second Pay Revision subnational governments into political decision making
Committee is conscious of its role to recommend a process," and create "the political foundations of
comprehensive pay package to the CPSEs so as to economic growth."70 Implicit in this analysis is the
improve efficiency, productivity & economy through negation of the leading role of the state in
rationalization of organizational structures, systems developmental activities in favour of action groups and
and processes. The Committee also emphasise the NGOs.
need for functional and operational autonomy for the
CPSEs along with the need to improve transparency,
discipline, accountability, assimilation of technology
Q.2) “In contemporary times, Kautilya’s Arthashstra is feels should be submitted to the Prime Minister for
relevant more in the field of international relations than orders or information, are received in the PMO.
in economic affairs.” Analyse the statement. Some of the important matters that require the Prime
Arthasastra covers almost every aspect of statecraft, Minister's personal attention include the following:
including diplomacy. For instance, the contemporary 1. Important defence-related issues;
phenomenon of honey-trap finds a very detailed 2. Decorations, both civilian and defence, where
treatment in Arthasastra. Similarly, the concept of Presidential approval is required;
Rajamandala in the Arthasastra provides a framework 3. All important policy issues;
for understanding and analyzing the behaviour of 4. Proposals for appointment of Indian Heads of
nations in contemporary international relations. The Missions abroad and requests for grant of
western discourse on peace and security is premised agreement for foreign Heads of Missions
upon the belief that security or in other words military posted to India;
security is the precondition for peace, whereas the 5. All important decisions relating to the Cabinet
Indian discourse rests upon the belief that peace can be Secretariat;
attained even without establishing the primacy of 6. Appointments to State Administrative Tribunals
military hardware. For India, peace is both means and and the Central Administrative Tribunal, UPSC,
end; to the contrary western thinkers see peace merely Election Commission, Appointment of members
as a goal attainable by achieving a high degree of of statutory/constitutional Committees,
military self-reliance. However, this fallacy of belief has Commissions attached to various Ministries;
led to war and conflict everywhere in the world. 7. All policy matters relating to the administration
b) “Dominant centralized administration is correlated of the Civil Services and administrative reforms;
with decisive and authoritative leadership provided by 8. Special Packages announced by the Prime
the Prime Minister’s office.” Minister for States are monitored in the PMO
The PMO provides secretarial assistance to the Prime and periodical reports submitted to Prime
Minister. It is headed by the Principal Secretary to the Minister; and
Prime Minister. The PMO includes the anti-corruption 9. All judicial appointments for which Presidential
unit and the public wing dealing with grievances. The approval is required.
office houses the Prime Minister and few selected
officers of Indian Civil Service who work with him to c) “A significant legacy of the Mughal rule in India is a
manage and coordinate government and his office. The well-organized revenue administration at the State and
Prime Minister through his office coordinates with all District Levels.” Comment.
ministers in the central union cabinet, minister of Akbar repaired, improved, organized and perfected every
independent charges and governors and ministers of single department of the state with admirable skill and
state government. The subject-matter of files required expedition. He bequeathed to his successors the legacy
to be submitted to the Prime Minister depends on of a well-organized administrative structure and
whether he is holding direct charge of the Ministry or traditions of a just and tolerant policy as the essential
whether there is a Cabinet Minister or Minister of State conditions of a durable and good government.The
(Independent Charge) in charge of the Ministry. In the Mansabdari System was another achievement of
case of the latter, most matters are dealt with by the Mughal Administration System. During the rule of the
Cabinet Minister / Minister of State-in-charge. Only Mughals, every activity of the state administration was
important policy issues, which the Minister concerned centred round the emperor. The Mughals developed
‘nobility’ (mansabdars) to look after administration, but
took steps to ensure that there was always an element The responsibility for national defence "rests with the
of insecurity in their position, so that the monarch could Cabinet, which is discharged through the Ministry of
control them. The emperor alone could confer, Defence, which provides the policy framework and
decrease, increase and resume the mansabs. wherewithal to the Armed Forces to discharge their
Mansab was the grant to every official, of the right to responsibilities in the context of the defence of the
enjoy a jagir. The term jagir meant revenue assignments country. The Defence Ministry is responsible for
(not land itself) for services rendered (instead of a cash "obtaining policy directions of the Government on all
salary). The jagirdari system defence and security related matters" and
did not affect the land rights of the cultivators or the communicating these directions to "Services
hereditary rights of the middlemen or zamindars. Headquarters, Inter-Services Organisations, Production
Establishments and Research and Development
The mansabdar collected revenue from his jagir through Organisations". The MoD works closely with the
zamindars who collected dues from the cultivators. National Security Council, Ministry of External Affairs
Frequent transfers of jagirs were made. When a and the Ministry of Home Affairs.
mansabdar died, his entire personal property was taken
over by the State and after deducting what he owed to b) “Introduction of G.S.T. (Goods and Services Tax) no
the State, the balance would be returned to his heirs. doubt has economic benefits, but tends to compromise
There could be no hereditary claim over the mansabs. the States’ ” IN this context, comment on the changing
Nobles received salaries in cash also. The nobles had to nature of Union- State financial relations.
place their entire time and service at the disposal of the As units of political and economic reckoning, states
emperor. have come into their own and two recent but different
episodes have emphasised this. The passing of the
Q.3) a) What factors have led to the expansion of the Goods and Services Tax (GST) constitutional
role of the Ministry of Home Affairs? How can it amendment and the creation of the GST Council gives
coordinate its affairs more effectively with the Ministry states greater authority in fiscal policy than before.
of Defence? Nevertheless, whether as a political challenge or an
‘Police and ‘Public order’ are State subjects and the economic trigger, the salience and empowerment of
maintenance of law and order is the primary states is set to rise. There is hope that a sense of
responsibility of the State Governments, as per the competition will get states to push each other in
provisions of the Constitution. Union Government has attracting investment and business opportunities,
the duty to protect the States against any internal incubating manufacturing and innovation, and growing
disturbance or external aggression and to ensure that the overall Indian economy. India is making up for lost
the affairs of the State are carried on in accordance time. It is devolving powers to states and provinces in
with the provisions of the Constitution. In the Union the manner China did in the late 1970s and 1980s, a
Government, the responsibilities for maintenance of decade in which Indira Gandhi did everything that was
internal security, centre-state relations, paramilitary possibly wrong.
forces, border management, disaster management etc.
have been entrusted to the Ministry of Home Affairs. c) “Planning in India has failed to meet the challenges
These responsibilities are being discharged by of economic development and social change.” Discuss
undertaking various programmes, schemes and the statement in the context of the emergence of NITI
projects. Aayog.
Finance Minister Arun Jaitley made the following of national security and another on constituting a
observations on the necessity of creating NITI Aayog, screening committee in the apex court to vet
"The 65-year-old Planning Commission had become a candidates.
redundant organisation. It was relevant in a command The chief justices' conferences in 1961, 1963 and 1965
economy structure, but not any longer. India is a favoured creation of an AIJS, but the proposal had to be
diversified country and its states are in various phases shelved after some states and HCs opposed it,
of economic development along with their own according to a consultation paper prepared in 2001 as
strengths and weaknesses. In this context, a ‘one size part of the National Commission to Review the Working
fits all’ approach to economic planning is obsolete. It of the Constitution. Subsequently, the Constitution was
cannot make India competitive in today’s global amended in 1977 to provide for an AIJS under Article
economy."The National Institution for Transforming 312. The proposal was again floated by the UPA
India, also called NITI Aayog, was formed via a government in 2012 when it got it vetted by a committee
resolution of the Union Cabinet on January 1, 2015. NITI of secretaries and prepared a Cabinet note. But the draft
Aayog is the premier policy ‘Think Tank’ of the bill was shelved again after opposition from HC chief
Government of India, providing both directional and justices who found this an infringement of their rights.
policy inputs. While designing strategic and long term The AIJS is an attempt to ensure that younger judges
policies and programmes for the Government of India, are promoted to the SC and HCs. In the existing system,
NITI Aayog also provides relevant technical advice to recruits join as magistrates in the subordinate judiciary
the Centre and States.The Government of India, in and take at least 10 years to become district judges.
keeping with its reform agenda, constituted the NITI The committee of secretaries had earlier recommended
Aayog to replace the Planning Commission instituted in enhancing the quota for recruitment to the higher
1950. This was done in order to better serve the needs judiciary through the proposed AIJS to 50%.
and aspirations of the people of India. An important
evolutionary change from the past, NITI Aayog acts as b) “The separation between regulatory and
the quintessential platform of the Government of India development functions in many development
to bring States to act together in national interest, and administration.” Critically examine the need to relook
thereby fosters Cooperative Federalism. at this policy.
The term “development administration” came into use in
Q.4) a) “The absence of congruence of views on the 1950s to represent those aspects of public
appointments to the judiciary between the Supreme administration and those changes in public
Court and the Union Government has had an adverse administration, which are needed to carry out policies,
impact on the judicial system.” In the light of the above projects, and programs to improve social and economic
statement, examine the proposal to constitute an All conditions. During a period of 15 years following the
India Judicial Service. (AIJS). end of World War II, in 1945, colony after colony threw
The government's decision to revive the All-India off the imperial yoke. Country after country achieved
Judicial Service (AJIS) comes at a time when it is facing independence and political autonomy. This new status
resistance from the higher judiciary on finalisation of gave promise of freedom and liberty and self-
the memorandum of procedure (MoP) for appointment determination in political systems of representative
of judges to the Supreme Court and high courts. The SC democracy. It gave hope of greater individual freedom
Collegium has been resisting certain clauses in the MoP, and equality of treatment in the society. And
including one that would empower the government to independence created hopes of higher national and per
reject any recommendation of the collegium on grounds capita income, a rapid rise in standards of living, and an
Act. So, Jaitley not even mentioning the BIC in his bound by the procedure laid down under the Code of
speech reveals that the governance reforms Civil Procedure, 1908, but shall be guided by the
recommended by the Nayak committee don’t seem to be principles of natural justice.
on the government’s agenda. So, real reform of the The Tribunal's dedicated jurisdiction in environmental
PSBs is unlikely to happen under the current matters shall provide speedy environmental justice and
dispensation. help reduce the burden of litigation in the higher courts.
Third, little is known about what the BBB has done since The Tribunal is mandated to make and endeavour for
it was set up. The process of recruitment of PSB disposal of applications or appeals finally within 6
chairmen and board members continues to muddle months of filing of the same.
through as before. This process of initiating the
cleaning up of governance of PSBs is a full-time job that d) Is training of police in India still a reflection of the
can ill afford the distractions of batting as a night colonial mindset? Give reasons for your answer.
watchman. It is one of the ironies of modern India. While we are
Finally, historically, a large influx of deposits into the able to send a mission to the moon, while there has
PSBs has led to another round of indiscriminate lending been a revolution in information technology, while we
and eventual NPAs and stress in the banking system. have taken a quantum leap in nuclear science, while we
Unless governance reforms in PSBs are carried out, this have today the fastest growing economies of the world,
cycle may repeat itself because of the large inflow of while we are preparing to run a bullet train, we are still
funds into PSBs through demonetisation. saddled with a colonial police that has a feudal
mindset. There have been any number of commissions,
The government must attend to the ills afflicting the both at the State and Central level - State Police
banking sector. This would provide much- needed fillip Commissions, National Police Commission, Gore
to the many laudable initiatives on other fronts, whether Committee, Ribeiro Committee, Padmanabhaiah
it be the ‘Make in India’, ‘Skill India’ or ‘Startup India’ Committee, Malimath Committee, to name only a few -
campaigns. which made recommendations for reforms, but received
no more than cosmetic treatment at the hands of the
c) “National Green Tribunal is viewed by many critics government. The result is that the common man does
as a hindrance to economic development” Evaluate the not feel secure or protected. On the contrary, he may be
statement and give arguments in support of your harassed or even persecuted by the police if he dares to
answer. take a stand against the establishment.
The National Green Tribunal has been established on
18.10.2010 under the National Green Tribunal Act 2010 e) “The concept of ‘New localism’ is related to the
for effective and expeditious disposal of cases relating emerging nature of the relationship between the State
to environmental protection and conservation of forests governments and local government bodies.” Explain.
and other natural resources including enforcement of New localism is a concept associated with Tony Blair's
any legal right relating to environment and giving relief Labour government in the United Kingdom. It was
and compensation for damages to persons and property intended to indicate a cautious devolution of power to
and for matters connected therewith or incidental the local level in an attempt to better implement
thereto. national goals.
It is a specialized body equipped with the necessary
expertise to handle environmental disputes involving New localism is therefore characterised by a cautious
multi-disciplinary issues. The Tribunal shall not be devolution of power to the local level in an attempt to
better implement national goals. It emphasises the have first generational as well as second-generation
devolution of managerial over political power - the aim problems as a consequence of changing context.
is generally to allow local managers to meet national
priorities more effectively, rather than to allow local Asked about the impact of reservations for women,
politicians to derogate from national goals. “reservation has definitely made a difference but
performance of women still tends to be patchy as they
New localism differs from the implicit 'old localism' in are not allowed to build political constituency by
two important senses. First, it accepts the role of state re-contesting for the second time.” However, she was
government in driving change at the local level, confident that the 50 per cent reservation should make
something that the localists of the 1980s strongly a difference.
resisted. Second, it does not centre on the role of the Asked if reservation on its own had led to empowerment
local authority, but takes a wider view of the locality that of women, the main issue was that political reservation
includes communities and other public service without accompanying fundamental shifts/changes in
organisations such as health and police services. education and social norms is always going to have
limited impact.
Q.6) a) “The goals of good governance will remain
utopian if local governments responsible for providing b) Explain how the National Disaster Management Plan
all basic services directly to the citizens, are not (NDMP) provides a framework and direction to the
empowered as mandated by the 73rd and 74th government agencies for all phases of disaster
constitutional Amendment Acts.” Critically evaluate the management cycle.
status of empowerment of the local bodies Prime Minister Shri Narendra Modi released the
The 73rd and 74th Amendments to the Indian National Disaster Management Plan (NDMP). This is the
Constitution were finally passed in 1993. These first ever national plan prepared in the country.
prescribe a three-tier system of governance: village, Following are the highlights of the NDMP:
taluk/block and district (village level), and town
panchayats/municipalities/corporations in urban areas. ● The NDMP has been aligned broadly with the
The Amendment was portrayed as the most goals and priorities set out in the Sendai
revolutionary step in the history of governance in India. ● Framework for Disaster Risk Reduction.
The move would decentralise powers to the village level, ● The Vision of the Plan is to “Make India disaster
empower hundreds of thousands of people from across resilient, achieve substantial disaster risk
caste groups, including the lower castes, and was reduction, and significantly decrease the loss of
generally seen as a panacea for all the ills of life, livelihoods, and assets – economic,
governance, if media reports of that time are to be physical, social, cultural and environmental – by
believed. As many as 30 lakh elected representatives maximizing the ability to cope with disasters at
from the over two lakh rural panchayat bodies and about all levels of administration as well as among
3,700 urban panchayat bodies, were expected to communities.
transform India. ● For each hazard, the approach used in this
national plan incorporates the four priorities
Three decades later, a reality check would reveal that enunciated in the Sendai Framework into the
the experience has been mixed. State governments still planning framework for Disaster Risk Reduction
try to retain control over Local Governments. under the five Thematic Areas for Actions:
Consequently, Local Governments today continue to ● Understanding Risk
respondents ranked the courteousness of the PIOs as and better service delivery to the people. But the way
“poor” or “just fair”. This discourages the citizens from the institution shaped in India leaves much to be
filing RTI applications. desired. The public finance experts in the country also
While assessing the entire situation the following have generally endorsed this. In fact, many States are
themes emerge: making a mockery of the constitutional provisions. On
the one hand, they constitute a body with people of
● The Public Authorities have to enhance the level smattering knowledge; on the other hand, they do not
of ownership to ensure the RTI delivery happens even consider the report. If the report is considered,
as per the spirit of the Act. They have to be very few recommendations are accepted. In the
ultimately responsible for - Identifying the gaps process, the crucial ones are rejected without assigning
in their offices in the delivery of the information, reasons. At the top of it, many times, the accepted
thereafter identify the resources needed and recommendations are not implemented. Sometimes
appropriately budget for it. money was not released even though actions
● Maintenance of the information required to be on these recommendations were notified. The story
furnished to the State Information Commission becomes more funny given the fact that a State
as per Section 25(3) government took three years only to consider the report
● The role of the Centre/State Government is to of the SFC.
facilitate the Public Authorities in
implementation of the Act. This can happen c) “The initiative of the Income Tax Department on
through providing support to Public Authorities disclosure of black money has had a mixed response.”
for training, development of software Give suggestions for tackling this complex problem.
applications, e-Training modules, generating There are certain sectors, such as gold and real estate,
awareness amongst citizens etc. which are safe havens for black money. Reforms in
The role of the Information Commission has to go these sectors are an effective way to curb black money.
beyond the Hearing of the appeals. As per the Act, they In recent years, the use of technology and identification
are expected to issue orders/directions to the Public numbers linked to transactions such as the Permanent
Authorities to carry out their duties as per the mandate Account
of the Act. However till the time Information
Commission assumes the role of ensuring the Number, or PAN, given to every taxable employee, and
compliance of the RTI Act by the various Public the biometric-based unique identification number,
Authorities, there would not be any control mechanism. Aadhaar, are creating a system for the government to
The State Government has to play a facilitative role to track exchange of money. Regulation plays another role
the Information Commission through issuance of – for example, the creation of Securities Exchange
supporting rules/orders to the Public Authorities. Board of India monitors and regulates the stock market.
These reforms will take some time to show results, but
b) “The objectives of fiscal devolution to local bodies are an important start. The use of cash can fuel the
as mandated by the 73rd and 74th constitutional black money economy, as transactions using paper
Amendment Acts has been derailed by the actual money are harder to track. In the last fiscal alone,
working of the State Finance Commissions. ” currency in circulation saw a sharp increase,
Comment. which the RBI said could be partly linked to the several
The SFC is a constitutional institution with great state elections held in that period – hinting at the
potentialities for building democratic decentralisation distribution of cash as incentives to voters.
In this regard, the growing popularity of digital than those in desk jobs. Equivalently, there are jobs like
payments through electronic wallets and the that of linesman in electricity companies, where the
government’s Unique Payment Interface could help curb rules prescribe an age ceiling for the work of line repair
cash transactions. But most importantly, a vocal and at 45, but where the individuals remain on the payroll up
public campaign against black money and corruption, to the uniform retirement age of 60. In an upwardly
led by the government, could go a long way. mobile vertical, these employees can graduate up to
higher levels, but for those who do not, the retirement
Q.8) a) Do you agree that Seventh Pay Commission’s age has to be equated to the performance limit for the
recommendations do not reflect and correlate the need function.
for civil service reforms and accountability with pay
increase? Justify your answer. The final paradox is that as salaries are regularly
The report of the Seventh Pay Commission has yet winched up for employees on the permanent payroll of
again lost a massive opportunity for effecting such government, the salary bill is sought to be held down in
reform. Surprisingly, for a salary hike that is justified on practice by either not filling vacancies, or filling them
the grounds that it will raise the calibre of future with temporary staff. The data on vacancies show one
entrants, no surveys of aspirants are ever performed to in five positions vacant as on 1 January 2014 on
get what they are looking for. Are they just looking at average across all departments, ranging up to nearly
salaries? one in two positions in some ministries (the finance
The service parity issue has indeed been addressed in ministry among them). This is the single most important
the report, but in terms of promotion intervals and pay indicator of dysfunctionality of government in India,
disparities. The more serious consequence of the since elsewhere in the world, vacancies either address a
hierarchy between services has to do with disruption to functional need (in which case they are immediately
functioning when a ministry with a particular deliverable filled), or not (in which case the post is axed). The
is manned at the top by officials with no specialist report says nothing about either that or related issues
knowledge or experience in delivering that service at the such as the protection (not) accorded to contractual
ground level. workers in outsourced services for the running of office
The second failing of the system which the commission canteens, security services, and maintenance of
accepts as given is that there will be elite Group A buildings and grounds, other than a feeble injunction
services (including the IES inductees), accounting for as against exploitation of such employees.
little as 2.8% of the total number of central employees
(which itself, at 3.3 million, is small by international
standards relative to the size of the population). The
major task of delivering governance rests with Groups B
and C, who are rewarded by being shut out from
decision-making posts. This segmentation even within
each deliverable has shattered internal cohesion within
government.
The third reform needed is non-uniform retirement ages
within each functional service. This nettle has been
grasped in the armed forces, for example, where it is
understood that combat troops have to retire earlier
b) “In a democratic polity, any conception of ethics and c) “Police reforms in India have remained a
integrity in public life must encompass not only contentious issue.” Critically analyse.
politicians and civil servants but also citizens.” It is high time that the government seriously consider
Discuss. bringing police/public order in the Concurrent List of the
Ethics is a set of values and principles that helps guide Constitution. All state governments depend on the
behaviour, choice and action. Organizations as well as Centre to maintain law and order. An amendment to the
individuals have certain ethical standards. Civil servants Constitution would give de jure status to what is already
have a special responsibility because they are entrusted de facto on the ground. Fali Nariman, a leading
with managing resources on behalf of the community, constitutional expert, has strongly argued for such an
delivering services to the community and taking amendment. If the amendment is not found feasible, the
decisions that affect a citizen’s life. The community, least the government should do is declare certain
therefore, must be able to trust the integrity of the civil crimes as “federal” and entrust their investigation to a
service decision- making process. Civil servants are Central agency. This would be in keeping with the
expected to maintain high standards of professionalism, recommendations of the Second Administrative
responsiveness and impartiality. In India, civil service Reforms Commission.
values have evolved over years of tradition and are There are a range of other measures which could be
presently codified in a set of conduct rules. The code of undertaken without any significant opposition. There are
behaviour outlined in the conduct rules is generally in huge manpower deficiencies — we are short of about
the form of a catalogue of acts that are considered half a million policemen nationwide. Why can’t these
undesirable for government servants. There is no code vacancies be filled up and provide employment to
of ethics prescribed for civil servants in India which lays many? Police transport needs an upgrade. There are
down a clear and concise statement of the values and police stations in the country — and this may come as a
ethical standards that a civil servant should imbibe. surprise to you — which have neither a telephone nor
wireless. Forensic facilities are hopelessly inadequate
A comprehensive civil service code can be in all the states — except Gujarat, which not only has a
conceptualized at three levels. At the apex level, there state forensic laboratory, but also regional, district and
should be a clear and concise statement of the values mobile laboratories. The Gujarat model in forensics
which should reflect public expectations from a civil needs to be replicated in other states.
servant with reference to political impartiality,
maintenance of the highest ethical standards and Separation of investigation from law and order is the
accountability for actions. At the second level, the broad least controversial direction of the SC. This could be
principles which should govern the behaviour of a civil implemented right away. Some states have already
servant may be outlined. This would constitute the code initiated the process. In fact, it would be ideal to hold a
of ethics. At the third level, there should be a specific conference of the chief ministers, chief
code of conduct stipulating in a precise and secretaries/home secretaries and DGPs of all the states
unambiguous manner, a list of acceptable and to discuss the entire gamut of police reforms to
unacceptable behaviour and actions. Accordingly, the enhance the capabilities of the police to meet the
commission has recommended that a code of ethics for challenges of the future.
civil servants should be incorporated into a proposed These challenges are going to be very serious. Terrorist
new civil service law and the conduct rules should also threats to the security of the state will be most
be redrawn based on the same. formidable. Cyber-crimes will pose a serious threat.
Maoist insurgency, militancy in the Northeast and
separatist elements in J&K are already there. The overall and you are surrounded by enemies on the battlefield).
internal security scenario is going to be grim and is best The security architecture of the country requires a lot
summed up in the Sanskrit verse Agnina dahyamanastu more reinforcement and strengthening.
shatru madhye gato rain (when there is fire all around
● Slides (For Giving Summary of Each Topics) - PDF COPY (Which Can be downloaded/saved easily)
● Gist of National Administrative Committees Reports - PDF COPY (Which Can be downloaded/saved
easily)
● Gist of Important Articles from the Journals of IIPA of last 25 years (Indian Institute of Public
Administration, New Delhi)- PDF COPY (Which Can be downloaded/saved easily)
● Current Public Administration, A Monthly Magazine- PDF COPY (Which Can be downloaded)
Section-A Therefore Public choice theorist calls for Institutional
Q1.Answer the following questions in about 150 words pluralism where Government should be at equal playing
each: 10×5=50 field with private sectors in market. Thus Public choice
A. Waldo’s The Administrative State’ provides a approach protagonist call for ‘steering’ and undermines
fundamental challenge to some of the orthodox ‘rowing’.
premises. Explain. 1. Acknowledging the inefficiencies of State
Waldo's "The Administrative State" challenged the owned and operated enterprises
orthodox premises of Public Administration(PA). 2. Non-core services are contracted out
3. Promoting entrepreneurial attitudes
1. Waldo argued that public administration had to 4. Minimum Government and Maximum
function in a political atmosphere and take part governance approach.
in policy formulation. 5. Signing MoUs for better accountability
2. In view of Waldo there was much in common 6. Participation of Voluntary institutions
between politics and administration.
3. Waldo questions the concept of developing C. “Delegated Legislation is a necessary evil.”
universal principles. Comment.
4. In view of Waldo Public Administration has One of the most significant developments of the present
more to do with the values, social change and century is the growth in the legislative powers of the
equity. executive , more legislation is produced by the executive
5. Waldo calls for social efficiency. government than by the legislature. The increase in
6. Waldo questions ignoring the irrational and quantity and quality of delegated legislation, if not
informal aspects of the organisation. supplanted by clear procedures and effective controlling
mechanisms, may ultimately result in arbitrariness and
B. Discuss how the Public Choice Theory promotes the abuse of power, which in turn leads to injustice and
concept of ‘Steering’ and undermines the concept of violation of liberty.
‘Rowing’ in visualising efficient and effective
administration. That is why it is regarded by many as a “necessary evil.”
Public choice theory is the use of management tools in It was considered a danger to the liberties of the people
studying the governmental affairs, gained popularity and a device to place despotic powers in a few hands. It
when there was failure of ‘welfare state’ model. was said that delegated legislation preserved the
outward show of representative institutions while management, whose primary tools are speech acts,
placing arbitrary and irresponsible power in new hands. producing public goods. The moral purpose of public
However, in reality, the intricacies and complexities of administration, implicit in its acceptance of its role, is
modern government have proved beyond doubt that the the maximisation of the opportunities of the public to
delegation of legislative powers to administrative satisfy its wants. Thus using the term policy
agencies is a compulsive necessity. implementation in some respect for public
administration would be a narrow interpretation.
D. Do you agree with the view that the charismatic
approach of the mid-1970s is a “new version” of the Q2. 20+15+15 marks
Classical Trait Theory of Leadership? Give reasons. a. “Globalisation has transformed the nature and
Charismatic leadership theory assumes that the charm character of State from traditional administrative
and persuasion are indispensable for a leader; Classic Welfare State to a Corporate State.” Analyse the
trait theory assumes that leaders have some common changes in the nature of public administration in this
traits. context.
1. Both theories consider the personality as focus The argument that globalization transforms the Welfare
of study. State and therefore a cut in social spending is not
2. Classical trait theory states that leadership supported by evidence. On the contrary, a strong
qualities can be learned by training and democratic State is needed to redistribute the benefits
education whereas charismatic theory thinks of globalization and to minimize the costs that some
charisma is god gifted and by birth, it can not segments of the population may bear. To put it more
be achieved through training and education. simply, globalization may require that the State improve
3. Traits theory gives a list of traits that makes a its capacity to deal with greater openness, but it does
person a leader whereas in charismatic theory it not seem to undermine its size nor its fundamental role
is charisma that is supreme. within the national and international landscapes.
4. However the leader follower equation is To be sure, the State remains central to the well-being of
different in both theories. its citizens and to the proper management of social and
economic development. The State is also responsible
E. “The term policy implementation is in some respects for adopting policies, which are conducive to greater
preferable to the label public administration.” Argue. economic integration. We should not forget that further
Public administration is the implementation of global integration can be reversed by state policies
government policy and an academic discipline that inimical to openness, as occurred between the two
studies this implementation and that prepares civil World Wars. In brief, globalization does not reduce the
servants for working in the public service. Public role of the welfare State, but redefines it given the
administration is "centrally concerned with the pressures and responses it must give at the local,
organization of government policies and programmes national and international levels.
as well as the behavior of officials (usually non-elected)
formally responsible for their conduct." b. “Contemporary Organisational theory seems further
Public administration is the public provision of public afield of Chester Barnard’s Functions of the Executive
goods in which the demand function is satisfied more or than of organisational ecology.” Examine the statement
less effectively by politics, whose primary tool is in the light of ecological elements in Barnard’s thought.
rhetoric, providing for public goods, and the supply The Functions of the Executive, sets out a theory of
function is satisfied more or less efficiently by public organization and of the functions of executives in
organizations. The book has been widely assigned in Creating an ongoing narrative about partnerships and
university courses in management theory and how will these be developed, maintained, terminated.
organizational sociology. Barnard viewed organizations This is especially prevalent to the local and state
as systems of cooperation of human activity, and noted governments who rely heavily on the non-profits for the
that they are typically short-lived. According to Barnard, public services. A business partnership model would
organizations are generally not long-lived because they not be accurate or appropriate for a P3. Many
do not meet the two criteria necessary for survival: partnerships can be terminated early due to issues with
effectiveness and efficiency. trust and cooperation during the contract
The Functions of the Executive is a book by Chester I. implementation process. These issues can be avoided
Barnard (1886–1961) that presents a "theory of when the organization has initial guidelines for dos and
cooperation and organization" and "a study of the don'ts. Creating a formal control mechanism for the
functions and of the methods of operation of executives partnership.
in formal organizations." it was originally published in
1938; a Thirtieth Anniversary edition, published in 1968, a. Ensure that there is a continuous commitment
is still in print. with negotiations in any time of trouble and
The book is notable for its focus on how organizations even an outline for termination procedures if
actually operate, instead of previous approaches to necessary.
organizations that emphasized "prescriptive principles." b. Conflict resolution, outreach and organizational
It has been praised for being one of the first books to development are items that managers can work
consider leadership from a social and psychological on and even assign specialists to each task.
viewpoint. Creating a timeline to be followed throughout
c. “PPPs serve too many parties and too many the partnership assists in mutual understanding
interests … to be focussed.” Identify in the context of and communication as well. Assigning
the statement, the parties involved in Public-Private specialists to work with skills in
Partnerships and their conflicting aims. communication, conflict resolution, negotiation
These can arise from any of the above topics but even and policy analysis cross-sector partnerships
outside issues or forces may bring a partnership to a have also been able to flourish
halt. Even though these partnerships are entered into
with the best of intentions, even the most trivial issues Q3. 20+ 15+ 15 marks
can snowball into greater conflict halting a partnership a. “Follett’s work was not directed towards the
dead in its tracks. Having no understanding and resolution of the conflict of ideas, but towards the
communication between parties can cause conflicts resolution of structural conflicts between workers and
with use of language, stereotyping, negative capitalists.” In the light of the statement critically
assumptions, and prejudices about the other evaluate Follett’s idea of dynamic administration. 20
organization. These conflicts can be related to M. P. Follett occupies a prominent place among the
territorialism or protectionism, and a lack of contributors to administrative thoughts, though she is
commitment to working within the partnership. less known to the public and even to some writers and
Partnerships might not be natural for business and teachers of administration.
managers do not want to depend on others but it is It goes to her credit for initiating studies on industrial
possible with careful solutions. groups which had seldom been subject matter of study
by political or social scientists. She evolved principles
of human association and organization specifically in
terms of industry and convinced businessmen of the communication, therefore, becomes the lifeblood of an
practicability of these principles in dealing with current organization.
problems.
Fundamentals of interpersonal communication are
Associates of scientific management schools like Fayol, communicators, message, noise, response, background
Urwick, Oliver Sheldon were influenced by her. Peter and channel. Decent interpersonal communication skills
Drucker, the management theoretician, called her ‘the support intimate relationship, counselling, selling,
prophet of management’ and his management, conflict management, etc. The various
‘guru’. hindrances to effective interpersonal communication
like sentiments, filtering, message crammed with
Folett gives very high importance to the problems of information, defensiveness, cultural differences and
conflict in the organisation. In her celebrated paper slang can be overcome by simplifying language,
‘Constructive Conflict’, she advances the idea that controlling sentiments, listening ardently and using
conflict should be regarded as a normal process in the feedback.
organization. It is not a wasteful outbreak of c. “Legislative action is not subject to the rules of
incompatibilities, but a normal process by which natural justice.” Explain the exceptions to the rule of
socially valuable differences register themselves for the natural justice.
enrichment of all concerned. There are some situations in which the rules of natural
To Follett, conflict is neither good nor bad and has to be justice are not to be followed in the best interest of the
considered without passion or ethical prejudgment. society. The word exception in the context of natural
Because of individual differences, conflict is justice is really a misnomer, because in these
unavoidable in human organizations. Since conflict is exclusionary cases the rule of audi alteram partem is
unavoidable, instead of criticizing it as something bad, held inapplicable not by way of an exception to ‘fair play
one should try to capitalize on it and make use of it to in action’, but because nothing unfair can be inferred by
do something good. not affording an opportunity to present or meet a case.
Such situations where nothing unfair can be inferred by
b. “Information constitutes the life-blood of the not affording fair hearing must be few and exceptional
functioning of an organisation.” Explain the utility and in every civilized society. Application of the principles of
significance of communication in decision-making. 15 natural justice can be excluded either expressly or by
Communication plays a crucial role in the functioning of necessary implication, subject to the provisions of
organizations. In fact, what an organization requires Articles 14 and 21 of the constitutions.
mainly is communication. It is an inseparable, essential Legislative action, plenary or subordinate, is not subject
and continuous process just like the circulatory system to the rules of natural justice because these rules lay
in the human body. As a result, communication down a policy without reference to a particular
effectiveness becomes a very vital factor in determining individual. On the same logic principles of natural
the efficiency with which an organization performs as a justice can also be excluded by a provision of the
whole. The existence of an organization depends upon a Constitution also. The Constitution of India excludes the
number of things like unity of command, delegation of principles of natural justice in Articles 22, 31(A), (B), (C)
authority and responsibility, teamwork and leadership, and 311(2) as a matter of policy. Nevertheless, if the
each one of which entails a strong support of legislative exclusion is arbitrary, unreasonable and
interpersonal communication. Interpersonal unfair courts may quash such a provision under Articles
14 and 21 of the Constitution. Union of India V.
Cynamide India Ltd. when the Supreme Court that no Emotional intelligence is the capacity of individuals to
principles of natural justice had been violated when the recognize their own, and other people's emotions, to
government issued a notification fixing the prices of discriminate between different feelings and label them
certain drugs. The Court reasoned that since the appropriately, and to use emotional information to guide
notification flowed from a legislative act and not an thinking and behavior. Modern administration is based
administrative one so the principles of natural justice on
would not apply. performance which requires both merit and emotional
intelligence. The changing and dynamic role of
Q4. 20+15+15 marks administration couldn’t be envisaged by Weber in a
A. “Right from the days of the ‘Peoples’ Charter’ to the relatively stable society where he was living and when
new concept of `Precariat Charter’, the concept of there was no idea of welfare society.
Citizen’s Charter and its scope is constantly evolving.” The nature and the content of public administration
Comment. have changed in Germany during the 1920s which
The People's Charter enunciated the key points that witnessed the decline of liberalism and the rise of
were necessary to reform the electoral system and to authoritarianism. Weber ensured maximum social
alleviate the suffering of the working classes – these acceptance of bureaucratic model, and many predicted
are the following: loss of its relevance in modern democratic
● Universal suffrage administration but it is half hearted truth because
● No property qualification required for members technical competence, training and professionalism are
of parliament the some of the Weberian postulates that are still
● Annual parliaments meet remain relevant even today .
● Equal representation to all When bureaucracy today moved away from the
● Payment of salary to members historical concepts of dehumanization and
● Vote by secret ballot impersonality, the emotional skills are essential to job
None of demands under People’s charter were new, but performance and customer service has gained a
the People's Charter was to become one of the most foothold and emotional intelligence skills will definitely
famous political manifestos of 19th century Britain. continue to be important benchmark for bureaucracy
Globalisation, the neo-liberal economic model generated because of increased dependency on technological
precariat, which is growing rapidly in most countries . It forms of communication in modern organisation.
is a class-in-making, not a class-for-itself. It feels
alienated from mainstream political establishments. C. How far do you agree with the view that the growing
The precariat fundamentally different from the influence of media comes in the way of agenda-setting
proletariat, having distinctive relations of production by the Government ?
and distribution, with distinctive relations to the state. The mass media play a role in agenda setting and in
Many have not been voting and politically apathetic, problem framing, they are participants in the
merely that mainstream parties and politicians have not policy-making process as well as transmitters of news
understood their needs or aspirations. and information”. Agenda-setting studies are abundant
in mass media literature.
B. “Weberian model of bureaucracy lacks emotional The studies of agenda setting show that the news
validity when applied to modern democratic media play an important role in what the public thinks
administration.” Comment. about and the policy outcomes that result from changes
in public opinion. While the research on agenda setting
continues to grow, both in breadth and depth, the Q5. Answer the following questions in about 150 words
majority of it still focuses, as the original research did, each : 10×5=50
on the relationship between the media and public a. “Comparative Performance Measurement (CPM)
opinion with little research on policy outcomes. bridges everyday work experience with the broader
Contemporary agenda-setting research, including this horizons of comparativism.” Explain.
study, synthesizes ideas based largely on CPM is a performance appraisal method. Broader
communication about decisions in agenda setting and horizons of Comparativism would be going beyond
draws on theories within public administration. cross departmental and cross agency studies.
Kingdom said the media, one of the vehicles for policy Broadening here tries to bring cross country and cross
change, are important because (1) they are continent studies. Comparative Performance
communicators within policy community; (2) they can Measurement data is used by Councils to measure
magnifying movements that have already started trends in their own performance over time, and to
elsewhere; (3) to the extent that public opinion affects compare their performance with the average results for
some of the participants, they might have an indirect similar Councils, Councils in their region, and across the
effect. State.
Using the data for direct comparisons between
The impact of the media on public opinion, which most individual Councils may produce results which are both
research regarding media agenda setting examines. inaccurate and unreliable, owing to variations in the
That the media can influence public opinion has been methods of data collection and the different issues
clearly established through agenda-setting studies. Max being dealt with by each Council at the local level.
McCombs and Donald Shaw, showed that, at least when
it comes to national issues, by ignoring some problems b. Analyse the relevance of Whitleyism in
and attending to others, the mass media profoundly contemporary employer — employee relationship.
affect which problems readers, viewers and listeners Whitley Council in white-collar and government, is a
take seriously. statutory council of employers and trade unions
established in the United Kingdom and elsewhere. It is a
workplace partnership institution that serves for a
forum of consultation between employees and
employers.
Councils were established from 1919. They typically
worked to determine wage rates, terms and conditions
in a specific industry. There were dozens of JICs, one
for each industry.
Most JICs were established between the 1920s and the
1940s. The larger JICs also had regional councils
throughout the country and some industries had
separate JICs for England and Wales, Scotland and
Northern Ireland.
Whitley Councils may be organised in a hierarchical
manner, reflecting the structure of the employing
Section-B organisation. For example, within the UK civil service,
Whitley councils exist at local, workplace level, then at
departmental level and ultimately at national level. In e. Show in what way the Gender and Development
other institutions a geographic hierarchy (local, area, approach differs from the Woman and Development
regional, national) may be followed. approach.
The women and development (WAD) approach
c. “No significant change can be made in the budgetary originated back in 1975 in Mexico City, as it sort to
process without affecting the political process.” discuss women’s issues from a neo-Marxist and
(Wildavsky). Analyse. dependency theory perspective. Its focus was to
No significant change can be made in the budgetary “explain the relationship between women and the
process without affecting the political process. There process of capitalist development in terms of material
would be no point in, tinkering with the budgetary conditions that contribute to their exploitation”. The
machinery if, 'at the end, the pattern of budgetary WAD perspective states that women have always
decisions was precisely the same as before. participated and contributed towards economic
On the contrary, reform has little justification unless it development, regardless of the public or private
results in different kinds of decisions and, when and if spheres.
this has been accomplished, the play of political forces The Gender and development approach originated in the
has necessarily been altered. Enabling some political 1980s by socialist feminism. It serve as a transitioning
forces to gain at the expense of others requires the point in the way in which feminist have understood
explicit introduction and defense of value premises development. It served as a comprehensive overview of
which are ordinarily missing from proposals for the social, economic and political realities of
budgetary reform.Perhaps the "study of budgeting" is development. It origin relates back to the Development
just another expression for the "study of politics". Alternatives with Women for a New Era (DAWN)
network, when it was first initiated in India. The DAWN
d. “In the appreciative systems of policy makers, goals program was then officially recognized in 1986 during
are subsidiary to norms and values.” (Vickers). Explain. the 3rd UN conference on women in Nairobi. The
Vickers suggests replacing the goal-setting and conference brought about activist, researcher and
goal-seeking with feedback models in which personal, development practitioners globally. As the conference
institutional or cultural activity consists in maintaining discussed about the achievements made from the
desired relationships and eluding undesired ones. previous decade’s evaluation of promoting equality
The process is a cyclical one which operates like this: among the sexes, and a full scope of the obstacles
Our previous experiences have created for us certain limiting women’s advancement, especially in the
'standards' or 'norms', usually 'tacit' (and also, at a more developing world. The forum discussed about the
general level, 'values', more general concepts of what is effectiveness of the continuous debt crisis and
humanly good and bad); the standards, norms and/or structural adjustment program implemented by the IMF
values lead to readiness to notice only certain features and the World Bank, and how such concept of
of our situations, they determine what 'facts' are neoliberalism tend to marginalize and discriminate
relevant; the facts noticed are evaluated against the women more in the developing countries.
norms, a process which leads to our taking regulatory The diversity of this approach was open to the
action and modifies the norms or standards, so that experiences and needs of women in the developing
future experiences will be evaluated differently. world. Its two main goals were to prove that the unequal
relationship between the sexes hinders development
and female participation. The second, it sort to change
the structure of power into a long-term goal whereby all
decision-making and benefits of development are above', and opposed the Proletkult (1917–25)
distributed on an equal basis of gender neutrality. organisational control of the national culture.
The GAD approach is not just focused on the biological In the political sphere, Lenin held that socialism should
inequalities among sexes: men and women, however on be far more democratic than the most democratic
how social roles, reproductive roles and economic roles capitalist state. Socialism provided rights and freedoms
are linked to Gender inequalities of: masculinity and for working people that capitalism did not offer, such as
femininity. the right to a job, the right to health care and financial
security in old age. Socialism also provided rights
Q6. 20+15+15 marks capitalism promised but did not deliver, like the right to
A. “Administrative ethics is a process of independently genuinely participate in the government. Minority
critiquing decision standards, based on core social nationalities were guaranteed the right to develop their
values that can be discovered, within reasonable own culture, use their own language and govern
organisational boundaries that can be defined, subject themselves. Working people controlled the socialist
to the personal and professional accountability.” government through their own political party, the
(Denhardt). Explain. Communist Party. The socialist government defended
The core public service values are the common the rights of the working people and ensured that the
standards by which we evaluate the behavior of public overthrown bourgeoisie did not return to power. In fact,
servants, and are informed by democratic principles, socialism could only be built if the majority of the
social norms, and professional ethics. Public people supported it and were actively involved in
organizations are challenged to find ways to building it. Lenin cautioned that Russia’s path to
institutionalize these ethical values, and hold public socialism should not be mechanically applied to other
servants accountable for behaving in accordance with countries. Each country had to find its own way, based
the standards. on its particular situation.
To some extent public service ethics can be codified in
laws or regulations intended to define expected or C. “Policy analysis is incomplete without taking into
prohibited behavior. But such efforts usually succeed account policy delivery.” Argue.
only in delineating the most egregious conduct to be Policy delivery systems that can assist us in making the
avoided by public servants, and the minimum standards policy analysis we give more relevant, reliable and
of expected behavior. Codes of ethics are another workable. This means above all that it must be
approach to starting shared values. context-specific: it is the analytical framework that we
It is widely recognized that laws, rules, and regulations need to be able to carry with us to each country, not the
intended to codify public service ethics are necessary, results of our using it elsewhere. The corollary to this is
but are not sufficient to achieve the desired end of that we must gain an understanding of the specific
upholding the highest standards of ethical behavior context within which we are using the framework. Some
among public servants. feeling for history is helpful - the legacy of the past
affect how things work in the present, and may
B. “Lenin’s concept of Socialist management refers to constrain what is possible. Thus, for example, the
directing the organisational development of Socialist Ottoman Empire, Soviet-style communism and colonial
society.” Explain. rule had different consequences for the type of
Influenced by Lenin, the Central Committee of the bureaucracy that has been inherited, as well as for the
Bolshevik Party stated that the development of the legal system and attitudes to the law. Geography,
socialist workers' culture should not be 'hamstrung from politics and macroeconomics also need to inform our
understanding of the situation in the country and its Similarities:
relationships with other countries. A country analysis is
therefore the overall starting point, and might need Both a Code of Ethics and a Code of Conduct are similar
further development if an alternative to the existing as they are used in an attempt to encourage specific
policy delivery system as a whole is indicated. forms of behaviour by employees. Ethics guidelines
attempt to provide guidance about values and choices
Q7. 20+15+15 marks to influence decision making. Conduct regulations
A. How does Ferrel Heady rationalize the three stages assert that some specific actions are appropriate,
of development in comparative administration? others inappropriate. In both cases, the organization’s
The comparative public administration got real impetus desire is to obtain a narrow range of acceptable
in 1962 when the CAG received the financial support behaviors from employees.
from the Ford Foundation. The CAG developed a Differences:
programme with three objectives:
a. to encourage research in comparative public With similarities, comes differences. Both are used in an
administration; attempt to regulate behavior in very different ways.
b. to encourage the teaching of comparative Ethical standards generally are wide-ranging and
public administration; non-specific, designed to provide a set of values or
c. and to contribute to more effective public policy decision-making approaches that enable employees to
formulation in the field of development make independent judgments about the most
administration. appropriate course of action. Conduct standards
Purposes of the Article According to Professor Ferrel generally require little judgment; you obey or incur a
Heady, comparative public administration addresses penalty, and the code provides a fairly clear set of
five „motivating concerns‟ as an intellectual enterprise. expectations about which actions are required,
These are: acceptable or prohibited.
a. The search for theory;
b. The urge for practical application; C. “E-Governance creates a direct relationship between
c. The incidental contribution of the broader field the Citizen and the State.” In this context, explain the
of comparative politics; changing role of the elected representatives.
d. The interest of researchers trained in the The use of e-governance is part of a broader trend in
tradition of administrative law; and society where service has become more individual and
e. The comparative analysis of ongoing problems tailored to the specific requirements of the customer.
of public administration. These pressures and the governmental challenges are
increasingly demanding different responses from
B. Distinguish between ‘Codes of Conduct’ and ‘Codes current government service providers. There are
of Ethics’. Justify your answer. pressures for all services to join a more mainstream
Codes of ethics, which govern decision-making, and delivery to citizens
codes of conduct, which govern actions, represent two As yet very little has been written about this issue other
common ways that companies self-regulate. They are than generic studies of the use of the internet for
often associated with large companies, and provide transactions. Although there are those who have
direction to employees and establish a public image of considerable concerns about the use of e.government
good behavior, both of which benefits businesses of any technology for all groups there are others who
size. demonstrate how ‘wired ‘ government reintroduces local
Section-A developmental plans in the districts. Apart from the
direct responsibilities, a collector frequently gets
Q1.Answer the following questions in about 150 words involved with the programmes of other departments,
each: 10×5=50 like the PWD, irrigation, power, forest, agriculture, health
A. “Democracy within bureaucracy is likely to reduce and family welfare. He has to coordinate their activities
its effectiveness.” Do you agree with this view? Argue and also helps them in sorting out their local problems.
your case. This role of the DC as a co- ordinator is becoming
Democratic governance institutions are assumed to be increasingly important as well as difficult. The
responsive to the wishes of the public, and to be coordination mechanism is weak with the result that the
attempting to map those preferences of the public into different limbs of district administration to not pull
positive outcomes for their citizens. On the one hand, together and indeed after work at cross purposes.
the public expresses dislike for “big government,” Although facing all these problems DC is trying to do his
exemplified by bureaucracy. On the other hand, level best in maintaining coordination between different
Americans support many government programs and departments.
have high expectations for government. One
consequence of these divergent views is that public C. Why has District Planning been marginalized in
discussion about bureaucracy is often high on emotion many States and remained prominent in a few States?
and short on facts. Finding the right balance between Explain.
bureaucratic autonomy and public scrutiny is a central Decentralised District Planning comprises of different
task of creating an effective government; it is one that planning units within a district who can achieve by
requires both presidential and congressional vigilance envisioning collectively, operating their budgets,
to build an effective and responsive bureaucracy. exercising their skills and leveraging their initiative.
Different planning units, comprising district panchayat,
B. “District Collector’s role in the development process block panchayat and village panchayat, municipalities,
has been overemphasized.” Comment on the line departments and parastatals would prepare a plan
statement. for execution of each of their functions and
The development role of the Collector became a focal responsibilities after consultations with people. The
point after independence with the initiation of final plan would result from a buckling together of these
development planning in India. The Collector is unit plans through a consultative process of
responsible for the direction and execution of consolidation. The consolidation of rural and urban
plans as a District Plan is done by the District Planning E. ‘Minimum government, maximum governance’ is not
Committee (DPC) and this institution is not fully just a slogan but a philosophy of administration with
developed in some of the states. enormous potentialities.” Do you agree? Give reasons
The DPC is formed under the State Planning Board and for your answer.
next to it comes the problem of coordination. The Small government might seem like a new idea but it’s
members of DPC comprises elected representatives really the oldest form of government. Throughout
from the Municipality and District panchayat. In the history, states were tiny, consisting of little more than an
municipality the Urban Local Body (ULB) line army (often temporary) and a paper-thin bureaucracy
department officials form the standing committee. extending just a bit beyond a royal court. Then in the
Similarly, the district panchayat form their standing late 19th and early 20th centuries, notions of a welfare
committees after being elected from village and block state started to take root. Pushed in part by the appeal
panchayat. State line department officials which are of socialism, the United Kingdom introduced
government officials working in the district (district wide-ranging healthcare and Germany old- age
level, block level and field functionaries) support the pensions.
municipality and three-tiers of panchayat.
In the 1970s, there was a reaction to this welfare state
D. “Ordinance-making power of the Executive needs to in both the United States as well as Britain with
be suitably restrained.” Examine it critically. Conservatives championing a cut back of government
Our Constitution gives vast powers to the executive to spending. This was a position shared with Libertarians
act independently of Parliament. It can, for example, who held no significant political power but, interestingly,
declare a state of emergency, set up important had a fair bit of influence among the elite in India.
administrative authorities such as the Pension Fund In 2014, as most of the Indian elite supported the
Regulatory and Development Authority (PFRDA) and the Bharatiya Janata Party during the Lok Sabha election,
Unique Identification Authority of India (UIDAI), and the party nodded back with a surprising slogan in the
indeed the Planning Commission without having to seek Indian context: minimum government, maximum
parliamentary approval first. It then becomes imperative governance. On his website, Narendra Modi intriguingly
that the ordinance-making power be suitably restrained argues that Mohandas Gandhi’s vision of empowered
to create a balance of power between the executive and village governments is an instance of small
the legislature. Creating strong judicial review over government.
ordinance-making may be one such mechanism. One
news report states that the UPA government may Q2. 20 + 20 + 10 Marks
postpone the monsoon session of Parliament by a A. To what extent has political culture influenced the
couple of weeks. One of administrative culture of India? Explain. 20
the reasons why this is apparently being done is that the Fred W. Riggs classified social structures into three
UPA “felt it would be better to give it a gap [between the types : fused, prismatic and diffracted and outlined
promulgation of the Food Security Ordinance and the features of administration in each of these categories.
start of the session] before the monsoon session Administration is culture-bound and shaped by the
commences”. This, if true, may provide the most environment in which it operates.
necessary and immediate incentive to lay down Administration is most immediately and prominently
benchmarks for the review of the ordinance-making influenced by the political culture. The nature of political
power. culture determines the nature of administrative culture.
During British raj, Indian political system was
various policy options and candidates to determine their
post-election representatives. Political parties fix policy B. Explain fully how a balance can be struck between
priorities as identified by members and supporters. It autonomy and accountability of India’s public
mobilize citizens toward political participation while enterprises.
demonstrating how they can transform public opinion Definition of accountability implies that account should
into viable policy options be rendered by a public undertaking to some higher
authority and that if the latter is dissatisfied, it can order
Q3. 20 + 20 + 10 Marks that steps be taken to put matters right. Accountability,
A. The objectives, approaches and organizational therefore, includes control, one is meaningless without
arrangements for decision- making of the NITI Aayog the other The formal channels for securing
aim at restoring the federal character of the Indian accountability are through Parliament Audit and Annual
polity. Explain. Report. Further, accountability is secured when they are
The NITI Aayog aims to foster ‘cooperative federalism’ answerable to the public criticism in the press and
through structured support initiatives and mechanisms keeps the public informed through writings and other
with the States on a continuous basis, recognising that materials. The term ’Autonomy’ is too much associated
strong States make a strong nation. It promises to with Accountability. It implies freedom to act. The
promote the spirit of federalism in both planning and national convention on PEs held in 1979, stated,
the Centre’s disbursal of funds to the States. "Autonomy in this connection means full freedom of
The new institution needs to work in tandem with internal management unhindered by pressures from
constitutional institutions such as the Finance state agencies but subject to social objectives adapted
Commission and the Inter-State Council if a new federal by the State; It is related to the freedom in the internal
culture has to evolve. The former decides how national management. PEs are established by the Government by
revenue, collected as tax revenue through Central taxes, spending money from public exchequer, hence these
should be shared with the States. With no strings units are meant for public welfare. So there, cannot be
attached, the Inter-State Council can be a deliberative complete autonomy as long as PEs are publicly
body that sorts out the bargaining issues between accountable. Accountability of an enterprise is inversely
States that are at different levels of development or related to the autonomy it enjoys in its functioning. A
have different economic structures. The NITI Aayog situation of complete accountability implies zero level
should plug into these discussions as an influential of autonomy and vice-versa. Likewise, accountability
advisory body. The NITI Aayog can be a successful should not be over emphasizedSo, some sort of balance
innovation as long as such details are tackled. has to be struck between the requirement of
The new India, for which the NITI Aayog has been set accountability of the enterprises to Parliament and their
up, is a radically different country. The old assumptions need for freedom in day today administration. Thus, the
about low domestic savings, foreign exchange management desires more freedom in internal decision
constraints and shallow financial markets have withered making and the Government and Parliament tries to
away. The private sector had replaced the public sector make them accountable as much as possible.
as the main engine of investment many decades ago.
The markets have a far greater role to play in mobilising C. “Decentralised governance must serve as an
savings and channelling them towards productive instrument of realizing social change and social
investments. The Planning Commission started justice.” Comment on the statement.
irrelevance in the face, even though it did try to reinvent Decentralised governance in theory promotes
itself as a manager of social sector schemes. development. Subsequently, people's participation,
accountability and transparency as well as social capital powers and the independence of the judiciary from the
become critical factors in effective, equitable and executive, remains intact under the NJAC, as the NJAC’s
sustainable development. Development is a social chairperson is the CJI, who has an important role to
process by which consistent improvement in the life play.
style of the people is brought about. Thus the growth of
primary, secondary Furthermore, the NJAC is good for democracy (which is
and tertiary sectors becomes essential. But economic also a basic feature of the Constitution) and requires
growth should not lead to the aggrandizement of a that no organ of the state, including the judiciary, enjoys
wealthy minority and pauperization of the majority. The absolute freedom Attorney general Mukul Rohatgi
benefits of growth should be enjoyed by all sections of argued that to retain “public confidence”, judicial
society. So production of wealth go along with its appointments “must be seen both in the context of
equitable distribution of result in development. More independence of the judiciary as also the need for
than that it should be ensured that these developments checks and balances on it”.
are sustainable. The goal of these developments can be
achieved through decentralization. Local bodies are Against NJAC:
more efficient with respect to allocation of resources. The counter-argument is that Parliament made an
Local level planning is necessary not only to respond to unconstitutional amendment by introducing Article 124
the preference of the people but also in efficient A. In the second judges case a nine-judge bench laid
utilization of natural resources of the areas within each down the primacy of the CJI as part of the basic
body. Democratic decentralization can contribute to the structure of the Constitution and the 99th Amendment
improvement in the efficiency of implementation, in Act cannot simply violate this now.
particular if the development process is made
participatory and transparent. This helps to prevent B. “In very recent times, the role of the State Governor
misuse of resources and allows for better monitoring of is found to be more diplomatic than administrative
programmes. Participation also helps to tapping nature.” Comment on the statement with suitable
dormant local resources in the form of monetary examples.
donations, material contributions and voluntary labour. The Governor is the chief executive of a State in India.
Community participation can mobilize significant The powers and functions of the Governor of Indian
contributions of human resources to create social and State resembles that of the President of the Union
physical infrastructure. Government. Like the President, the Governor is also a
constitutional ruler, a nominal figure. He is not a real
Q4. 20 + 20 + 10 Marks functionary. Generally speaking, the Governor acts on
A. Discuss the arguments for and against the National the advice of the Council of Ministers. The Governor
Judicial Appointments Commission Act, 2014. enjoys wide powers in executive, legislative and
Arguments for NJAC: financial spheres. The Governor has the power to advise
The NJAC amended the Constitution, so the second to encourage and to warn the ministry irrespective of
judges case that created the collegium is irrelevant their party colors. The office of the Governor depends
because the Constitution is now different from what it upon the personality and ability of the person who
was back then. occupies it. If the Governor is a man of strong
The so-called “basic structure of the constitution”, personality, he can easily influence his ministry. A weak
whose primacy has been upheld by several SC and lazy Governor, on the other hand; will be influenced
judgements because it safeguards the separation of by the ministry. He will them exercise the functions
policy coherence and coordination. The criteria implicit Consequent to the 73rd Constitution Amendment Act
in these objectives for assessing the budget content political decentralisation has taken place in almost all
and its preparatory process. It suggests several the States where elections have been held. However,
measures and some pending reforms in fiscal policy progress on fiscal and functional decentralisation has
and the underlying budget processes to address the been mixed. There are States which have taken steps to
identified objectives more effectively and makes a case devolve funds, functions and functionaries to the PRIs.
for speeding up their implementation. The process of devolution is at different levels of
operationalisation across States. Surprisingly, the
C. “Most Civil Servants in India are competent States of Kerala, Madhya Pradesh and Uttar Pradesh
administrators, but they pay little attention to who have had little experience of decentralisation, have
encourage people’s participation in decision-making.” made the most fundamental changes in this regard.
Comment on the statement. Further, it is imperative that the PRIs have resources to
Community participation in urban development projects match the responsibilities placed on them. While State
has a history dating back to the early seventies when Finance Commissions have submitted their
Urban Basic Service Programme was launched by the recommendations, very few States have taken the
central government with assistance from UNICEF. The necessary steps to ensure fiscal viability of the PRIs.
projects covered only a few slums in a select number of Yet, one can be hopeful that the experience of some
cities. There was no perspective for building a network States and some PRIs within States would provide the
to cover all the slums even within the selected cities necessary impetus for greater devolution in other parts
and, consequently, the solutions pursued were local in of the country.
nature. Attempts were made to do social mobilisation
by creating community groups and involving these in E. “Information Communication Technology (ICT)
implementation of the project at the grassroots level. improves the quality of public service delivery, but fails
Community was, thus, viewed merely as an agent, to check bribery.” Comment.
providing support to state sponsored development E-governance can help reduce corruption in a variety of
activities to ensure better implementation, in the initial ways. It takes away discretion from the government
experiments of community participation. In subsequent functionary, thereby curbing opportunities for arbitrary
years it was realised that community involvement not action, which often results in corruption. For example, in
only results in effective implementation of the projects land records computerization in Karnataka (Bhoomi), a
but also leads to better designing and substantial first-in first-out (FIFO) discipline is imposed on the order
reduction in operational costs. Following this, the of processing applications for changes in records in the
community was often involved not just for project workflow system established to handle the task.
implementation and supervision of work but also in Government employees cannot help anyone jump the
designing the project. All these initiatives queue. The date and time are automatically stamped on
notwithstanding, community participation remained a service requests and they cannot be rejected arbitrarily,
state sponsored activity until the late seventies. as a reason must be recorded if an application is
rejected. Biometric log-in by operators and audit trails
D. Do you think that the functioning of Panchayati Raj make it possible to track and link any corrupt operator
Institutions (PRIs), in practice, reflects genuine making illegitimate changes in data through wrongful
devolution of powers and resources? Give reasons for acts. By making rules simple and more transparent,
your answer. e-government emboldens citizens and businesses to
question unreasonable rules and procedures and their
arbitrary applications. Through kiosks, websites, and a role to play in correcting the situation. It must set an
their mobile phones, citizens can check the status of example for others to follow. Administrative reform and
their service request as well as highlight any error. legislative revitalisation must begin at the top. The
Unlike the traditional system, reduced physical contact Centre must set an example in good governance for
with government officials protects the vulnerable states and panchayats to follow, even though the larger
classes from bribe seekers. problem of governance deficit is, in fact, at the level of
the states. The statement of eminent citizens very
Q6. 20 + 20 + 10 Marks correctly pleads for the end of the disruption of
A. “Excellent ideas but poor implementation have Parliament. Unless Parliament functions well, state
characterised the administrative reforms in India since legislatures and municipalities will not do so. Dissent is
Independence.” Critically examine the statement by one thing, disruption another. It has been reported that
giving examples from the Union and State Prime Minister is considering a reshuffle of his Council
Governments. of Ministers. He would gain public support and enhance
Reform in public administration has been pursued in his government’s governance credentials if corrupt and
India since 1947 and received particular attention since inefficient ministers were to be dropped and competent
the 1960s. The approach in the 1940s and 1950s was to and honest ones promoted. Such a drastic action may
hold inquiries into different facets of administration, initially destabilise the government and unsettle his
then in the 1960s the strategy was adopted of having an party, but it would benefit both in the end and set an
administrative reforms commission with terms of example for other parties and state governments to
reference which gave it uniquely wide powers and an follow.
opportunity to recommend an overhaul in the country's
administration C. What are the major concerns of the Second
Its recommendations were, indeed, far reaching, but the Administrative Reforms Commission on Civil Service
failure of its report to result in significant reforms being reforms? Indicate the current status of their
implemented has contributed to a change in emphasis implementation.
in the 1970s. Attention has come to be directed once The tenth report on Refurbishing of Personnel
more to administrative improvements at the microlevel, Administration – Scaling New Heights recommended
and there are a number of significant criticisms to be the setting up of National Institutes of Public
made of these currently continuing approaches to Administration to run Bachelor’s Degree courses in
improvement and reform. Thereafter in 1990’s and year public administration/governance/management. In the
2000 onwards several administrative reforms long run it is expected that these specialized centres of
committee has been formed those committees have excellence (National Institutes of Public Administration)
excellent ideas but not reformed the system because of would evolve as major sources of civil services
poor implementation and mismatch between the theory aspirants. Selected Central and other Universities
and ground reality. should also be assisted to offer such graduate level
programmes in public administration/
B. Do you agree that there has been a serious governance/public management which will produce
governance-deficit in development administration in graduates to further expand the pool of eligible
India? Give reasons for your answer and add your applicants to the civil services. The courses offered in
suggestions. these universities should include core subjects such as
The governance deficit in India is more at the bottom of the Constitution of India, Indian legal system,
the governance pyramid than at the top. But the top has
administrative law, Indian economy, Indian polity, Indian ● The officials are inadequately empowered to
history and culture apart from optional subjects. deliver, and are often chosen arbitrarily and
Graduates of the above mentioned special courses from transferred frequently, demotivating them and
the National Institutes of Public Administration and resulting in poor delivery
selected universities would be eligible for appearing in
the Civil Services Examinations. Further, graduates in Q7. 20 + 20 + 10 Marks
other disciplines would also be eligible to appear in the A. How do the Union Government policies on Smart and
Civil Services Examination provided they complete a AMRUT Cities address the problems of management of
‘Bridge Course’ in the core subjects mentioned above. urban development? Explain.
Regarding capacity building, the Second ARC suggested Under the Smart Cities Mission, each selected city
that every government servant should undergo a would get central assistance of Rs.100 crore per year
mandatory training at the induction stage and also for five years. Smart City aspirants will be selected
periodically during his/her career. Successful through a ‘City Challenge Competition’ intended to link
completion of these trainings should be a minimum financing with the ability of the cities to perform to
necessary condition for confirmation in service and achieve the mission objectives. Each state will shortlist
subsequent promotions. All civil servants should a certain number of smart city aspirants as per the
undergo mandatory training before each promotion and norms to be indicated and they will prepare smart city
each officer/official should be evaluated after each proposals for further evaluation for extending Central
training programme. Successful completion of the support.
training programmes should be made mandatory for This Mission of building 100 smart cities intends to
promotions. The objective of mid-career training should promote adoption of smart solutions for efficient use of
be to develop domain knowledge and competence the available assets, resources and infrastructure with
required for the changing job profile of the officer. To the objective of enhancing the quality of urban life and
this end, mid career learning opportunities relevant to providing a clean and sustainable environment. Special
specific domains or specializations should be made emphasis will be given to participation of citizens in
available for officers. prioritizing and planning urban interventions. It will be
Second Administrative Reforms Commission have implemented through ‘area based’ approach consisting
examined this issue and given recommendations. of retrofitting, redevelopment, pan-city initiatives and
● There is no specialization in civil services, and development of new cities.
often officers are expected to handle diverse Under smart cities initiative, focus will be on core
subjects without adequate exposure or infrastructure services like: Adequate and clean Water
expertise supply, Sanitation and Solid Waste Management,
● There is assured rise in service irrespective of Efficient Urban Mobility and Public Transportation,
competence and delivery, and there are no Affordable housing for the poor, power supply, robust IT
incentives to perform well connectivity, Governance, especially e-governance and
● There is a monopoly of IAS and a few privileged citizen participation, safety and security of citizens,
services in all senior government positions, and health and education and sustainable urban
the best and brightest in the nation have very environment.
little opportunity to serve the nation out of Smart City Action Plans will be implemented by Special
passion and commitment, unless they choose Purpose Vehicles(SPV) to be created for each city and
civil services as a life-long career state government will ensure a steady stream of
resources for SPVs.
The two missions are interlinked. AMRUT adopts a list. The CRPF guarded the India-Pakistan Border until
project approach to ensure basic infrastructure services 1965, after which the BSF was created. In 2001
relating to water supply, sewerage, septage Parliament attack too, it was the CRPF troops that killed
management, storm water drains, transport and the five terrorists who entered the premises. The
development of green spaces and parks with special primary task of the paramilitary forces should be to
provision for meeting the needs of children. complement the army, and of the central police
Implementation of this Mission will be linked to organisations to complement the police. Paramilitary
promotion of urban reforms such as e- governance, personnel have a delicate mission to perform,
constitution of professional municipal cadre, devolving considering that they are almost always outsiders
funds and functions to urban local bodies, review of rushed to the scene of a local disturbance. While a
Building bye-laws, improvement in assessment and detached outsider has a certain advantage in being
collection of municipal taxes, credit rating of urban local regarded by the local population as an impartial arbiter.
bodies, energy and water audit and citizen-centric urban
planning. C. Discuss the major highlights of the reforms
This Mission will be implemented in 500 cities and introduced from time-to-time in Central Civil Services
towns each with a population of one lakh and above, Conduct Rules and add your own comments.
some cities situated on stems of main rivers, a few No Government servant shall, in any radio broadcast,
capital cities and important cities located in hilly areas, telecast through any electronic media or in any
islands and tourist areas. document published in his own name or anonymously,
Under this Mission, States get the flexibility of designing pseudonymously or in the name of any other person or
schemes based on the needs of identified cities and in in any communication to the press or in any public
their execution and monitoring. States will only submit utterance, make any statement of fact or opinion -
State Annual Action Plans to the Centre for broad 1. Which has the effect of an adverse criticism of
concurrence based on which funds will be released. In a any current or recent policy or action of the
significant departure from JNNURM, Central Central Government or a State Government: or
Government will not appraise individual projects. 2. which is capable of embarrassing the relations
The architecture of the Smart Cities Mission and between the Central Government and the
AMRUT is guided by the twin objectives of meeting the Government of any State; or
challenges of growing urbanization in the country in a 3. which is capable of embarrassing the relations
sustainable manner as well as ensuring the benefits of between the Central Government and the
urban development to the poor through increased Government of any foreign State;
access to urban spaces and enhanced employment 4. Provided that nothing in this rule shall apply to
opportunities. any statements made or views expressed by a
Government servant in his official capacity or in
B. Discuss the significance and role of the Central the due performance of the duties assigned to
Paramilitary Forces in maintaining law and order and him
countering insurgency as well as terrorism.
The CRPF looks after the internal security of every part Q8. 20 + 20 + 10 Marks
of India. Countering naxal operations, assisting the A. “Municipal governance in India is not sufficiently
State and Union Territories in police operations to prepared to meet the challenges of frequent natural
maintain law and order and helping with the UN disasters.” Elucidate the statement and add your own
peace-keeping missions also comes under CRPF's task suggestions.
Local institutions need the appropriate under the Acts specified in the Schedule of the NIA
frameworks/enabling environment to function. Local Act.[11] A State Government may request the Central
actors often act without a mandate from central level. Government to hand over the investigation of a case to
Concrete/effective action at the local level requires a the NIA, provided the case has been registered for the
mandate for them from central level and a revenue offenses as contained in the schedule to the NIA Act.
system which also allows for resource mobilization at Central Government can also order NIA to take over
local level. The central administration/government is investigation of any scheduled offense anywhere in
the key actor in policy formulation. India. Officers of the NIA who are drawn from the Indian
Disaster Response Management requires a combination Revenue Service, Indian Police Service, state police,
of “top-down” and “bottom-up” approaches to reduce Income Tax as well as officers from the Central Armed
risk and make disaster response and rehabilitation more Police Forces, have all powers, privileges and liabilities
effective. Effective coordination systems benefit from which the police officers have in connection with
decentralized governance, once clearly defined roles of investigation of any offense.
local government are in place. Critical aspects include:
(i) devolution of responsibilities; (ii) appropriate budget C. Argue the case for and against creating Indian
allocations; (iii) institutions at different levels and in Public Enterprises and Industrial Service for boosting
different sectors that are mutually supportive (vertical the moribund public sector in India.
and horizontal coordination); (iv) clear definition of
tasks; (v) strong partnerships with civil society and the Arguments For -
private sector; (vi) integration with sectoral a. It will train special officers to handle PSUs in
development plans. crisis.
b. The experts while serving business interest
B. Discuss critically the salient features of the National keep close watch on socio - economic work
Investigation Agency (NIA) regarding its purposes and c. Those experts can be transferred across PSUs
jurisdiction. for diversity and excellence
National Investigation Agency aims to be a thoroughly d. They will provide professional leadership
professional investigative agency matching the best
international standards. It aims to set the standards of Arguments Against -
excellence in counter terrorism and other national a. This concept cannot serve the special needs of
security related investigations at the national level by particular PSUs.
developing into a highly trained, partnership oriented b. This type of recruitment is against autonomy of
workforce. It also aims at creating deterrence for PSUs
existing and potential terrorist groups/individuals. It c. It might lead to bureaucratic red tapism
aims to develop as a storehouse of all terrorist related d. All experts transferred across PSUs,so no
information. The Agency has been empowered to loyalty to particular organization e. It will again
conduct investigation and prosecution of offences bring forth generalist - specialist debate
SECTION A 5. Post structuralism has had marginal effects on
1. Answer the following questions in about 150 words the entire field of public administration.
each: 10x5=50 This perspective is still the best in explaining public
(a) What are the implications of the post-structuralist administration and the paradoxes faced when
perspective on the discrete aspects of Public expounding it clearly .
Administration, coming from its epistemological
positions? (b) "Adaptive, problem-solving, temporary systems of
A number of major conceptual shifts in social theory diverse specialists, linked together by coordinating
appear to be occurring, suggesting the possibility of a executives in an organic flux—this is the original form
paradigmatic change in the field of public that will gradually replace bureaucracy." Discuss, in the
administration. The prospects for change in social light of this statement, the 'end of bureaucracy' thesis
theory opened by these shifts are an epistemology that and its strengths and limitations.
bridges structuralist and post-structuralist perspectives, There are many dysfunctions of the bureaucratic model,
and a post-egoist ontology. including those dealing with division of labor and
Post Structuralism Perspective : specialization, uniform rules and procedures, hierarchy
1. Post structuralism perspective is a very good of authority, impersonality in interpersonal relations, and
match to the modern social experience, which lifelong career and loyalty to the organization.
is heterodox.
2. Post structuralism is based on the work of Likert's System 4 design grew out of the human
Ferdinand de Saussure who supported different relations movement and is the antithesis of the ideal
systems. bureaucracy (which Likert calls System 1). An important
3. Post structuralism perspective was reinforced component of System
by Jacobson together with Levi Strauss who 4 is the linking pin concept relating levels of
analyzed human culture by analyzing relations organization.
among them bringing out the real meaning of Bureaucracy is inappropriate to the information age
structuralism. than serfdom was to the industrial era. It advocates
4. All the arguments on post structuralism support replacing bureaucratic organization with the concept of
the system and structure of public the "intelligent organization," an organization that
administration. develops and engages the intelligence, business
judgment, and responsibility of all its members. The
successful organization of today builds freedom and administrative law cannot be fully comprehended
community within its systems. without a basic knowledge of constitutional law.
(c) "Karl Marx's interpretation of bureaucracy was Administrative law is also instrumental in enhancing the
rooted in the history of the nature of the State." development of constitutional values such as rule of law
Evaluate. and democracy. The rules, procedures and principles of
Bureaucracy is not universal estate, it is particular administrative law, by making public officials, comply
closed society within the state serving its own, not the with the limit of the power as provided in law, and
general interest. It is a social force through which the checking the validity and legality of their actions,
interests of capitalism and the bourgeois are subjects the administration to the rule of law. This in
implemented. turn sustains democracy. Only, in a government firmly
rooted in the principle of rule of law, can true democracy
Bureaucracy as the task of concealing the actual power be planted and flourished.
relationships and to function as the general interest
between exploiters and exploited. He explains that A basic issue commonly for administrative law and
bureaucracy is a part of state mechanism. He did not constitutional law is the scope of judicial review. The
like the characteristics of bureaucracy such as superior debate over scope is still continuing and is showing a
knowledge, merit principles, rule mindedness, dynamic fluctuation, greatly influenced by the ever
impartiality, etc, It functions like a private property of changing and ever expanding features of the form and
the state authority. structure of government and public administration. The
ultimate mission of the role of the courts as ‘custodians
For Karl Marx “the bureaucracy is the state formation of of liberty’, unless counter balanced against the need
the civil society. It is the state's consciousness, the for power and discretion of the executive, may
state's a will, the state’s power as corporation.” ultimately result in unwarranted encroachment, which
Therefore, the mind of bureaucracy is the formal mind may have the effect of paralyzing the administration and
of the state, and it is considered as a negative endangering the basic constitutional principle of
instrument in the process of social transformation. separation of powers. This is to mean that the
administrative law debate over the scope of judicial
(d) "The conceptual division between administrative review is simultaneously a constitutional debate.
and constitutional law is quite porous, and that along
many dimensions, administrative law can be Lastly, administrative and constitutional law, share a
considered more constitutional in character than the common ground, and supplement each other in their
constitution." How would you justify the statement? mission to bring about administrative justice. Concern
Administrative law is categorized as public law since it for the rights of the individual has been identified as a
governs the relationship between the government and fundamental concern of administrative law. It ultimately
the individual. The same can be said of constitutional tries to attain administrative justice. Sometimes, the
law. Hence, it is undeniable that these two areas of law, constitution may clearly provide right to administrative
subject to their differences, also share some common justice. Recognition of the principles of administrative
features. With the exception of the English experience, it justice is given in few bills of rights or constitutional
has never been difficult to make a clear distinction documents. Australia and South Africa may be
between administrative law and constitutional law. mentioned in this respect.
However, so many administrative lawyers agree that
(e) Is Peter Drucker justified in saying, "Management “beyond”–that is, they are also from the private
principles should not tell us what to do,. but only tell us and the third sector.
what not to do"? Comment. 2. Governance identifies the blurring of
Peter Drucker, also known as the Father of Modern boundaries and responsibilities for tackling
Management Theory, coined leadership terms and social and economic issues.
strategies that are still used today. He advocated for a 3. Governance identifies the power dependence
more flexible, collaborative workplace, and the involved in the relationships between
delegation of power across the board. institutions involved in collective actions.
4. Governance is about autonomous self
According to Drucker, "management is doing things governing networks of actors.
right; leadership is doing the right things." Unlike many 5. Governance recognizes the capacity to get
early management theorists, Drucker thought that things done which does not rest within the
subordinates should have the opportunity to take risks, power of government to command or use its
learn and grow in the workplace. authority.
Drucker's management theory embodies many modern Governmentality can be understood as:
concepts, including: ● the "art of government"
1. Drucker was focused on decentralizing ● the "how" of governing (that is, the calculated
management in the workplace. means of directing how we behave and act)
2. Drucker placed high value on workers who ● "governmental rationality"
solved problems and thought creatively. He ● "a 'guideline' for the analysis that Michel
wanted to cultivate a culture of employees who Foucault offers by way of historical
could provide insight and ideas reconstructions embracing a period starting
3. Drucker conceptualized "Management by from Ancient Greece right through to modernity
Objectives" (MBO), a process that encourages and neoliberalism"
employees of all levels to work together. Each ● "the techniques and strategies by which a
worker has an equal say, sharing their own society is rendered governable"
insights and opinions to reach common ground. ● The 'reasoned way of governing best and, at the
4. In his MBO practice, Drucker used S.M.A.R.T., a same time, reflection on the best possible way
process coined by George T. Doran, that of governing'
increases efficiency in work-related tasks.
(b) "Taylor's ideas need modification in the context of
2. (a) "Governance theory and the notion of post-industrial economics in contemporary era."
governmentality have many points of convergence, but Justify with reasons. 15
they run on parallel lines." Comment. 20 Taylor developed his theory of scientific management to
Stoker (1998) discussed the theory of governance under meet the demands of the 20th century. Such has
five broad propositions, which are complementary rather changed since then and following are the modifications
than contradictory. needed:
1. Application of principles to more creative job is
These five propositions are: difficult. The techniques eg time and work study
1. Governance refers to a set of institutions and need to be replaced with norms and standards.
actors that occupy government bodies and
2. The assumption that workers are inherently affecting power in contingency control by an
hate work need reconsideration, as proved by organizational subunit.
theory Y it is job and organisational related
factors that determine job-employee equations. Cognitive Resource Theory contravenes Strategic
3. The piece rate wage system needs to take into Contingencies Theory. The issue is what effect stress
consideration other motivational factors such has on a leader's ability to lead using intelligence and
as self-actualisation. rationality. There is lacking set of parameters governing
4. Rejection of rule of thumbs need the introduction of variables in power used by
reconsideration as intuitions, irrational factors organizational units.
play considerable part especially in
unprogrammed decisions. With Strategic Contingencies Theory, a leader depends
5. Universality of principles needs to be replaced on his problem solving skills and a projective
with diverse principles suiting different personality that is center stage. The leader his so
situations and what will not work rather than because she or he is in demand and others cannot solve
what will work. the problems the leader faces. This gives the leader
6. There is need to realize there may be more than bargaining power. In that the leader cannot be replaced
more than one or no one best way of doing easily, he or she is not easily displaced, especially by
work depending on factors such as popular will. Social processes depend upon the leader.
organisational purpose, environmental factor. Strike out the leader and the system is in danger of
7. These factors when taken into account will lead collapsing. The ability of one to maintain leadership in a
to more comprehensive theory well suited to system through problem solving relies on the
the needs of the 21st century. interconnectedness of system units (departments,
divisions, etc.), social interaction, communications
(c). How does the Strategic Contingencies Theory of speed and system infrastructure integrity.
organizational design deal with problems arising from
sub-unit centrality and non-substitutability? 15 3. (a) According to McGregor, "True professional help
Strategic Contingencies Theory focuses on tasks that is not in playing God with the client, but in placing
need to be done in the form of problems to be solved, professional knowledge and skill at the client's
thus de-emphasizing personality. If a person does not disposal". In the light of the above, justify how theory Y
have charisma but is able to solve problems, then s/he is indicative and not prescriptive. 20
can be an effective leader. That problem solving McGregor considers traditional or classical theories as
assumes a central role in a leader's ability conforms to theory X and presented his theory Y as a response to
a common sense view of the world; there is little need to theory X. He classified theories on the basis of variables
provide elaborate explanation as to why it can work. The like direction and control.
theory helps to objectify leadership techniques, as Theory X assumes that employees are naturally
opposed to relying on personalities. In situations where unmotivated and dislike working, and this encourages
persons are rational agents, such as in scientific and an authoritarian style of management. According to this
formal academic settings, the Strategic Contingencies view, management must actively intervene to get things
Theory would have more force and effect. That is, it done.
identifies what is common to the group -- the orientation This style of management assumes that workers:
towards problem solving -- and addresses it directly. ● Dislike working.
The theory is simple and uses only the variables ● Avoid responsibility and need to be directed.
● Have to be controlled, forced, and threatened to How does Gouldner establish the need for
deliver what's needed. understanding the interdigitations between the ‘formal’
● Need to be supervised at every step, with and ‘informal’ organisation? 15
controls put in place. Formal organization refers to the systematic and
● Need to be enticed to produce results; organized structure in a workplace. It is carefully
otherwise they have no ambition or incentive to administered by the organization and it is always in total
work. control of the management. Informal organizations, as
the name suggests, are organizational structures that
X-Type organizations tend to be top heavy, with are created informally. Observe any working group or
managers and supervisors required at every step to organization and you will notice that how much people
control workers. There is little delegation of authority interact with each other. Moreover, this interaction on
and control remains firmly centralized. McGregor the workplace is not always about the job. People do
recognized that X-Type workers are in fact usually the interact informally with each other and get connected
minority, and yet in mass organizations, such as large personally. This is what leads to informal structures
scale production environment, X Theory management within an organization.
may be required and can be unavoidable.
On the other hand theory Y assumes a participative In short, informal organizations are created by the
style of management that is de- centralized. It assumes employees to satisfy their psychological and social
that employees are happy to work, are self-motivated affiliation needs at the workplace.
and creative, and enjoy working with greater ● Unlike formal organizations that are created by
responsibility. the management, informal organizations are
It assumes that workers: created by the employees themselves.
● Take responsibility and are motivated to fulfill ● There is no definite structure or role assignment
the goals they are given. in an informal organizational structure.
● Seek and accept responsibility and do not need ● Communication is the most important aspect of
much direction. an informal structure.This communication
● Consider work as a natural part of life and solve process – which is also called the Grapevine –
work problems imaginatively. is in no particular order, method or route.
This more participative management style tends to be ● Unlike formal organizations, informal
more widely applicable. In Y-Type organizations, people organizations are heavily dependent on the
at lower levels of the organization are involved in individuals’ personalities, emotions and values.
decision making and have more responsibility. ● Informal structures are created spontaneously.
Similarly, they are not micro- managed as the
With the changing scenario where consumers/clients formal structures.
are educated and well aware of their rights and when ● The informal organizations are created for the
their choices are changing with time, theory Y is more satisfaction of the workers, and therefore, they
successful model for professional-client relationship. do not directly contribute to the organization’s
Now people are empowered and can take decisions that goals.The informal structures cannot be
when they should visit doctor. officially listed.
● The focus of an informal organization is built
(b) "The notion of informal organisation is a residual or around the people – not their jobs. It is,
cafeteria concept of diverse and sprawling contents”.
therefore, influenced by the employees of an Empowerment can be measured in terms of :
organization, not the management. willingness, ability and instrumentality. RTI act has not
Residual concept because the formal organisation only empowered but also redefined the concept of
design comes first, where roles and authority accountability. Usually accountability is defined in terms
relationships are set through the organisational chart. of answerability and enforcement. Access to
Diverse and sprawling contents because study of information is indeed one of the most powerful tools of
informal organisations would involve study of human social accountability which has been achieved after
behaviour, psychology, sociological factors etc. much deliberation.
According to Gouldener if taken in isolation informal India’s RTI Act as “the most fundamental law this
organisation will not make any sense. Such type of country has seen as it can be used from the local
informal organisation would be short lived. An effective panchayat(a unit of local government) to parliament,
informal organisation will integrate the ethos of from a nondescript village to posh Delhi, and from ration
organisation while relaxing the normal authority and shops to the 2G scam.”
power associated with it. This integrated approach will
help both employee and organisation in achieving their 4. (a) "New Public Management and post-New Public
goals. This way the interdigitations of both should be Management reforms initiatives have affected the
seen. balance between managerial, political, administrative,
legal, professional and social accountability." Analyze.
(c) "The Right to Information is not all about citizens' 20
empowerment, it essentially redefines the concept of Although NPM had a dramatic impact in the 1990s on
accountability." Discuss.15 managing and policymaking, many scholars believe that
The right to information is an effective tool to control NPM has hit its prime. Scholars like Frank Dunleavy
corruption, make governments accountable and curb believe New Public Management is phasing out because
arbitrary use of power. Over the last ten years, RTI has of disconnect with “customers” and their institutions.
been used extensively by ordinary Indian citizens to Scholars cite the Digital Era and the new importance of
demand a vast range of information from their technology that kills the necessity of NPM. In countries
government. One should not forget that the RTI Act aims that are less industrialized the NPM concept is still
to create an ‘informed citizenry’ and to curb corruption growing and spreading. This trend has much to do with
and to hold governments and their instrumentalities a country's ability or inability to get their public sector in
accountable to the governed. tune with the Digital Era. New Public Management was
In a country when we want to promote social created in the Public Sector to create change based on:
accountability, efforts should be made to come up with disaggregation, competition, and incentives. Using
more innovative tools to ensure it rather than devising incentives to produce the maximum services from an
ingenious techniques to ensure a Right and then limit it organization is largely stalled in many countries and
by doing away with the core ideology behind it. being reversed because of increased complexity.
To strengthen the “demand side” of good governance Post-NPM, many countries explored digital era
which entails strengthening the voice and capacity of governance (DEG). Dunleavy believes this new way of
citizens to directly demand greater accountability and governance should be heavily centered upon
responsiveness from public officials and service information and technology. Technology will help
providers, and should be made more responsive, re-integrate with digitalization changes. Digital Era
responsible and accountable. Governance provides a unique opportunity for self-
sustainability however, there are various factors that will
determine whether or not DEG can be implemented 2. Increasing complexity of public affairs, the
successfully. When countries have proper technology, independent regulatory bodies were
NPM simply can't compete very well with DEG. DEG constituted.
does an excellent job of making services more accurate, They first came up in the USA and were adopted from
prompt and remove most barriers and conflicts. DEG there by emulation. Result is that there is scope for
also can improve the service quality and provide local reforms to make them suit the ground realities of India.
access to outsourcers. Further, the evolution has taken place as an
interdependent progress. That is various regulatory
The main thrust of the New Public Administration bodies cooperated with each other and other arms of
movement was to bring academic public administration State during their evolution and continue to do so for
into line with a radical egalitarian agenda that was better governance. All said and done, regulatory bodies
influential in US university campuses. By contrast, the are here to stay. They need to be nourished and
emphasis of the New Public Management movement a strengthened to ensure rule of law based good
decade or so later was firmly managerial in the sense governance.
that it stressed the difference that management could
and should make the quality and efficiency of public
services. It focuses on public service production (c) "Voluntary organizations have become tools of
functions and operational issues contrasted with the sensitization of governmental agencies." Comment. 15
focus on public accountability, ‘model employer’ public The Government-VOs relationships are most
service values, controversial and complex but are the most crucial
‘due process,’ and what happens inside public issues in voluntary actions. They are dynamic and
organizations in conventional public administration. ever-changing in nature. Government coopts, control
That meant New Public Management doctrines tended and curb voluntary action depending upon its changing
to be opposed to egalitarian ideas of managing without needs. There are two types of control seen over VOs.
managers, juridical doctrines of rigidly rule-bound Firstly there is an internal or self control which the VOs
administration and doctrines of self-government by are subjected to and can be regulated through solidarity
public-service professionals like teachers and doctors. among VOs that are influenced by external control
where the state plays a crucial role. The predominant
(b) "Delegation to independent agencies has taken method of this control is the control by laws or
place in an interdependent process driven by legislation.
emulation." Discuss in the context of independent
regulatory agencies in the modern regulatory State. 15 The adoption of a legal entity, and government
Independent regulatory agencies refers to those regulatory arrangements require each VO to have a
institutions majorly created by the legislature to direct constitution, by-laws, memorandum of association or a
the activity of a particular sector. For e.g. SEBI for similar document which establishes a framework for the
financial securities and stock exchange. governance of the organisation. The self regulation
control of the organisation vest on the hands of a Board
Prior to their establishment the job of regulation was of Management, through which a VO is accountable to
largely done by the legislature or executive ministries. the public, members,and/or beneficiaries of the
But with the emergence of organization and the funders or donors. Accountability
1. Neo right philosophies advocating low scope and transparency of VOs are the two important
for governmental regulations,
foundations for the sound governance of an processes differentiation and integration. Riggs used
organisation. structural functional differentiation to divide societies
into three types. Structural Functional differentiation
The laws governing the registration of Societies and the attributes specific functions to structures of an
FCRA give the central government the power of scrutiny organisation and the nature of differentiation to stages
and the prevention of financial irregularities by the VOs. of development. For instance,
The freedom of action of the VOs is greatly restricted by
the state interventions. VOs face great difficulties Riggs borrowed the idea of refraction in physical
because of the restrictive and cumbersome laws and sciences to explain that in a highly developed society,
regulations under which they have to operate. Many each structure corresponds to each function leading to
problems arise out of the various government a ‘refracted society’ as in the United States. These
laws relevant to VOs such as Income Tax Act, labour societies have a higher economic productivity and
laws, Registration Acts, FCRA, etc. VO-Government higher degree of division of labour. The other extreme is
relationships broadly arise over the issues of resource the ‘fused societies’ like tribal communities in which
mobilisation, service delivery and in the process of one authority performs multiple functions and structural
implementation of programmes and in broader differentiation is minimum. The in-between societies
spectrum, social and economic changes. These were described by Riggs as ‘prismatic societies’ like
relationships depend much on the India. Here the old institutional values existed with the
information,communication and dialogue between the new and there was a clash of ideas, the societies were
two. developing and in transition.
But in the era of globalization, nations boundaries are
diminishing and the world is slowly becoming a global
village. With these changes the boundaries of different
subsystems are also diminishing in both developed and
developing world.
(b) "The term Development Administration can be used
only in a broad sense to mark the variety of approaches
and points of view." Discuss.
The term 'development administration' can be used in a
broad sense, to embrace the variety of approaches and
points of view that mark the study of public
administration in developing countries. Some writers
have sought to assign a more restricted and precise
meaning to the term, but their attempts have been
SECTION—B arbitrary and conflicting. Some speak of 'development
5. Answer the following questions in about 150 words administration' in order to emphasize the inadequacy of
each: the established discipline of 'public administration',
(a) Critically examine the Riggsian concept of others treat the field as merely an application of the
differentiation in the context of post- globalization era. traditional study; still others use the term with neither
Riggs defined development as a process of increasing connotation. Some use the term in the sense of 'the
autonomy of social system made possible by rising administration of development'; others are thinking of
level of diffraction. Diffraction consists of two the development of administration; still others see these
concepts as two sides of the same coin. Another relationships between public servants and the wider
important school of thought which studies the role and society, such as dealing with the elected bodies or
problems of administration in developing countries calls outside groups such as a not for profit organizations,
its field 'comparative public administration'. The battle ngos or private sector corporate entities. e- Governance
over meanings and labels is symptomatic of substantive encompasses a series of necessary steps for
differences in approach and outlook - which, we shall government agencies to develop and administer to
see, have important implications for planning. ensure successful implementation of e-government
services to the public at large. The differences between
To some degree, all of the different approaches share a these two important constructs are explored further in
comparative point of view. Almost every writer who this essay.
discusses a developing bureaucracy is at least implicitly
holding up against it the Weberian image of the efficient, e-Government is an institutional approach to
rational, functionally specialized, impersonal, jurisdictional political operations. e- Governance is a
non-political bureaucratic hierarchy, an image procedural approach to co-operative administrative
associated chiefly with the western industrialized relations, i.e. the encompassing of basic and standard
nations. These developed bureaucracies probably look procedures within the confines of public administration.
good only when being compared with their counterparts It is the latter that acts as the lynchpin that will ensure
or imitators in developing countries. But the latter, success of the delivery of e-services.
although they certainly did not invent corruption,
irrationality, and incompetence, are more afflicted with E-government should enable anyone visiting a city
those ills, and much less able to afford them. Whatever website to communicate and interact with city
their views of the appropriateness of the Weberian employees via the Internet with graphical user
standard, students of development administration interfaces (GUI), instant- messaging (IM), learn about
inevitably focus on the falling-short-of-the-ideal as their government issues through audio/video presentations,
special problem. and in any way more sophisticated than a simple email
letter to the address provided at the site”
(c) "The bottom line for governance is outcomes rather
than the outputs of government." Analyze in the The essence of e-governance is "The enhanced value for
context of e-government and e-governance. stakeholders through transformation" and “the use of
eGovernment and egovernance can be defined as two technology to enhance the access to and delivery of
very distinct terms. e-Governance is a broader topic that government services to benefit citizens, business
deals with the whole spectrum of the relationships and partners and employees”. The focus should be on:
networks within government regarding the usage and
application of ICTs. e-Government is actually a narrower ● The use of information and communication
discipline dealing with the development of online technologies, and particularly the Internet, as a
services to the citizen, more the e on any particular tool to achieve better government.
government service – such as e-tax, e-transportation or ● The use of information and communication
e-health. technologies in all facets of the operations of a
government organization.
e-Governance is a wider concept that defines and ● The continuous optimization of service delivery,
assesses the impacts technologies are having on the constituency participation, and governance by
practice and administration of governments and the transforming internal and external relationships
through technology, the Internet and new Any proposal that is in contradiction to people's way of
media. thought will be met with opposition. FDI reforms before
Whilst e-government has traditionally been understood market boom was unimaginable in India. Similarly
as being centered around the operations of government, moves like expenditure on food security has to be
e-governance is understood to extend the scope by balanced with moderate taxes otherwise economy is
including citizen engagement and participation in destabilised. No budgetary excesses are tolerated by
governance. As such, following in line with the OECD people any longer.
definition of e-government, e-governance can be defined As developing countries get more intertwined with
as the use of ICTs as a tool to achieve better globe, economics will have greater say in policy making.
governance. In market economics the stress is on good economics
and thus the trend of curbing inefficient practices such
(d) "Policies determine politics as governments as subsidy leakages. Media and digital technology also
constrain." Attempt a critique of this statement. have a role in politicizing people, hence indirectly
Public policy is determined by a range of political affecting budgetary process.
institutions, which give policy legitimacy to policy
measures. In general, the government applies policy to Budget is increasingly becoming a tool of bringing
all citizens and monopolizes the use of force in applying about social changes in addition to economic changes.
or implementing policy . Swachh Bharat Mission and Skill development programs
prepare Indians to meet the challenges of development
The legislature, executive and judicial branches of and urbanization foreseeable in the future, all through
government are examples of institutions that give policy budgetary process. Any big change in nations has been
legitimacy. Many countries also have independent, carried out by budget but politics has been a necessary
quasi- independent or arm's length bodies which, while condition for its success be it The Great Leap of China
funded by government, are independent from elected or our move from socialism to marketism.
officials and political leaders. These organizations may
include government commissions, tribunals, regulatory 6. (a) "The fact that we call something performance
agencies and electoral commissions. auditing means that we imply salient features which
can distinguish it from other forms of inquiry." Discuss
(e) "Instead of reforms to budgetary process, with reference to the main measures or indicators of
Wildaysky proposes to redefine the role of political performance measurement. 20
institutions and rules by which politics leads to Focusing on the word "performance" as a measure of an
agreement on budget." Explain. 'element' of an activity. An activity can have four
Budgetary process is the carrier of government policies elements as: input, output, control and mechanism. At a
for the aspirations of people. A good budget is one minimum it is required to have two elements: input and
which can meet people's demand and cause no conflict. output. Something goes into the activity as an "input";
For such a successful people should be aligned with the the "activity" transforms it by making a change to its
intentions of politics. In parliamentary systems like "state"; and it produces an "output". An activity can also
India and England, cabinet is the messenger of people's have enabling "mechanisms" that are typically broken
will, legislature verifies those actions. Executive system into "human" and "system". It can also be constrained in
of USA had to eschew Budget Policy Committee for some fashion by a "control". And lastly, its actions can
precisely this purpose. have a temporal construct of "time".
● Input indicates the inputs required of an activity neoclassical economics or by policy advisers in the
to produce an output. West, it has been employed in Marxisteconomic
● Output captures the outcome or results of an analysis of coordinated economies that rely on a central
activity or group of activities. planner.
● Activity indicates the transformation produced
by an activity (some form of work). I-O models estimate three types of impact: direct,
● Mechanism is something that enables an indirect and induced. These terms are another way of
activity to work - a performer - human or referring to initial, secondary and tertiary impacts that
system. ripple throughout the economy when a change is made
● Control is an object that controls the activity's to a given input level. By using I-O models, economists
production through compliance. can estimate the change in output across industries due
● Time indicates a temporal element of an to a change in inputs in one or more specific industries.
activity. The direct impact of an economic shock is an initial
change in expenditures. For example, building a bridge
(b) "The Output Studies Approach to public policy would require spending on cement, steel, construction
analysis overstressed the rational techniques and equipment, labor and other inputs. The indirect, or
allocative dimension of public policy." Analyse the secondary, impact would be due to the suppliers of the
statement. 15 inputs hiring workers to meet demand. The induced, or
Input-output analysis ("I-O") is a form of tertiary, impact would result from the workers of
macroeconomic analysis based on the suppliers purchasing more goods and services. This
interdependencies between economic sectors or analysis can also be run in reverse, seeing what effects
industries. This method is commonly used for on inputs were likely the cause of observed changes in
estimating the impacts of positive or negative economic outputs.
shocks and analyzing the ripple effects throughout an
economy. This type of economic analysis was originally (c) "The field of MIS is not necessarily an extension of
developed by Wassily Leontief (1905–1999), who later computer science, but of management and
won the Nobel Memorial Prize in Economic Sciences for organization theory." Elucidate. 15
his work in this area. Management Information Systems (MIS) is the study of
people, technology, and organizations.
The foundation of I-O analysis involves input-output
tables. Such tables include a series of rows and If you enjoy technology like iPhones, iPods, and
columns of data that quantify the supply chain for all Facebook, you have what it takes to major in
sectors of an economy. Industries are listed in the information systems. All you need is an interest in
headers of each row and each column. The data in each technology and the desire to use technology to improve
column corresponds to the level of inputs used in that people's lives.Many people think that MIS is all
industry's production function. For example, the column programming. However, programming is just a small
for auto manufacturing shows the resources required part of our curriculum and there are many, many jobs in
for building automobiles (i.e., so much steel, aluminum, MIS where you do not program.
plastic, electronics, and so on). I-O models typically
include separate tables showing the amount of labor Everyone who works in business, from someone who
required per dollar unit of investment or production. pays the bills to the person who hires and fires, uses
While input-output analysis is not commonly utilized by information systems. For example, a supermarket could
use a computer database to keep track of which to keep truly up- to-date with all claimed competencies
products sell best. And a music store could use a will lead to the eventual undoing of primary care.”
database to sell CDs over the Internet. Information isn’t
worth much if it doesn’t serve a purpose. MIS students The general guiding principles for the relationship
learn how businesses use information to improve the between generalists and specialists presides the
company’s operations. Students also learn how to principle that the patient's welfare and best interest
manage various information systems so that they best must be the main concern of all physicians. This is the
serve the needs of managers, staff and customers. MIS dominant and orienting principle that grounds all other
students learn how to create systems for finding and secondary and derivative principles in the primary
storing data and they learn about computer databases, ethical obligation of physicians: to do good for their
networks, computer security, and lots more. patients.
However MIS is the ONLY major that focuses on both The second guiding principle for the relationship
business processes and information technology. If you between generalist and specialist physicians demands
are interested in business and technology, like theory that they treat each other with mutual integrity and
but not too much, like technology enough to want to respect. These attributes are necessary to build the
keep up with what's hot but don't want to be writing trust and communication required for good patient care.
programs or putting together chips all your life, then MIS Whatever the fluctuations in money, power, and prestige
is for you. We believe that the most upwardly mobile between generalists and specialists, common and even
career path for those who like to work with business uncommon courtesy should be the norm. Without this
and technology is definitely in MIS. basic building block in the foundation of their
relationship, the ability of physician teams to work
7. (a) "The technical and multidisciplinary nature of together to care for patients would be crippled.
e-government has created an interdependent
relationship within government between policymakers, The third general principle confirms the societal
programme administrators and technical specialists." obligation of all physicians to use health resources
Analyze in the context of generalist- specialist appropriately and prudently; and thus, physicians must
relationship. 20 avoid unnecessary consultations. Sending a patient to
Generalists and specialists have always faced conflicts see a specialist in order to curry favor—even if done to
in competing for patient loyalties, professional prestige, improve professional relations—is rarely in the patient's
and compensation. But these tensions have been best interest, and certainly abrogates the physician's
pushed to the brink of professional warfare by the duty to use societal resources wisely. Equally,
scope and speed of changes mandated by managed consultations solicited or generated by the specialist
care. Generalists, basking in the glow of managed care's primarily to obtain a source of teaching cases or income
emphasis on primary care, have openly applauded their is highly unethical.
new-found respect: “The opportunity to take center
stage in patient management is welcomed by (b) "Self-Help Groups have not only empowered
generalists.” Specialists, meanwhile, acutely aware that women, but have also brought about attitudinal change
demand for their services is declining under managed among all stakeholders towards women development."
care, defend their clinical role with vigor: “The silent Discuss. 15
accumulation of extended responsibility and the failure Promotion of Self-Help Group (SHGs) mainly for women
has been a common feature in India towards the aim of
poverty alleviation under the micro-finance gives civil service the discretion which creates
concept.Access to credit has not only strengthened the a conducive ground for corruption.
position of women economically, but it has also created ● The rise of reserved candidates in civil services
a ripple effect which alters power dynamics to allow due to the need for social status could stop the
them agency to a large extent. Besides, SHGs have bureaucracy from change to enjoy the social
helped women to participate in the community affairs status they were deprived of.
and in various instances, they have helped tackle the ● Change in the perception of social status is the
issues concerning public infrastructure, access to social need of the hour for bureaucracy to change.
entitlements, health and nutrition, and basic facilities ● Mahatma Gandhi said “The change should
such as safe drinking water, electricity and so on. Most come from within”. Bureaucracy suitability to
importantly, the process of mobilization and change can this happen by addressing the
collectivization has been a journey of reflexive attitude towards civil services which brings the
empowerment and carving a space for the women self. change from within.
Though there still stand challenges of enormous However, as per Riggs concept of change, addressing
magnitude with regards to the participation of women in the social status leads to a change from within which
the political affairs of the country, but the SHGs for long results in behavioural change. This internal change
have contributed towards developing women leaders at should be addressed along with exogenous change
the grassroots level. The space infused confidence in which involves bringing about right institutional
several women and led them to participate in the local changes. This ensures an epigenetic change in
governance process. These women have the potential to bureaucracy.
shape up as strong contenders and actively get engaged
in the local political field. Thus to conclude, as said by Elton Mayo “Status is a
perception”. The perception towards the social status
(c) "Many Asian and African countries have inherited needs to be addressed along with the right institutional
the colonial idea of civil service as a privileged elite. changes which creates the ground for bureaucracy to
Hence, the social status of the civil service is an change.
important aspect of the bureaucracy's unsuitability for
change." Comment. 15 8. (a) Identify the main elements of Program
As Mohit Bhattacharya says “Administrative reform Budgeting, Output Budgeting and 'New' Performance
often fails because of bureaucratic opposition”. This is Budgeting. What do they have in common with PPBS?
because of the need to safeguard the social status 20
enjoyed by the civil servants. Budget is a quantitative expression of a plan and an
important tool for implementing it. To achieve its goal
Social status is a crucial aspect to the addressed:- method of budgeting keeps changing from time to time.
● In developing countries with its prismatic Different methods of budgeting are usually studied
character as said by Riggs, civil services enjoy keeping United States as reference.
great social status due to its colonial mindset.
This social status is not attached with duties In United States introduction of line item budget in 1921
performed. This could lead to use of authority was a revolutionary step. After that came
without responsibility. Program/Performance budgeting (1940-65). It was not
● Social status of civil services is due to the able to fulfil the desires of all stakeholders and resulted
demand and dependency of the people. This in the introduction of PPBS (1965-72). PPBS was such
an idealistic procedure that it was bound to fail. Then be done. And other budgeting processes are somehow
for some time came BBO and ZBB. In 1990’s many new adaptation of PPBS according to the needs of the
changes took place in budgeting which are considered situation.
as the revival of Performance budgeting of New
Performance Budgeting. (b) According to Y. Dror, "The Science of Muddling
through is essentially a reinforcement of pro-inertia
PPBS:- and anti-innovation ideas in policy-making". Comment.
1. Identification of goals and objectives of 15
different government activities. Lindblom published his famous article “The science of
2. Analyse the output of a given program. muddling through” in 1959. In the article he gave his
3. Calculation of total expenditure for long term. incremental policy making model. According to him
4. Analysis of alternatives and their comparison. rational policy making need knowledge of all
5. Periodic review and improvement. alternatives and there consequences which requires
6. It has a focus on input, output, alternatives and huge man-power, intelligence, time and money.
effects. So he proposed his incremental model in which step by
step improvement is done. As incremental approach
Program Budgeting:- only requires comparison of limited policies which have
1. Budget is represented in the form of programs small differences so it decreases lot of alternatives. He
and their expenditure. also ignored value attached to different alternatives
2. It gives information about importance and which also helped in reducing alternatives.
expenditure in different sectors. Y. Dror discarded this incremental approach and
3. Its main focus is only on Input and Output, proposed his normative optimal model. According to
whereas PPBS also focuses on alternatives and him for policy making all alternatives, possible
effects. irregularities and values attached should be considered.
According to him the science of muddling through is pro
Output Budgeting:- inertia and anti innovation. As
1. Grouping together of all cost for achieving a 1. Incremental approach is good only for
particular objective. Eg skill development successful policies.
before introduction of MSDE has 70 schemes 2. Failed policies cannot be improved step by step,
under 20 ministries. they need new rethinking.
2. It has a focus on input, output, and alternatives 3. It does not promote innovativeness as only
but not on effects. small changes are allowed.
4. Incrementalist fails to see the complete picture.
New performance budgeting:- 5. They lack vision.
1. It is much similar to output budgeting but has 6. They do negotiations for nothing as only small
better elements for accountability. changes are obtained after so many efforts.
2. It was introduced under the paradigm of NPM 7. Many times the solution is in front of them but
and had more focus on quality. they do not want to see it.
3. It also used instruments like privatization, Lindblom improved his model later and published it as
contracting etc. “Still muddling through”. Every model lacks some or the
So PPBS is a comprehensive budgeting procedure but it other things like rational model require high cost and
required high manpower, energy, cost, and technology to intelligence, and many times it is not even practical. So
Lindblom model is pro-inertia and and-innovative but is policy. For example – Indian constitution which is
linear, practical and cost effective. evolving in the form of amendments, made by
legislature based on the science of muddling through to
(c) "British philosophy of administration is based on a reinforce the pro-inertia. Dror criticised the lindblom's
unification of science of administration with ethics." incremental idea as partial changes as a solution to a
Analyze. 15 problem is not possible as the inertia of previous
Y Dror view the policy science as a response to face the problem or the bigger problem will still persists and eat
challenge of shaping the future through proven up these small and insignificant changes. Thus science
knowledge, structural rationality and organised activity, of muddling through undermine the need of innovation,
and gave the theory of Optimal Model Decision making. which is essential for alternative solution to existing
problem rather than restraining to modification of
Lindblom gave the incremental approach to bring the previous approach.
changes in step wise manner as there is no way to get
the absolute correct decision or policy in one go. There Thus to overcome this limitation of incremental
are restrictions in terms of time, cost, intelligence and approach, Dror suggests a quantitative approach
politics etc., thus there exist a chains of decision (or through a feedback mechanism with an equal emphasis
policy) making and same chain continues in future. on value and irrationality along with rationality. Thus
Therefore incremental approach is modification or optimizing the decision based on the feedback, whether
reforms in existing policy rather than an alternative to adopt an alternative approach or modified approach.
SECTION A democracy by liberal interpretation of fundamental
Q1. Attempt the following in about 150 words each: rights, judicial activism.
10x5=50
(a) "Ethics in public services has been the central Constitutionalism implies a division of power,
concern of Kautilya's Arthashastra." Critically examine acceptance of plurality of interest in society, minimum
the statement. 10 constraints on individual rights etc. Bureaucracy is an
Kautilya, the architect of Maurya Empire in his treatise instrument by which a democratic government exercises
on public administration – Arthashastra had a grand its power. But there are many chances that bureaucracy
vision of building an empire encompassing the whole of can become an institution in itself. So to control
Indian sub-continent, prosperous, secure against foreign arbitrary power of bureaucracy, we have
threats, internally stable, and based on judicial fairness. 1. Rule of law: - Bureaucracy works according to
Kautilya’s Arthashastra is essentially a treatise on how laws. There are various laws like CrPC, CPC,
to make this vision a reality. His genius lay in Companies act, etc. These laws are defined to
conceptualizing the relationship and feedback minimize arbitrary power of bureaucracy.
mechanism among the various elements of the polity, 2. Constitutional values: - Bureaucracy has to
anticipating almost all possible hurdles and suggesting uphold the constitutional values like equality,
appropriate measures for their removal. He has noted secularism, democracy, justice, liberty etc.
that people would be ethical and hardworking only if the These values can never be violated by
king and his administration were also ethical and bureaucracy.
efficient. He set high ethical standards for the king and 3. Political accountability: - In a democracy the
offered various arguments based on moral duty and elected representative is the real master and he
enlightened self interest to uphold them. is accountable to the people. Bureaucracy is
accountable to its political master and had to
(b) Discuss the value premises of Constitutionalism in work under his guidance.
India which the bureaucracy cannot violate. 10 Indian democracy has matured enough in the last six
Indian constitutionalism ensures separation of power decades. Now it has well grievance redressal
and democracy as tenets of republicanism in modern mechanism, pro-active media and active civil society.
India. Indian courts especially Supreme Court (SC) has Administrative setup like citizen’s charter and RTI has
ensured that India democracy develops into thriving also helped in bringing constitutionalism.
(c) The functional role of the Prime Minister's Office .(d) Despite the adoption of decentralized planning,
(PMO) depends on the Prime Minister's policy participatory initiatives remain marginalized and
orientation, personality and style of administration. divisive in many regions. Discuss.20
Comment on the statement with suitable examples. 10 There is a growing interest in decentralized planning
and implementation among various countries.
The status of the PMO since independence has Essentially, the objectives of decentralization cannot be
depended on the individual style of functioning of the overstressed. These include increasing popular
Prime Minister. Once a Prime Minister is in power, he participation in planning and development, making
has to decide whether to centralise authority or to let plans and programmes more relevant to the local
other powerful leaders in the Cabinet have their way. institutions; increasing the speed and flexibility
The Constitution and the political system is silent with of decision-making, generating additional resources,
regard to it. and bringing efficiency in the use of resources.
The Prime Minister’s Office has been anarchic when In India, transfer of planning and administrative
H.D. Deve Gowda became Prime functions from Centre to States and from the States to
Minister whereas centralised during Indira Gandhi’s era. sub-State levels is well pronounced and over the years,
several developmental and functional areas have been
During Nehru era, Prime Minister’s Secretariat was decentralized through institutionalization. The process
under Cabinet Secretariat. However, with the exception continues and the thrust is on further devolution to and
of the Nehru era and the Janata regime of 1977-79, the strengthening of the grass-root level institutions.
Office has witnessed a steep rise in terms of power and
prestige especially with the appointment of various high For decentralization to be effective, vigorous linkages
profile influential personalities like L.K. Jha (Secretary among these organizations are absolutely essential.
to Shastri), P.N. Haksar (Secretary to Indira Gandhi) etc. Among the third sector institutions, the cooperatives
During these periods, PMO was given a tremendous emerge as the most suitable agencies being more
boost. Principal Secretary was closely associated with popular, closely-linked to the rural population, as well as
all governmental affairs. being people-centered and user-controlled, when
compared to NGOs and voluntary groups. Besides,
While most Prime Ministers have centralised their power cooperatives are legal entities and their functioning is
and authority, Manmohan Singh and P.V. Narasimha Rao based on voluntary membership and equal voting rights.
are classic examples of Prime Ministers who never took Given the potential of cooperatives in promoting rural
it upon themselves to centralise authority in their socio-economic development, their linkage with units of
offices. local self- government would act as a new dimension
and acquire a sense of relevance and essentiality.
The present Prime Minister took oath as Prime Minister
in May 2014. PMO consolidated portfolios of various There are no easy or off-the-shelf remedies for
Ministries to ensure better coordination among decentralization and securing effective participation of
Ministries. PMO also gave extra responsibility to people. Understanding, learning from experience and
Ministers of State with independent charge. This has trial and error have been an integral part of India's
resulted in a strong, powerful and centralised PMO. efforts in this direction. The success of grass-root level
democracy would depend largely on the strength and
relationship of the political institutions as represented
by the Panchayati Raj Institutions on the one hand, and 'control' is going to be the dominant paradigm of
the economic institutions as represented by the centre-state administrative relationship in the years to
cooperatives and self help groups on the other. The come.
significance of this alliance will be a high degree of
people's participation and empowerment, the objectives As the Administrative Reforms Commission (I)
that decentralization seeks to achieve. cautioned earlier, "In our anxiety to strengthen the unity
of India, we should not think of indiscriminately
(e) "The Centre — State relations have acquired new administrative powers at a distant centre tends to breed
dimensions in recent times due to several political inefficiency and resentment, which in turn sets the
parties being in power at the Centre and the States." minds of the people against the centre. A wise and
(Second Administrative Reforms Commission). Do you farsighted administration must be committed to
agree? Give reasons to support your arguments. 10 decentralisation of administrative powers."
The administrative relationship between the centre and Consequently, a federal polity is a decentralised polity. It
the states in India has evolved during the course of needs a political will to design and sustain a
colonial rule. After Independence the Constitution of decentralised political and administrative system. India
India provided for a system of inter-governmental waits for the emergence of this system.
relationship both for normal times and emergencies. In
normal times, the federal polity was expected to Q2. (a) "Public Sector Undertakings must learn to
function on the principle of dual government. The survive and be entrepreneurial without assured
history of highly centralised government in the past, the government budgetary support." In the light of this
influence of the Government of India Act 1935 and the statement give your suggestions for strengthening
concern of our founding fathers about national stability, their autonomy and reviving the health of sick Public
peace and harmony led to the acceptance of a Sector Undertakings. 20
constitutional arrangement of distribution of powers Since the days of liberalization in the 1990's the role of
that deliberately tilted the scale in favour Of the union. PSU has drastically changed in
Indian economy. Earlier they were the main tool for
Later, in the course of actual governance, the political regional aspiration, industrial growth
forces started reshaping the Indian polity and central , human resource development, etc. But with LPG
dominance through President's rule and other provisions reforms, private players have given almost equal parity
harmed the effective working of the federal system. As with public sector.
different political parties came to power at the union Government of India has taken many steps in regard to
and the state level, the phenomenon of central proper restructuring of PSUs :
dominance had steadily come under attack by the 1. PSUs are given status of Maharatna, Navratna
constituent states. The politics of centre-state relations and Mini Ratna according to their performance
revolved round such issues as 'more powers to the and have full autonomy in their day to day
states', 'more financial resources to the states' and even working and greater autonomy in policy
a clamour for redrafting of the Indian Constitution. In decisions.
response to the states' demands, the Sarkaria 2. Sick companies are referred to BIFR for final
Commission which was set up to review the workings of decision.
the federal system suggested appropriate constitutional 3. Signing of Memorandum of Understanding
changes but nothing substantial came out of it. But it between ministries and company to provide
seems that in the years to come 'consensus' rather than
1. Elite Thinking: District collector considers men and women differently through the pattern of
themselves master of the hoi polloi, not to resource allocation. Women constitute 48% of India’s
serve them. population, but they lag behind men on many social
2. Top down approach of development: The indicators like health, education, economic
developmental approach of district collector is opportunities, etc. Hence, they warrant special
top down make it less participatory against the attention due to their vulnerability and lack of access to
basic norms of democracy. resources. The way Government budgets allocate
3. Parochial in Outlook : District collector failed to resources, has the potential to transform these gender
involve all stakeholders in the grass root work. inequalities. In view of this, Gender Budgeting, as a tool
4. Rigid structure: The structure and machinery is for achieving gender mainstreaming, has been
rigid in the name of uniformity. propagated.
With fast changing time and technology this approach
of development and administration has become
redundant.There is a need for some changes to make it (b) "The gubernatorial position of the Governor is
more welfare oriented and democratic :- comfortably placed in the fuzzy area between
1. Participatory approach to include all 'Withdrawal of pleasure of the President' and
stakeholders in decision making. `Compelling reasons for removal'." Discuss with some
2. More power to elected representatives is true recent examples. 20
spirit of democracy The President, in effect the central government, has the
3. Flattened organization for the promotion of power to remove a Governor at any time without giving
decentralization him or her any reason, and without granting an
4. Use of technology in governance opportunity to be heard.
5. Localized approach in development and
governance However, this power cannot be exercised in an arbitrary,
6. Stress on transparency and accountability. capricious or unreasonable manner. The power of
removing Governors should only be exercised in rare
Q3. (a) "Gender Responsive Budgeting has infused and exceptional circumstances for valid and compelling
greater accountability of planning departments reasons.
towards women empowerment programmes." Examine
the statement. 20 The mere reason that a Governor is at variance with the
Gender Budgeting is a powerful tool for achieving policies and ideologies of the central government, or
gender mainstreaming so as to ensure that the benefits that the central government has lost confidence in him
of development reach women as much as men. It is or her, is not sufficient to remove a Governor. Thus, a
not an accounting exercise but an ongoing process of change in central government cannot be a ground for
keeping a gender perspective in policy/ programme removal of Governors, or to appoint more favourable
formulation, its implementation and review. GB entails persons to this post.
dissection of the Government budget to establish its
gender differential impacts and to ensure that gender A decision to remove a Governor can be challenged in a
commitments are translated into budgetary court of law. In such cases, first the petitioner will have
commitments. to make a prima facie case of arbitrariness or bad faith
The rationale for gender budgeting arises from on the part of the central government. If a prima facie
recognition of the fact that national budgets impact case is established, the court can require the central
government to produce the materials on the basis of be its concern; it has, for that matter, hardly bothered
which the decision was made in order to verify the earlier plans either.
presence of compelling reasons.
Q4. (a) "Management of intra-governmental relations is
In summary, this means that the central government as important as that of inter-governmental relations."
enjoys the power to remove Governors of the different Examine its impact upon the performance of the
states, as long as it does not act arbitrarily, without government. 20
reason, or in bad faith. It would be a monumental and virtually impossible task
to go about the study of governmental relations by first
(c) "Beneath the soft outer shell of democratic analysing all types of governmental bodies in an
administrative framework lies unscathed the steel attempt to ascertain and describe their relations with
frame of Indian administration which has survived other governmental bodies.
through the ages." In the light of this statement,
examine the relationship between- bureaucracy and To simplify matters, governmental relations occurring
development in the last one decade. 10 within the geographical boundaries of a state are
The topic of ‘bureaucracy and development’ is of classified into three major categories, viz relations
profound significance both for the academic seeking to between governmental bodies (intergovernmental
unravel the developmental phenomenon in societies relations), within governmental bodies
inhabited by nearly two-thirds of the world’s total (intergovernmental relations) and between
population and for the country as a whole. At the same governmental bodies and the community
time, the subject is multidimensional, being amenable to (intergovernmental relations) .
discussion from a variety of angles and perspectives.
While not underrating the validity and worth of such Intergovernmental relations may be subdivided into
disquisitions, it seeks to address itself to questions, vertical relations (by virtue of the various tiers of
such as what peculiar challenges public administration government) and horizontal relations (due to the
in general, and bureaucracy in particular, are likely to existence of authorities of equal standing). This also
face in India in the context of development as embodied applies to intra-governmental relations, where both
in the nation’s most authentic developmental blueprint, vertical and horizontal relations occur.
namely the Fifth Five Year Plan. One should, therefore,
turn to the latter to gain a more stable appreciation of There is also a fourth category, that of relations
the changes demanded in, and challenges encountered between states which, although it may also be defined
by the bureaucracy as well as by the larger political as intergovernmental relations, differs from the other
system. three in that it is characterised by the absence of
coercion in any relational situation. In addition, an
It mostly takes public administration for granted while analysis and study of inter-state relations involves
formulating them; it is assumed that the various additional dimensions which are of particular
objectives visualized in the plan are capable of being significance in the case of South Africa and will be
accomplished by the existing machinery of public discussed further on.
administration. It tends to overlook-or, at any rate, does
not recognize-that public administration itself might be (b) How far do you agree with the view that the
a limiting factor in development and could be one of the National Development Council (NDC) could resonate
scarcest resources. Implement ability does not seem to the demands of State governments as long as the
Planning Commission is kept subservient to it? had once remarked that the NDC was like a ‘super
Critically examine. 20 cabinet’. He made this observation in view of the NDC
Some states have often complained that they do not comprising the members of the Union cabinet and the
find adequate time for presenting their own problems chief ministers of the states. It was argued that the
and difficulties before the NDC. They argue that regional decisions of the NDC were generally adopted without
factors in the socio-economic development of various any modification by the Union and the state
states and union territories are generally governments. Ashok Chanda had also observed that the
under-emphasized in the overall process of formulation overlapping of the Planning Commission, the NDC and
of economic plans. A reason behind this limitation is the Cabinet had distorted the constitutional position.
that in the Indian planning process, uniformity and Moreover, certain observers feel that the NDC has been
commonality, rather than diversity and divergence, have unable to go deeply into the intricacies of the dynamics
been valued much more. of planning and its outcomes at the cross-state levels.
The NDC also provides opportunities to the opposition
Chief Ministers to air their dissenting views concerning (c) Critically examine the statement: ‘Thana’ (Police
the national plan. In a meeting of the NDC held in 1969, Station) as the last bastion of the waning British
certain states, for the first time officially disapproved of administrative legacy in India. 10
the draft of the Fourth Plan. The Chief Ministers of West The pillar of British rule was the police whose creator
Bengal and Kerala observed that they had been invited was once again Cornwallis. He relieved the zamindars
to discuss the plan-draft while there was hardly any of their police functions and established a regular police
scope for its modification. A few of the southern states, force to maintain law and order. In this respect, he went
including Tamil Nadu, had complained that although back to, and modernized, the old Indian system of
ostensibly, there was a federal approach to planning, thanas.
regarding the allocation of financial resources, however,
the approach, paradoxically enough, had been unilateral This put India ahead of Britain where a system of police
in its operation. After the Janata Government came to had not developed yet. Cornwallis established a system
power in 1977, there was a vigorous demand from of circles or thanas headed by a daroga, who was an
certain Chief Ministers that there should be a Indian.
reappraisal of the Centre state financial relations. Iyoti
Basu, the Chief Minister of West Bengal, had remarked Later, the post of the District Superintendent of Police
that unless financial positions of states improved, it was was created to head the police organisation in a district.
not possible to achieve the targets of planning. The Once again, Indians were excluded from all superior
Chief Ministers of 16 states demanded that not only posts. In the villages, the duties of the police continued
there was need for a greater share for the states in to be performed by village-watchmen who were
taxes and in plan assistance, there was need for market maintained by the villagers.
loans as well as for the institutional finances.
In October 1990, the NDC introduced a new formula for The police gradually succeeded in reducing major
determining the central assistance to states, replacing crimes such as dacoity. The police also prevented the
the old Gadgil formula. Although there were doubts organisation of a large- scale conspiracy against foreign
concerning the feasibility of the revised formula, the control, and when the national movement arose, the
consensus among the states was clearly in favour of police were used to suppress it.
increasing the Central assistance in view of the In its dealings with the people, the Indian police adopted
enhanced responsibilities of the states. K. Santhanam an unsympathetic attitude. A Committee of Parliament
reported in 1813 that the police committed spectrum charges, which it is legitimately entitled to, by
“depredations on the peaceable inhabitants, of the way of revenue sharing.
same nature as those practiced by the dacoits whom The ruling is considered extremely significant as it will
they were employed to suppress”. have far-reaching consequences on a wide range of
sectors, particularly on discoms and natural gas, where
licences for exploitation of natural resources have been
granted by the government under revenue- sharing
clauses.
Experts said the SC verdict may be cited to also seek a
CAG audit of the accounts of private companies in such
cases. The judgement came on a bunch of appeals by
the Association of Unified Telecom Service Providers of
India and the Cellular Operators Association of India –
organisations representing telecom companies – which
had sought to overturn the Delhi High Court’s verdict
allowing the CAG to audit revenues of private
companies.
SECTION B The CAG had initiated an audit after TRAI found that
Q5. Attempt the following in about 150 words each: some telecom operators were allegedly under-reporting
10x5=50 income to avoid sharing it with the Government. The
(a) Discuss the changes in the powers of the telecom companies had approached the high court
Comptroller and Auditor-General of India (CAG) seeking a stay on the CAG decision. Referring to the
following a recent Supreme Court judgement in a case constitutional powers of the CAG which is known as the
concerning a private service provider.10 guardian of the purse, the court said Parliament had an
In a ruling that turns a new leaf on the scrutiny of obligation to ascertain whether the entire receipts by
accounts of public-private partnerships and joint way of licence fee and spectrum charges have been
ventures, the Supreme Court ordered that the realised by the Union of India and credited to the
Comptroller and Auditor General of India was authorised consolidated fund of India and this task was assigned
to examine the accounts of even private companies if to the CAG.
they were dealing with natural resources.
Opening up the accounts of private telecom companies (b) Parliamentary Committees bring about
to a CAG audit, the court said it was imperative to accountability in public expenditure. Discuss. 10
ascertain how the government and the firms were Parliament is a huge body with sovereign powers.
dealing with natural resources, “which belonged to the Hence, it has to operate through its committee and the
people of the country”, and that the government review of their reports from time to time. In the realm of
received its due share under the agreements. these, parliamentary committees are specific and are
The CAG, the court said, was not actually auditing the vested with responsibilities of scrutiny of public
accounts of the UAS service providers as such, but expenditure, economy in public spending and controlling
examining all receipts to ascertain whether the Centre the irregularities and waste in the management of
was getting its due share by way of licence fee and public enterprises.
● The problem also lies in the fact that the party are typically even more stable, as long as their
judicial system and the different elements of majority can be maintained.
the justice system-such as investigation,
prosecution, the continuous adjournments in Q6. (a) Assess the role of honest and upright civil
the courts due to witnesses not appearing, servants in regulatory and development administration
delays in justice and all this has failed and in India. Give examples to substantiate your
unless these are made functional there is going arguments. 20
to be no dent on human rights issues. Civil Services is paid services (servant) of the state
● It is important for the civil society to be alert to chiefly in public administration who support a policy of
ensure that the police provide proper service. direct, vigorous action in advancing a project or in
● Another form of poor policing is poor or lack of strengthening the hold of some ideas. CS as one of the
supervision of cases by senior officers intelligent sections of citizenry and under expanding
especially in far flung police stations in activities of state, their number is constantly growing
therefore to exclude them from the exercise of state,
(e) "From coalition government to one-party dominance their number is constantly growing therefore to exclude
is a big change that is bound to affect the them from the exercise of their active role is to make a
governmental system." Explain why and how. 10 fairly large section of citizen body inert. Too much
A coalition government is a cabinet of a parliamentary protection can reduce a person to cowardice. This is
government in which several political parties cooperate, what is happening to civil servants, they willingly
reducing the dominance of any one party within that become cowards since they do not have the courage
"coalition". The usual reason for this arrangement is even to face a transfer or some minor inconvenience for
that no party on its own can achieve a majority in the upholding principles of good governance. Like a ‘coward
parliament. A coalition government might also be who dies a thousand deaths’ they are compromising and
created in a time of national difficulty or crisis (for acquiescing every time just to keep and positions safe.
example, during wartime or economic crisis) to give a
government the high degree of perceived political The civil service is not merely the preserve of the
legitimacy or collective identity it desires while also ‘generalist’. Governance today is a complex matter. In
playing a role in diminishing internal political strife. In any case, civil servants are not only responsible for
such times, parties have formed all-party coalitions maintaining law and order or collecting revenue, ‘they
(national unity governments, grand coalitions). If a also head scientific and technical departments. The
coalition collapses, a confidence vote is held or a expansion in the duties of the government, the more so
motion of no confidence is taken. When a general since the independence, makes it imperative that the
election does not produce a clear majority for a single civil services are manned by people with calibre. After
party, parties either form coalition cabinets, supported all, the standard of administration depends on the
by a parliamentary majority, or minority cabinets which people appointed to these very responsible posts.
may consist of one or more parties. Cabinets based on It might even be said that it is the duty of talented young
a group of parties that command a majority in persons to serve the country. There are several
parliament tend to be more stable and long-lived than examples of civil servants who valiantly crossed
minority cabinets. While the former are prone to internal seemingly insurmountable hurdles, sometimes at a
struggles, they have less reason to fear votes of no great cost to their personal lives, and contributed to
confidence. Majority governments based on a single social development or sought to clean up the system.
Ideally, a developing country such as India needs beyond the realm of traditional financial auditing as it
precisely these same qualities in its administrators. focuses on issues such as awareness, grievance
However, the ground reality is quite the opposite. The redress and feedback about the programmes.
administrative structure was not reformed after the
independence to suit the needs of the young republic. With the CAG now hand-holding social audit units and
Moreover, the checks and balances were gradually shifting its focus to monitoring various schemes like
removed yielding to a lack of accountability and MGNREGA, Sarva Siksha Abhiyan, Midday Meal scheme,
corruption. Since democratic ideals of the founders are Indira Awas Yojana and National Rural Health Mission,
yet to be implemented at the grassroots level, there is the performance of these centrally- sponsored schemes
no public demand that the administrative set up be are likely to get better.
overhauled. The latter is primarily due to the fact that a “CAG has told all AGs that we have to help social audit
large majority of the populace is deprived of basic by giving inputs and hence strengthen it. We can advise
education, and thus the people are largely unable to members of social audit teams in gram sabhas,
demand their fundamental rights through democratic panchayats and NGOs on how to make reports, collect
means. data and check if the programmes are being
implemented as per the policy.
(b) "Social auditing of flagship programmes of the
Central government facilitates the performance of the The CAG has also instructed AGs to attend public
Comptroller and Auditor-General." Elaborate the hearings (jan sunwai), which are part of social audits for
statement with appropriate examples. 20 schemes funded by the Centre.He has also asked the
Comptroller and auditor general Shashi Kant Sharma AGs to incorporate findings of the social audits in its
has instructed all auditors general in states to own performance audit reports. The auditors are also
institutionalize social audits and collect district level supposed to help in capacity building of local social
data on various social sector schemes. He has also audit units by training and conducting efficient audits.
asked them to synergize the social audits with the
CAG’s performance audit on government schemes Stressing on the need to carry out social audits, Sharma
which incur an expenditure of lakhs of crores every year. said he has asked his audit offices in states to evaluate
the quality of evidence emerging out of social audits
These social audits would primarily be on implementing and analyze them so that they can become useful in
agencies — NGOs and panchayat-level bodies — which CAG audits.
are directly funded by the Centre but are not subject to
checks by the government auditor. The auditor said a large portion of "development
expenditure" was being executed through local bodies
“In an internal circular issued recently, the CAG has such as panchayati raj institutions and urban local
issued directions to all its auditors general (AGs) in bodies. “These local bodies are important service
states asking them to support institutionalization of delivery tools and are performing most of the flagship
social audits, collect information on planning, quality programmes of central and state governments,” Sharma
assurance and other aspects,” a source said. had emphasized seeking more vigilance on these
bodies, particularly how they spend.
Social audit involves auditing of various schemes by
non-governmental organizations and local bodies, other (c) Explain the notion of one hundred 'smart cities' and
than the government auditor. Conceptually, it goes its likely impact on India's Urbanization. 10
Smart cities is an innovative initiative by the Committee on Petitions. A citizen may submit petitions
Government of India towards improving the quality of to secure redress against an act of injustice. So, even
life and attracting people and investment, setting in though a distant body, Parliament or State Legislature
motion a virtuous cycle of growth and development. can take up the cause of an aggrieved citizen.
First, the growth of a smart city project can give way to
massive opportunity, particularly when we talk about Thirdly, under the provisions of the Public Servants
demand for affordable homes. The smart cities projects (Enquiries) Act, departmental as well as public agencies
are increasingly allocating enough land and housing for can be instituted against a public servant for his
low-income groups (LIGs), thereby increasing the misconduct. Not day-to-day dealings but more serious
demand for realty in the country. matter of maladministration comes under the purview
of this Act. Fourthly, complaint forums have been set up
Second, smart cities also offer excellent investment at different levels to deal with public complaints. For
options with a sustainable scope for price appreciation, example, in a public bus or in a railway station, there are
especially for a long-term investment purview. complaint boxes to receive complaints from the public.
Consumers’ for a are now available to deal with
Third, the smart cities project will be an amalgamation complaints against any supplier of goods and services
of commercial and residential projects in India, in close such as telephone services. Within large public
quarters. Evolution of these smart cities will push the organizations such as Railway and Telecommunication
demand of office spaces as well as hotels, in addition to etc., there are complaint cells to deal with public
service apartments and shopping malls. The real estate complaints.
sector contributes about 6 percent to India’s GDP.
The government has also created Department of
Q7. (a) Elaborate the features of the grievance Administrative Reforms and Public Grievances. This is
redressal mechanism of the civil services in India. the nodal agency of the government for Administrative
Does this mechanism satisfy the objectives of its Reforms as well as redressal of public grievances. The
creation? 10 enactment of Administrative Tribunal Act 1985 opened
a new Chapter in the sphere of administering justice to
Indian Practice the aggrieved government servant and in some cases
Firstly Various institutions exist to redress public public members.
grievances. For instance a citizen can move the court to
seek remedy against any wrong done to him by a public (b) The 13th Finance Commission highlighted an
servant or a public agency in the course of discharge of indispensable need to improve the finances of rural
public duty: This is called judicial remedy. Many kinds of and urban level bodies. Does this make local bodies
administrative tribunals have been set up to provide more accountable in the discharge of their functions?
cheap and speedy justice to the complainer. The Income 20
Tax Appellate Tribunal, Labour Tribunals etc. are The recommendations of the 13th Finance Commission
instances of this type of institution. redefine the existing structure of fiscal federalism in the
country, setting the stage for a different political
Secondly, Parliamentary Procedure provides for dynamism by vesting greater powers with the third tier
opportunities to raise questions in Parliament by the of government: the local bodies, both urban and rural.
elected representatives concerning their constituencies.
Also, there is a Parliamentary Committee called the
The commission has recommended that local traditional administrative process is still bogged down
self-government bodies be given a direct share in Union in longer procedures than necessary, and creating
tax revenues, bypassing the state governments, and that quicker services seems to always be latched to some
the cut for urban local bodies be raised in tune with form of corruption.
their population growth vis-à-vis rural bodies.
Implementation hurts Administrative Reforms 1st ARC
The recommendations, will empower local bodies by proposed Lokpal, the bill was tabled several times and
turning the grants they receive into an entitlement, was not passed till recently. The learnings of its
reduce the control that the state governments exercise implementation couldn't happen earlier and hence there
over them and have the potential to benefit the political is a deadlock in implementing it over the question of
party in power at the national level, an expert said. Leader of Opposition.
2nd generation reforms in Lokpal - for instance
The panel pointed out that inclusive growth requires a regarding "Its independence in prosecution without
“fiscally strong Centre, states as well as third tier (local administrative oversight on CBI" or "Penalty for frivolous
bodies)”. It suggested raising the states’ share in Union complaints having a chilling effect on proceedings" is
tax revenues from 30.5% to 32%. yet to be studied as Lokpal stands unimplemented.
It also called for a 2.5% share of the divisible pool for On the other hand, successful implementation of the
local bodies in the form of grants, as the Constitution 73rd Amendment led to PESA and then to state owned
does not allow the sharing of tax revenues with them. reforms in PRIs. For instance, Bihar recently passed a
While 1.5% will be constant, 1% will be on the basis of bill reserving 50% seats to women; Furthermore, the
performance. regressive reforms of Haryana and Rajasthan are only a
phase of learning in Administrative reforms - their
It is like bypassing the state, and the Centre will be implementation being trigger for their own burial.
directly dealing with the local self - governments
(LSGs). The LSGs will get their grants on the basis of Q8. (a) Discuss the need for civil service neutrality in
their performance and their share from the tax revenues development administration. Suggest some measures
and states will not have much power on them. for achieving and strengthening it in practice. 20
One of the important traditional virtues of Civil services
(c) "Unimplemented reforms in administration weaken has been its neutrality. In the words of the Masterman
the administrative reforms process most." Do you Committee, “The characteristic which has long been
agree? Give your answer citing specific cases as recognized in the British administrator and extolled as a
illustrations. 20 special virtue is his impartiality, and, in his public
Although a number of Reform Commissions formed capacity, a mind untinged by political prepossession.”
over the years to strengthen public administration, The main ingredients of the British concept of Civil
recommended several initiatives to the government, the Service neutrality may be listed as: “(i) public
changes were largely neglected, and some of the confidence in the freedom of the Civil Service from all
initiatives could not even meet the critical needs. political bias ; (ii) minister’s confidence in obtaining
Lethargy and inept service are common, making the loyalty. service from the civil servants irrespective of
bureaucracy ineffective and incompetent. Public what political party is in power; (iii) high staff morale
servants lack commitment and are overwhelmingly based on confidence that promotions and other rewards
influenced by political parties and their ideologies. The
do not depend upon political origins or partisan activity 2. Functional : Code of conduct must be
but on merit alone.” supplemented with code of ethics .
The American concept of Civil Service neutrality, as (b) Supreme Court ruling on 31st October, 2013 in
described by the Hoover Commission, is: “They should respect of bureaucracy's functioning would help
keep clear of all political activity, preserve their achieve good governance. Analyse this ruling and add
neutrality in matters of policies..... This means that they your comments on it. 20
must avoid such emotional attachment to the policies To insulate the bureaucracy from political interference
of any administration that they cannot accept, change and to put an end to frequent transfers of civil servants
and work in harmony with new leaders .... Senior civil by political bosses, the Supreme Court directed the
servants would necessarily refrain from all political Centre and the States to set up a Civil Services Board
activities that would adversely affect their ability to (CSB) for the management of transfers, postings,
perform their official duties fairly, or that would tend to inquiries, process of promotion, reward, punishment and
identify them personally with a political party or its disciplinary matters also said bureaucrats should not
policies. The senior civil servant should make no public act on verbal orders given by politicians and suggested
or private statements to the press except of a purely a fixed tenure for them.
formal nature. He should make no public speeches of a
political or controversial character.” Writing the judgment, Mr. Justice Radhakrishnan said,
“The CSB, consisting of high ranking service officers,
Need for neutrality: who are experts in their respective fields, with the
1. Programme neutrality : The civil servants Cabinet Secretary at the Centre and Chief Secretary at
involved in policy making should give free and the State level, could be a better alternative (till the
frank advice , rather than keeping any political Parliament enacts a law), to guide and advise the State
consideration in mind .This is in line with NPA a government on all service matters, especially on
philosophy and in a prismatic society it is transfers, postings and disciplinary action, etc., though
expected out of a civil servant . their views also could be overruled by the political
2. Political neutrality : In a parliamentary executive, but by recording reasons, which would ensure
democracy , people elect the government and good governance, transparency and accountability in
the government is accountable to voters . governmental functions.”
However , the civil servants being appointed by
merit based recruitment are accountable to the The Bench asked Parliament to enact a Civil Services
constitution in letter and spirit , at the same Act under Article 309 of the Constitution setting up a
time accountable to politicians . This aspect of CSB, “which can guide and advise the political executive
neutrality has seen to be eroded , with multiple transfer and postings, disciplinary action, etc.” The
interference , lack of discipline in transfers etc Bench directed the Centre, State governments and the
thus politicising the office of civil servants . Union Territories to constitute such Boards “within three
months, if not already constituted, till the Parliament
Measures to Improve : brings in a proper Legislation in setting up CSB.”
1. Institutional : By setting up civil services board
to look into transfers, minimum tenure This is The Bench said “We notice, at present the civil servants
recommended by 2nd ARC. are not having stability of tenure, particularly in the
State governments where transfers and postings are
made frequently, at the whims and fancies of the In federal systems, the former is controlled by the
executive head for political and other considerations central government and the latter is largely the
and not in the public interest. The necessity of minimum responsibility of sub-national and local governments.
tenure has been endorsed and implemented by the While this has been the case with India as well – with
Union Government. In fact, we notice, almost 13 the army performing its tasks substantially better than
States have accepted the necessity of a minimum the police – India is rare in having a third paramilitary
tenure for civil servants. Fixed minimum tenure would instrument controlled at the federal level, not by the
not only enable the civil servants to achieve their armed forces but rather by the Ministry of Home Affairs.
professional goals, but also help them to function as
effective instruments of public policy.” While the CAPFs perform a range of functions, from riot
control to VIP duties, overseas deployments and
Deprecating repeated transfers, the Bench said disaster relief, they have two principal functions:
minimum assured tenure ensures efficient service guarding the country’s borders, and internal security.
delivery and also increased efficiency. The Bench After the Kargil war, following the recommendations of
directed the Centre, States and Union Territories to the K. Subrahmanyam Committee, the principle of ‘one
issue appropriate directions to secure providing of border, one border-guarding force’ was adopted for
minimum tenure of service to various civil servants, guarding the country’s international borders.
within three months. Organisationally, there are hard questions regarding the
overall effectiveness of these forces, stemming from
(c) Do you think that the Central paramilitary police weaknesses in training, poor equipment, and ineffective
forces have proven more effective than the State police leadership. Rapid expansion has meant that recent
service? Give your answer objectively in a critical vein. inductees have not gone through as much rigorous
10 training as needed. Their equipment is often shoddy,
Over the last two decades, the size of India’s Central whether heavy helmets or body-armour, or simply
Armed Police Forces (CAPFs) has almost doubled. At inappropriate, as is the case with the limited range of
the same time, expenditures on these forces have non-lethal and non-maiming weapons to handle
increased by almost an order of magnitude. These stone-throwing youngsters in Kashmir. Even their food
increases are occurring at a time when virtually all rations often get siphoned.
major ministries and departments of the central
government have witnessed a decline in their personnel. More importantly, the rise of the CAPFs is indicative of
how states in India have been abdicating their
The implications of this growth in the militarised constitutional responsibilities on law and order, by both
approach to policing have not received the attention under-investing in and over-politicising their own police
they deserve. forces. The reality is whether it is election duty or riot
control, CAPFs are more trusted on competence and
The foremost function of any state is the safety of its perceived as less partisan than local police forces. As a
citizens. This function is discharged through two result, states have been slowly but surely giving up
principal instruments of the state — the army, to protect important policing powers to the Centre.
its citizens from external aggression; and the police, to
ensure their physical safety as well as that of their But there might be an even more disturbing implication.
property. Once one has a hammer, one tends to see a nail
everywhere. The use of lethal force by organs of the
state against its own citizens requires utmost vigilance. problems than what it is trying to solve through this
The state needs to be extremely careful that the rapid expansion.
growth of the CAPFs does not end up creating more
● Weekly Current Affairs (PDF) Update for IAS Exam (52 Issues)
● The Gist of The Hindu, Yojana, Kurukshetra, PIB & Science Reporter
(1 Year Subscription - "Only PDF")
● Current Public Administration (Indispensable for Public Administration)
Q.1. Answer the following questions in not more than to improve government –if only government
150 words each: 10x5=50 administrators could be protected from political
(a) How did traditional public administration ''resolve a meddling.
fundamentally irresolvable problem-creating an
administration strong enough to be effective but not so (b) The theory of 'organizational incompetence' has two
strong enough to endanger accountability''? 10 separate and distinct faces. Examine Chris Argyris'
To start with politics-administration dichotomy, once views on this. 10
Public Administration was separated out, its The term "skilled incompetence" was coined by Chris
effectiveness had to be improved. Also, being Argyris in the early 1990s as a way to explain why
independent , even accountability had to be ensured. So, "managers use practised routine behaviour (skill) to
for this, classical structures and scientific principles produce what they do not intend (incompetence)".
were introduced. Traditional Public Administration
inevitably posed problems as it grew and developed. It In practice, this means managers not planning properly
sought to resolve a fundamentally irresolvable problem- for the future; believing good communication means
creating an administration strong enough to be effective telling employees that they need to work harder;
but not so strong enough to endanger accountability. It preferring to fight over scarce resources rather than
sought to do so by creating a theory of public trying to figure out how to share them in the most
administration insulated from the pressures of politics. effective way; and failing to deliver because they would
This manifested as hierarchy, control, command, rather sit in their offices than to get out to the front lines
POSDCORB, POCCC etc. The accountability was more where the real work is being done.
internal and part of the organizational set up itself. This leads to less-than-committed employees and poor
Methods like legislative control, internal accountability organisational performance. Skilled incompetence rears
in hierarchy , discipline and conduct rules, separation of it ugly head when managers lose the plot about what is
individual from means of production of administration important, and why. I have met many managers from
etc. through Bureaucratic structure ,clearly defined organisations of all types who seem to believe that their
roles, impersonal detachment and merit selection etc first responsibility is to protect their own turf.
efficiency and effectiveness was achieved and at the
same time hierarchy was also meant to control the (c) ''In the globalized public administration, hierarchy
officials. Even Wilsonian and Hamiltonian traditions saw creates more ethical problems than it
virtually no barrier to the ability of public administration solves...''Comment. 10
While in the traditional Weberian bureaucracy the The viability of these established and widely practiced
responsibility of public servants is restricted to the means of public accountability is affected by the
execution of orders given by the legitimate power, public emerging neoliberal mode of governance, which has
servants now have a broad spectrum of responsibility” brought new sets of institutions, structures, and norms,
and expanded the scope for administrative
As Parsons highlights, “In this Weberian world there was politicization, managerial autonomy, and public–private
a place for everything and everything was in its place. partnership .
Civil servants knew their place and parliaments knew
where things were and who was responsible for them”. (e) Discuss the view that ''tribunals should have the
In fact, public servants turn out to be more accountable, same degree of independence from the executive as
sustained by audit mechanisms. When the Weberian that enjoyed by the Supreme Court and the High
hierarchical forms become more elastic, it is difficult to Courts, especially for those tribunals that look over the
define unbending roles. functions of High Courts.''10
Parliament has inflicted damage on high courts with
(d) Public Administration in the neo-liberal era is rampant tribunalisation. Tribunals have replaced high
governed less by instruments of internal accountability courts for disputes under the Companies Act,
and more by those of external accountability. Competition Act, SEBI Act, the Electricity Act, Consumer
Elaborate. 10 Protection Act among others. Any person aggrieved by
The question of public accountability has also become an order of an appellate tribunal can directly appeal to
more significant due to the growing challenge to various the Supreme Court, side- stepping the high court. This
means of accountability posed by recent changes in raises three institutional concerns
governance. The major means of accountability that are 1. These tribunals do not enjoy the same
traditionally practiced in western democracies and constitutional protection as high courts. The
followed in many developing countries, include the appointment process and service conditions of
following: high court judges are not under the control of
1. external-formal mechanisms, including the executive. The enormous institutional
legislative instruments (legislative committees investment to protect the independence of high
and parliamentary questions), executive means courts is dispensed with when it comes to
(controls exercised by political executives over tribunals. Many tribunals still owe allegiance to
public agencies), and judicial or quasi-judicial their parent ministries.
processes (administrative courts and 2. conferring a direct right of appeal to the
ombudsmen); Supreme Court from tribunals has changed the
2. external-informal mechanisms, such as public Supreme Court from being a constitutional
hearings, interest groups, opinion polls, and court to a mere appellate court. It has become
media scrutiny; a final clearing house for every appeal under
3. internal-formal means, including officials rules, every statute. The Supreme Court should be a
codes of conduct, official hierarchies, and court of last resort deciding cases of the
performance reviews; and moment, and not a final forum with an
4. internal-informal mechanisms, such as all-embracing jurisdiction over disputes ranging
organizational culture, professional ethics, and from a custody battle to the scope of a
peer pressure municipal by-law.
3. high courts are the training grounds for future fancies and fads'. Spann's warning of a fashion or a fad
Supreme Court judges. When high court judges is relevant here. Perhaps the changes are merely a fad
deal with several cases under a particular area to which, like all fads, public servants pay lip service.
of law, they carry with them the benefit of their Public servants may have absorbed the new managerial
experience and insights to the Supreme Court. jargon – performance indicators, key result areas,
When high courts are side-stepped in favour of strategy, and organizational culture and so on – but in
tribunals, Supreme Court judges hearing many cases the understanding does not rise above this
appeals from tribunals would have to deal with level. It does not matter if the ideas are new or not.
the finer nuances of disputes under specialised What is more important is the packaging of the ideas
areas of law for the very first time. This is not into a coherent set of reforms, and this has occurred.
ideal for a court of last resort. Managerial reforms were not instituted by, or for the
benefit of, senior managers, they were imposed by
Q.2. (a) "New Public Management may have neither politicians and governments highly unimpressed with
been the saviour its enthusiasts promised nor the devil the quality of their public services. Some inside the
its critics worried it would be." Discuss. 25 system might have been carried along by the tide, but it
The changes wrought by new public management are is governments trying to shore up their own support in
now probably irreversible. Stark argues that the new the community that have been the instigators and
managerialism ideas are new, even if some of the beneficiaries. This is very different from earlier internal
aspects are not. Hood (1991) argues that the new management reforms. Managerialism may last longer
managerialism is 'hype' rather than 'substance' and that as a result of its implied assault on bureaucratic
nothing has really changed. In his view, new public principles.
management has 'damaged the public services while
being ineffective in its ability to deliver on its central The idea of government itself may be under some
claim to lower costs'; and also it was 'a vehicle for pressure, but bureaucracy now has few supporters
precise advantage' to serve the interests of an elite anywhere. Any solution offering a reduction in
group of top managers, and could not claim to be as bureaucracy is likely to be popular. Previous reform
universal as its advocates suggested. Hood (1994) later attempts were changes within a bureaucratic
repeated the criticism arguing it was 'more that the framework; this one is not. Thirdly, the express aim in
packaging was new, not the ideas inside' and that NPM the managerial programme to reduce the scope of
could be considered a 'cargo cult'. In one sense, the government makes it unlikely that the areas reduced will
ideas are not new. Economics and private management again become part of government. Previous reform
are hardly new, nor are the principles of managerialism attempts made no serious attempt at reduction, or in
deriving from them. trying to find out which things governments were best at
doing. However, as more countries adopted the reforms,
The history of public administration is replete with it was the traditional model of public administration that
failed experiments and failed techniques, mostly with looked more and more dated (Hughes, 2003).
their own acronyms such as: planning, programming,
budgeting (PPB), zero-based budgeting (ZBB), and (b) "The design of the physical structure, the anatomy
management by objectives (MBO). The feeling that it of the organization came first, and was indeed the
has all been seen before is quite understandable or as principal consideration." "An organization is a system
Newland argues 'American skepticism toward NPM of interrelated social behaviours of participants."
stems from long experience with conflicting reform Analyse these statements and evaluate the
contributions of the respective approaches to Elton Mayo proved with his famous Hawthorne
administration theory. 25 experiments, that the social aspect rather than physical
The classical thinkers developed the structure of the aspect was a crucial factor for improving productivity
organization. Their main aim was to enhance efficiency , and efficiency. Barnard distinguished between formal
effectiveness and productivity of the organization. and informal organization and proposed zone of
Wilson dissociated administration from policy. indifference where authority would not be overlooked.
Simon’s decision making theory enhanced Barnard’s
Max Weber provided for a structure of bureaucracy and zone of indifference to zone of acceptance by the
provided it with values like neutrality, rationality and workers.
legal authority , which protected bureaucracy from the
hurry and strife of politics. Maslow distinguished between different kinds of needs
and said that self actualization needs are ultimate
Taylor, father of scientific management, further needs of an employee. Macgregor Theory X and Y said
developed structure by division of work and that there is a need for change in organizations attitude
responsibility between management and workers. toward employees to enhance productivity.
Fayol developed elements of management and fourteen These behavioral scientists provided a human and
principles of administration. He emphasized the need of participative approach of management which
training and gangplank for further enhancing the contributed a better work atmosphere in the
efficiency. organization. Thus both classical and behavioral
participative approach provided valuable inputs for the
Gulick and Urwick further capitalized on these ideas to development of science of administration.
produce a structure of administration. They put
forwards theory of departmentalization, single executive Q.3. (a) "Decisions are not made by 'organizations', but
to encourage responsibility and line and staff principle by 'human beings' behaving as members of
and delegation. organizations." How do Bernard and Simon
conceptualize the relation between the decisions of the
These writers provided for a structure of organization individual employee and the organizational authority?
and helped to form a theory of administration to 20
increase efficiency, effectiveness and productivity. It is to be observed that in every organization the higher
Though they were aware of the behavioral aspect, they authorities taking decisions are human beings
decided to ignore it in favour of efficiency and themselves. It is their responsibility to take such
productivity for which they were criticised by the decisions which would help the organization to fulfill its
behavioral scientists like Fayol, Simon, Bernard and goals and objectives. Therefore, they need to take into
Herzberg. consideration relevant facts for fulfilling those goals
which requires looking for strategic factors by analyzing
Follet represented a transition from classical to situations.
behavioral model. She produced idea of constructive
conflict and pitched in for integrational approach of A decision taken by an individual employee might be
conflict management. influenced by his interactions with the informal
organization present around him in the form of
co-workers and his interactions, personal contacts,
conflicts etc. they are taken by him in his personal To counter this crisis the thinkers like osborne, Ostram
capacity and not as a member of the organization. etc recommended the creation of multiple organizations
delivering the same services so that competition is
According to Bernard it is very important to make every developed in delivery of services. This would increase
individual employee feel himself as a vital part of the the competition and quality of services being delivered
organization for its survival. The decision taken by him to people would improve. This method was named as
may not be significantly important towards the "public choice Theory". Participation of private sector
organizational goals. practices were propagated under the new public
management theory.
Simon was profoundly influenced by Bernards views on
decision-making and furthered the same with his The public choice theory provides for multiple
bounded rationality model. He considered an individual organizations providing the same services. As in the
decision-maker as a ‘administrative man’ whose goal case of the USA where people could choose the
was not to maximize returns but to optimise or look for municipality working better so that their services could
satisfactory gains from the decision. He would however be delivered faster. The municipalities that performed
take a decision without taking into consideration all the poorly saw significant loss of revenue in areas of
alternatives as his aim is not to maximize gains but to taxation a user fees from the local market and in turn
optimize them. Higher authorities, in order to attain decreased rate of growth than better performing
organizational goals, would be expected to take into localities.
consideration all the time and cost constraints,
environmental forces, alternatives and take appropriate Hence a variety of organizational arrangements such as
decisions. However one thing in common with both their public choice theory, people centric service delivery etc
decisions would be that both would be rational and can be envisaged so that delivery of a wide range of
optimal in nature. goods and services will be done effectively. This will
encourage traditionally closed bureaucracy to open up
To sum up, Barnard and Simon tried to balance the to the people and bring efficiency in working.
decisions and objectives of management and members (c) What is the nature of psychological contract
of organization, for the rational and democratic pursued by organizational management through
functioning of organization which enhances the output authority and the employees through exertion of
of the organization as a whole. upward influence? 15
(b)"A variety of different organizational arrangements An organization is a social system in which there is an
can be used to provide different public goods and unwritten, yet well established psychological contract
services." Explain the theory underlying this between the employer and the employees. The employer
proposition and its potential contribution. 15 facilitates effective communication, seeks commonality
There are a large number of functions that a and co-operation with the employees. It is through
government organizations deliver. But the performance effective communication that the subordinate accepts
of government organizations are often below par and his/her authority.
little outcome is produced by such institutions. They
often suffer from red tapism and corruption making A fine balance is maintained by integrating the
service delivery to suffer bitterly. employee’s expectation of returns commensurate with
his/her contributions to the organization into the
communication. It is only when the plurality of needs is
satisfied for an employee in a timely manner does the Gulick and Urwick further developed the structural
employee contribute effectively. Barnard has captured system. They provided principles for structure of
this as the ‘efficiency’ that an organization must strive Administration. Gulick and Urwick (1937) also
to achieve in an organization. It is through this considered organization in terms of management
psychological contract pursued by the organizational functions such as planning, organizing, staffing,
management that the ends of the organization can be directing, coordinating, reporting and budgeting.
achieved. Mooney and Reiley’s principles of coordination, scalar
process, functional differentiation and line and staff are
In another interpretation, it is the employee’s that accept again based on those classical principles.
the authority of the employer’s and hence complete
tasks as a responsibility of the organization than their Considering the organization as a segment of broader
own responsibility. Individuals are usually not society, Weber (1947) based on the concept of the
comfortable with taking on individual responsibility and formal organization on :
hence accept authority, thereby delegating responsibility ● Structure;
upwards to what seems to be an organizational ● Specialization;
decision. Hence, it is a contract of abidance in the name ● predictability and stability;
of purpose of the organization. ● rationality; and
● democracy.
Q.4. (a) Structural theory is, by and large, grounded in
classical principles of efficiency, effectiveness and Weber's theory is infirm on account of dysfunctions
productivity. Explain. 25 such as rigidity, impersonality, displacement of
Structural theory relates to a rigid structure of the objectives, limitation of categorization,
organization which is needed for effective and efficient self-perpetuation and empire building, cost of controls,
management of an organization. It is inherent in the and anxiety to improve status.
writing of classical thinkers like Fayol, Taylor, Gulick and
Urwick, Mooney and Reiley and Weber. Follett and Bernard deviated from the idea of economic
man and shifted their focus on the significance of
Woodrow Wilson in his famous essay “The study of socio-psychological aspects of organizational behavior
Administration” propounded scientific management ,it is but Follett’s principles of planning and coordination and
based on the concept of planning of work to achieve Bernard’s principles of better communication have
efficiency, standardization, specialization and clearly been put forward with a view of increasing the
simplification. The approach to increased productivity is efficiency, effectiveness and productivity of an
through mutual trust between management and organization.
workers.
Fayol in The elements of administrative theory related to (b) "Public interest is still inadequate as a ground
accomplishment of tasks, and include principles of concept to evaluate public "policy." Discuss. 25
management, the concept of line and staff, committees Public interest, is the welfare or well-being of the
and functions of management. Fayol considered general public; or appeal or relevance to the general
management as a set of planning, organizing, training, populace. The public interest must be assessed
commanding and coordinating functions. impartially and therefore defines the public interest as
the "ex ante welfare of the representative individual."
research. And even with its strong theoretical bent, include gender equity in the terms of reference of the
Waldo asserts that the movement failed to produce organization's reviews.
anything in the way of rigorous theory.
New programs which identify and address inequalities,
(b) "In organizational analysis there is always gender special needs and the status of women in relation to
around." (Gouldner). Argue 10 employment at all levels also need to be established
An analysis of gender equity policies in an organization and evaluated.
and elsewhere has resulted in the conclusion that, while
no single defined set of principles exists, the following (c) What is administrative elitism? How does it evolve
are important elements of a conceptual framework: in public administration? Elaborate your response with
reference to historical examples. 10
From a management point of view, accountability tends The Administrative Cadre of the civil service preserves
to revolve around different processes. In a mature the elitist tradition in supportive political conditions. It
equity culture, accountability for equity issues is not be virtually shields itself from other functional groups and
singled out for attention. In order to overcome this its members occupy key positions in the governmental
difficulty, a wider framework for gender equity structure and wield tremendous power and authority
responsibilities across an organization needs to be over policy making. Indoctrination and training is its
established to promote stronger forms of own preserve and highly politicised groups within it
accountability. It is also essential that staff in regulate civil service recruitment and placements.
management and supervisory roles accept Within the Administrative Cadre, elite integration is
responsibility for gender equity policies and practices strong, while there is wide differentiation between this
within their units. group and other cadres. Reform attempts failed to make
inroads into changing bureaucratic behaviour mainly
While there are no gender equity absolutes, comparison due to resistance from the elitist cadre, which remains
is a strong mechanism to lift the performance of like the dominant instrument of the political executive.
institutions. Gathering information on policy and
practice elsewhere is likely to assist, for instance, in The Administrative Cadre of the civil service preserves
identifying successful ways of increasing the number of the elitist tradition in supportive political conditions. It
women on committees and enhancing the career virtually shields itself from other functional groups and
prospects of women. its members occupy key positions in the governmental
structure and wield tremendous power and authority
The absence of an effective internal gender equity over policy making. Indoctrination and training is its
network can result in two undesirable consequences. own preserve and highly politicised groups within it
Firstly, inequities due to lack of knowledge about regulate civil service recruitment and placements.
opportunities can flourish and secondly, the Within the Administrative Cadre, elite integration is
effectiveness of the system in drawing the strong, while there is wide differentiation between this
organization's attention to such inequities is diminished. group and other cadres. Reform attempts failed to make
inroads into changing bureaucratic behaviour mainly
Diverse issues in relation to gender equity needs to be due to resistance from the elitist cadre, which remains
examined in consultation with all staff and information the dominant instrument of the political executive.
on best practice promulgated. One strategy can be to
(d) The success rate of e-government projects in most institutional structure. The lack of institutional structure
developing countries is stated to be rather low. Assess can be temporarily compensated by good management,
the reason. 10 but if this latter disappears, e-government is doomed to
E-government implementations in developing countries fail.
still face difficulties, leading to a large failure ratio. This
is too high a cost for developing countries. (e) What new models of budgetary capacity and
incapacity have emerged after the decline of Planning
The problems that were clearly pointed out by were the Programming Budgeting and Zero-based Budgeting?
reluctance of the staff from cooperating with the 10
software development company at the time of its
development, the fact that they concealed the existing Incremental Budget Models :
system from their new management that intended to An incremental budget is a budget prepared using a
develop a new system, as well as the lack of proper previous period's budget or actual performance as a
handover from old to new management. basis with incremental amounts added for the new
budget period.
The system in question is related to the allocation of
lands for investments and involves large investments. ● The allocation of resources is based upon
The existence of the system limited the administrative allocations from the previous period.
discretion of the involved staff and their ability to ● This approach is not recommended as it fails to
“selectively serve” the investors and profit from the take into account changing circumstances
“return of these services.” Administrative discretion was ● Moreover it encourages "spending up to the
then the means to corruption; which the system budget" to ensure a reasonable allocation in the
prevented, and getting the system off the way was the next period. It leads to a "spend it or lose"
solution the staff resorted to. They succeeded in mentality.
eliminating the system due to the flaw in management
handover procedures. The “Objectives, Values and Advantages of incremental budgeting
Incentives” factor was demonstrated to be a catalyst ● The budget is stable and change is gradual.
factor (necessary but not sufficient), while the ● Managers can operate their departments on a
Organizational Structure was a necessary factor. consistent basis.
● The system is relatively simple to operate and
e-government factors that directly affect the easy to understand.
administrative discretion are the “Organizational ● Conflicts should be avoided if departments can
Change” and the “Collaboration.” The collaboration was be seen to be treated similarly.
a result of the Organizational change factor which ● Coordination between budgets is easier to
seems to be the main cause that directly affected the achieve.
administrative discretion and thus can be the dominant ● The impact of change can be seen quickly.
factor that controls administrative discretion. Disadvantages of incremental budgeting
● Assumes activities and methods of working will
From the above, we can conclude that corruption continue in the same way.
(inherent in staff values) fights the e- government back, ● No incentive for developing new ideas.
since it contradicts with the staff interest. Such a ● No incentives to reduce costs.
resistance can be overcome by proper management and
shows a worse situation at the end of ten years than at is that the cumulative change brought about is
the start. substantial. The slow pace of implementation has
meant that many of the reform initiatives have been put
Critics often blame the delays in implementation and in place recently and their beneficial effects are yet to
failure to act in certain areas to the choice of be felt. The policy environment today is therefore
gradualism as a strategy. However, gradualism implies a potentially much more supportive, especially if the
clear definition of the goal and a deliberate choice of critical missing links are put in place. However, the
extending the time taken to reach it, in order to ease the failure on the fiscal front could undo much of what has
pain of transition. This is not what happened in all been achieved. Both the central and state governments
areas. The goals were often indicated only as a broad are under severe fiscal stress which seriously
direction, with the precise end point and the pace of undermines their capacity to invest in certain types of
transition left unstated to minimize opposition—and infrastructure and in social development where the
possibly also to allow room to retreat if necessary. public sector is the only credible source of investment.
This reduced politically divisive controversy, and If these trends are not reversed, it may be difficult even
enabled a consensus of sorts to evolve, but it also to maintain 6 percent annual growth in the future, let
meant that the consensus at each point represented a alone accelerate to 8 percent. However, if credible
compromise, with many interested groups joining only corrective steps are taken on the fiscal front, then the
because they believed that reforms would not go “too cumulative policy changes that have already taken place
far”. The result was a process of change that was not in many areas, combined with continued progress on
so much gradualist as fitful and opportunistic. Progress the unfinished agenda, should make it possible for India
was made as and when politically feasible, but since the to accelerate to well beyond 6 percent growth over the
end point was not always clearly indicated, many next few years.
participants were unclear about how much change
would have to be accepted, and this may have led to (b) “The policy process was not structured in the way
less adjustment than was otherwise feasible. required by bureaucratic planning.” “Arguably,
incrementalism now stands most in contrast to
The alternative would have been to have a more neo-liberal nationality that impose markets against
thorough debate with the objective of bringing about a both gradual change and democratic liberalism.”
clearer realization on the part of all concerned of the full Analyse these two statements. 20
extent of change needed, thereby permitting more Neoliberalism sees competition as the defining
purposeful implementation. However, it is difficult to say characteristic of human relations. It redefines citizens
whether this approach would indeed have yielded better as consumers, whose democratic choices are best
results, or whether it would have created gridlock in exercised by buying and selling, a process that rewards
India’s highly pluralist democracy. Instead, India merit and punishes inefficiency. It maintains that “the
witnessed a halting process of change in which political market” delivers benefits that could never be achieved
parties which oppose d particular reforms when in by planning.
opposition actually pushed them forward when in office.
The process can be aptly described as creating a strong Attempts to limit competition are treated as inimical to
consensus for weak reforms! liberty. Tax and regulation should be minimised, public
services should be privatised. The organisation of
Have the reforms laid the basis for India to grow at 8 labour and collective bargaining by trade unions are
percent per year? The main reason for being optimistic portrayed as market distortions that impede the
formation of a natural hierarchy of winners and losers. balance reserves to pay for current services may be
Inequality is recast as virtuous: a reward for utility and a appropriate over a short period. Generally, however, all
generator of wealth, which trickles down to enrich departures from this fundamental objective must be in
everyone. Efforts to create a more equal society are accordance with applicable state and local laws and
both counterproductive and morally corrosive. The policies.
market ensures that everyone gets what they deserve.
Given the importance of demonstrating compliance with
We internalise and reproduce its creeds. The rich the approved budget, the financial reporting system
persuade themselves that they acquired their wealth must control the use of financial resources and ensure
through merit, ignoring the advantages – such as that budgetary appropriations and allocations are not
education, inheritance and class – that may have helped exceeded. To demonstrate compliance, accounting
to secure it. The poor begin to blame themselves for systems are usually operated on the same basis of
their failures, even when they can do little to change accounting used to prepare the approved budget. Thus,
their circumstances. the actual financial information captured by the
accounting system is in a form comparable to the
Never mind structural unemployment: if you don’t have a approved budget. Through budgetary integration, the
job it’s because you are unenterprising. Never mind the financial accounting system becomes the primary tool
impossible costs of housing: if your credit card is to prove financial accountability.
maxed out, you’re feckless and improvident. Never mind
that your children no longer have a school playing field: Finally, the budget is evaluated for its effectiveness in
if they get fat, it’s your fault. In a world governed by attaining the organization's stated goals and objectives.
competition, those who fall behind become defined and Evaluation typically involves an examination of how
self-defined as losers. funds were expended, the outcomes that resulted from
the expenditure of funds, and the degree to which these
(c) Budget allocation involves a series of tensions outcomes achieved the stated objectives. This phase is
between actors with different backgrounds, fundamental in developing the subsequent year's
orientations and interests and between short-term budgetary allocations. In effect, budget preparation not
goals and long term institutional requirements. only is an annual exercise to determine the allocation of
Discuss. 15 funds, but also is part of a continuous cycle of planning
Budgeting is the process of allocating finite resources and evaluation to achieve the stated goals and
to the prioritized needs of an organization. In most objectives of the organization.
cases, for a governmental entity, the budget represents
the legal authority to spend money. Adoption of a Q8. (a) Read the following instances carefully and
budget in the public sector implies that a set of suggest what specific perspectives on organizational
decisions has been made by the governing board and psychology of motivation would help the concerned
administrators that culminates in matching a organization to reconcile the needs of the following
government's resources with the entity's needs. As four persons with the needs of the organization: 30 +
such, the budget is a product of the planning process. 20
Although some form of a balanced budget requirement 1. Mr. A comes to his office with clocklike
is generally necessary to ensure long-term fiscal health punctuality; does his work with impeccable
in any organization, variations such as the use of fund honesty and integrity; takes order from above
SECTION A renewed the powers of the company and allowed it to
Q1. Attempt the following in about 150 words each: retain possession of the Indian territories. The Act of
10x5=50 1853 marked the beginning of a Parliamentary system
(a) "The Charter Act of 1853 marked the beginning of in India. No Indian element was associated with the
parliamentary system in India." Explain. Legislative Council.
British Parliament was called upon to renew the
Charter of the Company in 1853.The Parliament had (b) "Civil service neutrality is founded on the
in the preceding year appointed two committees to go application of the principles of Rule of Law."Comment
into the affairs of the Company and on the basis of their Civil Service neutrality is an inalienable principle for
reports the Charter Act of 1853 was framed and passed. ethical governance. Its foundation is based on Rule of
According to the new Act the law member was made a law and can be seen through,
full member of the Executive Council of the Governor 1. Permanent nature of civil services as a
General. Governor - General was given power to profession as mentioned in Article 312 in Indian
nominate a vice president of his council. constitution, where irrespective of party in
power, civil services has to assist government.
The Act provided that the salaries of the members of 2. Policy making, implementation and evaluation
the Board of Control ,its secretary and other officers by civil servants based on the law and not
would be fixed by the British Government but would be according to the individual party or politician
paid by the company. Power was given to the court of interests. Ex: constitutional directive principles
directors to constitute a new presidency. Power was of India.
also given to alter and regulate from time to time limits 3. No ideologies for civil servants except the
of the various provinces. This power was used to create public welfare which is evident through
the Punjab into a Lieutenant Governorship. implementation of laws like MGNREGA Act in
India, US Health care act etc
The number of the members of the court of Directors 4. Following values like integrity, honesty,
was reduced from 24 to 18 out of which 6 were to be impartiality, rationality while decision making is
nominated by the crown. Power was given to the court a must and is based on ethics in governance
of directors to constitute a new presidency. Power was and on laws like Prevention of Corruption Act in
also given to alter and regulate from time to time limits India.
of the various provinces. The Charter Act of 1853
5. Objectivity in solving social issues like acceptance of the recommendations made by
communalism, violence and terrorism where the V Ramachandran committee, the Planning
law is the only basis without subscribing to any Commission issued an extremely gratifying
of the above activities. circular on the mechanics of this process — but
Civil service neutrality has its roots in application of law then sabotaged its own directives largely
but there are certain principles which are universal like because the only village the deputy chairman
integrity, honesty, fraternity, professional ethics which was acquainted with was the one in downtown
are true irrespective of natural or cultural setting. Rule Manhattan.
of law coupled with moral principles will lead to the
concept of Civil Service Neutrality which is free from Following the example of Karnataka, to establish a
political bias, corruption and nepotism. separate cadre of panchayat officials who would be
subordinate to the elected authority, not lording it over
(c) "The second generation reforms in the Panchayati them, as happens, alas, far too often, especially in
Raj institutions have changed Panchayats from an states with weak panchayat systems.Much else needs
agency of development at local level into a political to be done. But for starters these four steps might
institution." Discuss. constitute a useful beginning for second-generation
1. First and foremost, effective devolution. The reforms to secure grassroots development through
2013 expert committee I chaired laid out in democratic grassroots governance.
detail how to achieve this through the device of
“activity mapping”. Further, it is imperative that (d) "Finance Commission in India performs the job of
activity maps be incorporated in the guidelines statistics aggregation." Comment
of all centrally sponsored schemes and that the It is a body set up under Article 280 of the Constitution.
massive amounts of money earmarked for Its primary job is to recommend measures and methods
poverty alleviation in all its dimensions be sent on how revenues need to be distributed between the
directly to gram panchayat accounts, reinforced Centre and states.
by detailed activity maps to ensure genuine
“local self- government”. Besides suggesting the mechanism to share tax
2. financial incentivisation of the states to revenues, the Commission also lays down the principles
encourage effective devolution to the for giving out grant-in-aid to states and other local
panchayats of the three Fs — functions, bodies. The commission has to take on itself the job of
finances, functionaries. The World Bank offered addressing the imbalances that often arise between the
me a billion dollar initial IFC soft loan to set up taxation powers and expenditure responsibilities of the
such an incentivisation fund. Unfortunately, the centre and the states, respectively. Primarily, it has to
finance ministry turned it down, preferring to ensure a sense of equality in public services across the
look a gift horse in the mouth. But outside states.
funds are not really required if the ministry were The statistics aggregation part of Finance
to make provision for the domestic funding of Commission’s Job:
such incentivisation. 1. Vertical and horizontal devolution of net
3. district planning based on grassroots inputs proceeds; Weightage for horizontal devolution
received from the village, intermediate and is based on Population,Fiscal capacity distance,
district levels through people’s participation in Fiscal Discipline, Area etc; FC collects and
the gram and ward sabhas. In 2005, in full
collates data afresh - which takes considerable public services and utilities, and land use conditions
time (such as housing and zoning). Once this data is
2. It collects macro economic data and Micro collected it is analyzed and studied. Outcomes of the
economic data data collection process include population projections,
3. The role of FC has been considerably eroded economic condition forecasts, and future housing
because of increasing importance of PC; needs.
(e) "Planning enables comprehensive and scientific The plan is prepared using the information gathered
understanding of problems." Examine the statement in during the data collection and goal setting stages. A
the context of planning methodology. typical comprehensive plan begins by giving a brief
Comprehensive Planning typically follows a planning background of the current and future conditions found
process that consists of eight different steps. By in the data collection step. Following the background
following this process, planners are able to determine a information are the community goals and the plans that
wide range of interconnecting issues that affect an will be used in order to implement those goals into the
urban area. Each step can be seen as interdependent community. Plans may also contain separate sections
and many times planners will revise the order to best fit for important issues such as transportation or housing
their needs. which follow the same standard format.
The planner must first address the issue they are During this stage of the process different programs are
investigating. "To be relevant, the planning process thought of in order to implement the goals of the plan.
must identify and address not only contemporary issues These plans focus on issues such as cost and
of concern to residents, workers, property owners, and effectiveness. It is possible that a variety of plans will
business people, but also the emerging issues that will result from this process in order to realize one goal.
be important in the future." Generally, planners These different plans are known as alternatives.
determine community issues by involving various
community leaders, community organizations, and Each alternative should be evaluated by community
ordinary citizens. leaders to ensure the most efficient and cost-effective
way to realize the community's goals. During this stage
Once issues have been identified by a community, goals each alternative should be weighed given its potential
can then be established. Goals are community visions. positive and negative effects, impacts on the
They establish priorities for communities and help community, and impacts on the city government. One
community leaders make future decisions which will alternative should be chosen that best meets the needs
affect the city. Stating goals is not always an easy and desires of the community and community leaders
process and it requires the active participation of all for meeting the community goals.
people in the community.
The community needs to adopt the plan as an official
Data is needed in the planning process in order to statement of policy in order for it to take effect. This is
evaluate current city conditions as well as to predict usually done by the City Council and through public
future conditions. The most typical data collected for a hearings. Once the plan is accepted by city officials it is
comprehensive plan include data about the then a legal statement of community policy in regards
environment, traffic conditions, economic conditions, to future development.
social conditions (such as population and income),
Using the implementation plans defined in the earlier (b) "The liberal-democratic ideology of the West
stages, the city will carry out the goals in the influenced the shaping of value premises of the Indian
comprehensive plan. City planning staff monitor the Constitution." Discuss. (In about 250 words) 20
outcomes of the plan and may propose future changes Indian constitution is genesis of long experience of
if the results are not desired. western countries which emerged through constant
questioning of underlying values by different aggrieved
A comprehensive plan is not a permanent document. It or dominant groups. This in time gave us liberal
can be changed and rewritten over time. For many fast principles which keeps power of state in check and
growing communities, it is necessary to revise or update protect the rights of citizens.
the comprehensive plan every five to ten years. In order
for the comprehensive plan to be relevant to the India this way included Fundamental rights such as right
community it must remain current. to freedom which is ensured by art 19. This concept
emerged from french and american revolution. It
Q2. (a) "Bureaucratic agencies, characterized by protects the rights of free speech and expression,
established procedures, specialization, leadership, movement within the country, practice of trade and
clear objectives are not ideal to handle disaster profession, peaceful assembly and formation of unions.
management." Examine with reference to the need for This is also very fundamental to western philosophical
administrative flexibility in managing disasters. (In thoughts which emerged against utilitarianism such as
about 250 words) 20 theory of justice.
There is no 'one size fits all' for disasters. Each has its
own peculiar twists and requires a unique set of These theories bestowed entire range of rights such as
solutions. The strategy in managing emergencies and the right to life, equality, right to justice, right to property
disasters is “Semper Gumby — always be flexible. on the citizens. Obviously state have power of
reasonable restrictions on them. These rights emerged
Bureaucratic agencies with emphasis on structural in aftermath of oppression of monarchy and clergy on
aspects, rules, leadership are failing to handle the poor serfs in france and discrimination against
contingencies due to more emphasis on means than Americans by European colonies. Hence all these
ends.Impact of rules on delay in following standard constitutions have pro-individual character such bill of
operating procedures.Leadership which is consultative rights in USA.These rights have included in our
and participative as per likert may not work in disaster constitution with only Right to property only
management. Less time to assess the situation and act being an ordinary right.
.
Disaster management mechanism must have Similarly concept of secular state was given by france
specialized aspects like training to take quick decisions as per which no social or religious order is supposed to
independently to leaders and staff. While meta policy have hegemony over the lives of the people and religion
making and policy making with respect to disasters is just a personal matter of the citizens. Article 25-28
consideration of expertise, intuition and situational protects citizens and grant them right to practice any
needs for leadership. Implementation methods must be religion.
as per protocol during emergency situations which must
be specific apart from regular rules. Apart from this, the principle of separation of powers
was given by french philosopher Montesquieu. This now
forms the cornerstone of all democratic constitutions
including India. Article 13 curtail power of the Acts. Reformation and rehabilitation, rather than
legislature on protection of rights and this along with penalizing the kid, is the essence of juvenile
other constitutional provisions is checked by judicial jurisprudence. Towards this end it is necessary to place
review. Similarly here Council of minister remains the juvenile in a specialized setting where his
separate but responsible to lok sabha signifying checks development is of paramount importance. If adult
and balances. wrongdoer and juveniles are kept along there is a
danger of the juvenile being corrupted by hardened
Lastly, American constitution provided us with concept criminals or being abused by them. Is not treatment
of autonomous states driving there powers directly from meted to inmates in police lock-ups and jail isn’t
the constitution. This is protected by an independent commensurate with the juvenile’s age and is probably
judiciary and is known a federal structure. going to scar him.
(c) "Autonomy to public sector undertakings is a myth." In every police headquarters a minimum of one officer
Analyse in the context of the use of government with ability and appropriate training and orientation is
expenditures by politicians who control governments at also designated as the ‘juvenile or the child welfare
different levels. (In about 150 words) 10 officer who can handle the juvenile or the child in
PSUs have been awarded financial autonomy by the coordination with the police. Special juvenile police unit,
government to ensure greater competitiveness from of which all the law enforcement officials designated as
them on the global markets. However, the profits above, to handle juveniles or youngsters will be
incurred by PSUs are occasionally redirected by the members, may be created in each district and town to
government if such a need arises. coordinate and to upgrade the police treatment of
juveniles and the children.
Autonomy to PSE is the ability to take quick decisions
with minimum red tape and formalities. Firms have been The job of special juvenile officers include taking
demanding a separation of ownership from missing children reports; probing runaway cases;
management. investigating juvenile crimes; contacting and
interviewing juveniles, their parents, school officials, and
Autonomy means independence to take decisions for complainants regarding the situation of an offense;
timely and quick action. Public accountability implies maintaining juvenile records; and appearing in juvenile
that these enterprises should be responsible to some court.
public authority and through them to the scrutiny of the
public in general. Autonomy and accountability in Public Juveniles are less knowable than adults, and time and
Enterprises cannot walk together. again exhibit fewer respect for the authority of officers.
The infantile behavior of many children and youth
Q3. (a) "Laws are enacted without involving the police means that they are more at risk to the dares of other
in the conception stage, with the result implementation youth, and they often engage in unusual behaviour when
of these laws leaves much to be desired." Examine the in the company of their peers.
role of police in the protection of children. (In about
250 words) 20. The immaturity of youth coupled with limited parental
Under no circumstances is a juvenile to be kept in a supervision and negative peer pressure presents special
police lock-up or jail. This has been the sentiment of problems for police, who repeatedly encounter juveniles
juvenile legislation since the enactment of the children with little respect for law and authority. Juveniles also
present a special trouble for law regulators as they are subsequent modifications.
less mindful of the consequences of their actions and (c) Supervision and control over the execution
of the effects of their delinquent behaviour on their of policies and programmes by the executive
victims, their parents and families, their peers, and departments or semi-autonomous field
themselves. agencies.
(d) Imitating steps to develop greater personnel
(b) "Central Secretariat is the nodal agency for and organizational competence both in the
administering the Union subjects and establishing ministry/department and its executive
coordination among the various activities of the agencies.
government." Discuss. (In about 250 words) 20 5. (e) Assisting in increasing coordination at the
The Central Secretariat is a collection of various Central level.
ministries and departments. But the Cabinet Secretariat,
which is in reality a ministry comprising more than one (c) Is there a need to dispense with the Office of the
department, is still known as the secretariat. A ministry Governor? Examine in the context of coalition
is the charge allotted to ministers. This may include one governments. (In about 150 words) 10
or more departments depending upon administrative What Article 156 (1) of the Constitution (under which a
convenience, each under the charge of a secretary. A Governor holds office during the pleasure of the
department on the other hand is an organizational unit President) dispenses with is the need to assign reasons
consisting of a secretary to government together with a or the need to give notice, but the need to act fairly and
part of the central reasonably cannot be dispensed with by Article 156(1).
Secretariat under his administrative control on which
the responsibility of performing specific functions has The President, in exercising power under Article 156(1),
been conferred. should act in a manner that is not arbitrary or
unreasonable. Where a prima facie case of arbitrariness
The Central Secretariat is a policy making body of the or mala fides is made out, the court can require the
government and is not, to undertake work of execution Union government to produce records/materials to
and based on task of policy formulation needs to be satisfy itself that the withdrawal of pleasure was for
separated from policy implementation, unless good and compelling reasons. What will constitute good
necessitated by the lack of official agencies to perform and compelling reasons would depend upon the facts of
certain tasks. the case. The “pleasure” mentioned in Article 156 was
The Central Secretariat normally performs the not whim and caprice of the party in power and political
following functions: considerations should be kept out.
1. Assisting the minister in the discharge of his
policy making and parliamentary functions. According to the court, if the aggrieved person was able
2. Framing legislation, rules and principles of to demonstrate prima facie that his or her removal was
procedure. arbitrary, mala fide, capricious or whimsical, it would
3. Sectoral planning and programme formulation. call upon the Union government to disclose to it the
4. (a) Budgeting and control of expenditure in material upon which the President took the decision to
respect of activities of the withdraw the pleasure. If the Union government did not
Ministry/department. disclose any reason, or if the reasons disclosed were
(b) Securing administrative and financial found to be irrelevant, arbitrary, whimsical, or mala fide,
approval to operational programme and their it would interfere with such a decision.
The previous UPA government, which removed some government”. In the State of West Bengal Vs. Union of
Governors soon after assuming office in 2009, took the India, the majority judgement of the Supreme Court,
stand that if after an election a party came to power while commenting upon the nature of the constitution
with a social and economic agenda and if it was found observed that it was not true to any traditional pattern
that the Governor of a State was not in sync but would of federation. However the minority judgement stated
rather be antithetical to its policies, then it could remove that India’s constitution was “a federal structure with a
such a Governor. strong bias towards the centre” Dr. P.B.Gajendragadkar,
a former Chief Justice of India, opined that though the
The government asserted that it had the right to remove constitution, partakes of some of the characteristics of
a Governor without any attribution or fault if it did not federal structures it cannot be said to be federal in the
have confidence in him or her. It had said, “If the views true sense of the term.
of a Governor came in conflict with the national policy,
there could be a ground for his removal.” The court, Many foreign scholars also looked at the constitution
however, rejected this stand. the same way, Sir Ivor Jennings, also opined that, “India
has a federation, with a strong centralizing tendency”.
Q4. (a) "There is a tendency of centralism in Indian K.C.Wheare observed that India has a “quasi-federal”
federalism, but it is not because of its institutional constitution. William Morris- Jones held the view that
framework but because of its socialist goals and Indian federalism was a kind of Cooperative federalism
centrally devised plan development." Explain the where bargaining took place between the centre and the
statement in the context of Union-State relationship. states, but ultimately a solution came out and both
(In about 250 words) 20 agreed to cooperate. Benjamin N.Schoenifield held the
Presenting the Draft Constitution before the Constituent view that there was a tendency of centralism in the
Assembly Dr. B.R.Ambedkar said that, “It establishes a Indian federation, but that was not because of its
dual polity with the union at the centre and the states at structural framework but because of its socialistic goals
the periphery, each endowed with sovereign power to be and centrally devised plan development. Because of
exercised in the field assigned to them by the these views on the nature of the Indian Constitution
constitution. The union is not a league of states, united
in a loose relationship, nor are the states the agencies Prof. Alexandrowicz had been led to remark that “India
of the union deriving powers from it. Both the union and is a case of sui generis” It may lead anyone to conclude
the states are created by the constitution and derive that the Indian Constitution was not a federation but a
their respective authority from the constitution. new contrivance designed to meet the special
requirements of the country.
The one is not subordinate to the other in its own field;
the authority of the one is coordinated with that of the (b) "Use of Information and Communication
other”. He also concluded that the Indian Constitution Technology (ICT) in Panchayat's function enhances
would be “both unitary as well as federal, according to efficiency, transparency and accountability and also
the requirements of the time and circumstances". induces mass ICT culture." Examine. (In about 250
words) 20
K.M.Munshi, a distinguished statesman and member of The use of Information and Communication
the Constituent Assembly, held the view that the Technologies (ICTs) helps government institutions to
constitution made India “a quasi- federal union invested enhance their ability to perform their tasks efficiently
with several important features of a unitary and effectively. But the use of ICTs assumes manifold
significance when applied in the context of Panchayats. ● Basic Computer Training to elected
In June 2007 the Ministry of Panchayati Raj constituted representatives and staff of Panchayats to
an expert group under the Chairmanship of Dr. B.K. create awareness and basic understanding on
Gairola, Director General, NIC, and Government of India. the usage of computers.
The expert group was entrusted with the task of ● Training on Panchayat Enterprise Suite (PES)
assessing the IT Programs of Ministry of Panchayati Raj applications. An Enterprise Suite addresses all
and recommending cost effective solutions. The the functions of an enterprise and presents an
Committee interacted with the states to assess the integrated view of the enterprise to the users by
existing status of computerization up to the Gram ensuring seamless flow of information from
Panchayat level, including the initiatives undertaken by one functional area to another. Under the PES
the State Governments. The Committee conducted field training scheme panchayat officials are trained
visits to some of the Gram Panchayats in the selected in several PES applications to ensure
rural areas where some IT initiatives had been institutionalization of these applications at the
undertaken. grassroots level
In spite of these initiatives there was a gap with respect
Three main components were identified by the Ministry to the bearing on the end users. The Ministry of
of Panchayati Raj around which the entire MMP project Panchayati Raj asserted sustained and up-to-date
was conceptualized. They were capacity building, training would be provided to end users, including audio
computing infrastructure building and connectivity. It assisted light-weight navigational CBTs (Computer
has already been stated in the previous paragraphs the Based Tutorial) facility. It further claimed the user
need for the Government to create computing manual has been prepared in such a way as to integrate
infrastructure in remote villages through public-private it seamlessly with the software so that the end user
collaboration for the success of e-governance. There is gets contextual, online help. But CBTs and user manuals
also need for affordable and wide-spectrum have been prepared in English which will prove to be a
connectivity. Information disposal at the click of a big stumbling block for the end users. It is unusual that
mouse would then be achievable. The MMP status when internet content in regional languages is
report also emphasized the need for e-Panchayats for becoming increasingly popular and have caused more
the purpose of information disclosure as it would lead people to access the net, training material for panchayat
to greater transparency of the local governing bodies as members are in the Queen’s language. This training
well as greater participation of the grassroots. Capacity material can help master trainers during State & district
building requires training of sufficient panchayat level training programs but would not be of much help
personnel at the State level as well as at grassroots to grassroots.Similarly there are several software
levels. The Ministry of Panchayati Raj recommended applications for transacting the various businesses of
training of specific number of functionaries from each the panchayats but without computer literacy common
tier of the panchayat system, who in turn would be people would not be able to access those applications.
utilized to train the remaining officials and panchayat
members. This cascading mode would help reach as Therefore there is a need to first create ICT
many grassroots members as possible infrastructure and capacity within the Panchayat
administration followed by training of local citizens in
The MMP status report pointed out two types of training the use of the ICT infrastructure and then integration of
for the institutionalization of e- Panchayats. the ICT facility with the need and requirement of the end
users.
(c) "Judicial review of administrative tribunal's
decision defeats the very objective of establishing
tribunals." Comment with reference to Central
Administrative Tribunal. (In about 150 words) 10
Tribunal is a special court, established by the
government to inquire into a specific matter. it does not
follow law of evidence but follows principles of natural
justice instead. It is inexpensive and efficient as it is
manned by administrative experts who understand the
administrative matters better than legal experts and
deliver quick justice. Tribunals share the burden of
ordinary courts but at the end of the day they perform
judicial and quasi-judicial functions. Judicial review of
their decisions does not defeat their objective because: Section B
1. Administrative law puts the public official in a 5. Attempt the following in not more than 150 words
better position than the public. Judicial review each: 10x5=50
acts as a safeguard, in addition to (a) "Public Administration today tends to be less public
administrative tribunals, against administrative in quantitative terms, but more responsive to public
excesses. needs than before in qualitative terms." Examine with
2. A uniform code of procedure in administrative reference to citizen-centric administration.
adjudication is not there. Judicial review can Since the onset of good governance paradigm the role
lend strength to the tribunal by interpreting law. of public administration has undergone a sea change -
3. Administrative tribunals are manned by 1. The welfare state has been replaced by a
administrative experts who may not have a regulating state, where the state is no more
background of law. Tribunal's decisions may producing and distributing goods but making
sometimes violate the principles of natural fair rules for markets to flourish. Eg - financial
justice. regulators.
4. Since they are created by the government, they 2. In welfare state, there was no need for
cannot be above the law otherwise even though customer protection as state was the only
they may serve their purpose they will negate service provider. In order to protect customers
the principle of rule of law. from markets institutions like FSSAI,
Even in Droit Administratif of France, the process of Competition Commission were created.
judicial review existed indirectly through 'Tribunal des 3. The NPM paradigm has brought about
Conflits' and 'Council d' Etat'. Judicial review should be efficiency in governance. Eg - PDS system has
seen as a positive and necessary development in been overhauled to overcome the loopholes and
today's democracy where there has been a phenomenal make services available at door steps with
increase in the functions of administration. ease. BAPU, JAM, Bhamashah are initiatives in
this direction.
4. There is increased accountability as people are
becoming aware about their rights.
Development has been replaced by
the larger spatial bodies and enjoying the Maximum informed judgements and decisions by users of the
freedom of deciding the affairs of the locality. information.
Gandhi wanted political power to be distributed among
the villages in India. Gandhi preferred the term ‘Swaraj’ From the above the following attributes of accounting
to describe what he called true democracy. This emerge :
democracy is based upon freedom. Individual freedom 1. Recording : It is concerned with the recording
in Gandhi’s view could be maintained only in of financial transactions in an orderly manner,
autonomous, self-reliant communities that offer soon after their occurrence In the proper books
opportunities to the people for fullest participation. The of accounts.
Gandhian ideas of Gram Swaraj and Panchayat Raj 2. Classifying : It Is concerned with the
system can become vehicles for ushering in the much systematic analysis of the recorded data so as
needed social and political change by including all the to accumulate the transactions of similar type
stakeholders in the process of decision making and at one place. This function is performed by
public policy formulation. maintaining the ledger in which different
accounts are opened to which related
(b) "Accounting is the essence of producing promptly transactions are posted.
and clearly the facts relating to financial conditions 3. Summarising : It is concerned with the
and operations that are required as a basis of preparation and presentation of the classified
management." Substantiate the statement in the data in a manner useful to the users. This
context of accounting methods and techniques in function involves the preparation of financial
government. (In about 250 words) 20 statements such as Income Statement, Balance
The main purpose of accounting is to ascertain profit or Sheet, Statement of Changes in Financial
loss during a specified period, to show the financial Position, Statement of Cash Flow, Statement of
condition of the business on a particular date and to Value Added.
have control over the firm's property. Such accounting 4. Interpreting : Nowadays, the aforesaid three
records are required to be maintained to measure the functions are performed by electronic data
income of the business and communicate the processing devices and the accountant has to
information so that it may be used by managers, owners concentrate mainly on the interpretation
and other interested parties. Accounting is a discipline aspects of accounting. The accountants should
which records, classifies, summarises and interprets interpret the statements in a manner useful to
financial information about the activities action. The accountant should explain not only
of a concern so that intelligent decisions can be made what has happened but also (a) why it
about the concern. The American Institute of Certified happened, and (b) what is likely to happen
Public Accountants has defined the Financial under specified conditions.
Accounting as "the art of recording, classifying and
summarising in as significant manner and in terms of (c) Explain the important recommendations of V. T.
money transactions and events which in part, at least of Krishnamachary Committee (1962) on Indian and State
a financial character, and interpreting the results Administrative Services and problems of District
thereof". American Accounting Association defines Administration. (In about 150 words) 10
accounting as "the process of identifying, measuring, Like the IAS officers, State Civil Service officers should
and communicating economic information to permit learn important categories of work by holding the
concerned posts and should do case work and receive The principal duties which have to be undertaken within
special instructions in law and order problems. the district and which, in turn, raise a variety of
administrative and other problems are:
Establishment of training institutes in States where 1. preparation and implementation of village
there are none either individually or jointly for two or agricultural production plans and plans for
more States with the help of the National Academy is basic minimum amenities for the village based
suggested. The recommendations regarding the on full utilisation of manpower and other
institutional training are (a) common foundational resources and also on the obligations of
course for officers of State Civil Services and officers of beneficiaries in respect of irrigation and soil
State technical service; (b) instructions in the laws and conservation, etc;
regulations etc. pertaining to their future services for 2. preparation and implementation of block
the direct recruits to the State Civil Services; and (c) development plans;
fixation of the period of training in the institutes for 3. preparation and implementation of district
these officers at six months. The need for coordination development plans;
between the State training institutes and the orientation 4. assisting in the implementation of land reform
and study centres run by the Ministry of Community programmes, assisting the economically
Development, Panchayati Raj and Cooperation is weaker sections of the village community,
stressed. Organisation of refresher courses for State developing cooperatives and rural industries,
Civil Service officers who have put in 6 to 8 years of and developing facilities for education, adult
service in the State training institutes and conducting of literacy, rural-sanitation, etc.
seminars and refresher courses for senior officers at the
Central 1nstitutions are suggested. Q7. (a) "The 73rd Amendment, it is felt, may
accentuate fiscal indiscipline by establishing between
While affirming the objective of introducing a States and Local Governments a system of transfers
democratic-structure of administration within the similar to the one in place between the Central and
district above the village level, the National State Governments." (World Bank) Comment (In about
Development Council approved the proposals of the 250 words) 20
Planning Commission that the democratic structure in The 73rd Amendment to the Constitution made India
the district should be built on the foundation of the one of the most politically decentralized countries in the
village panchayat and the village cooperative; developing world. By the Constitution and in practice,
democratic institutions at the district, block and village local government has an urban and a rural stream. Rural
level should form a connected structure of local governments are divided into three levels: district
administration; that while the overall responsibility for (zilla), block (taluk), and village (gram) panchayats. The
administration, finance and planning will continue to design and implementation of the decentralization
vest in the Static Government the responsibility for local program are a state government responsibility. However
planning and implementation should devolve on the implementation of key aspects of the program is
democratic bodies within the district. The State Five lagging. Districts and blocks have no taxing powers and
Year Plans as well as the Annual Plan should be broken little expenditure autonomy. Gram panchayats are
up into district and block plans and in relation to these closest to the people, have some independent taxing
each• village should have its own ,development plan. power, and some discretion in expenditure decisions.
With the passage of the 73rd and 74th amendments to 5. problems of coordination
the Constitution, the FC also has to recommend 6. Balance between the executive and the
measures to augment states’ resources, in view of their deliberative authority, is yet to be evaluated
obligation to fund the third tier of governments. fully.
Large-scale explicit transfers will need constitutional
amendments, and will also raise thorny issues of how Operational Challenges:
much the centre can bypass state governments in 1. Scarcity of financial resources
directly funding urban local bodies and panchayats. 2. Low level of participation
3. Ineffective leadership
Unlike the PC, the Finance Commission (FC) is a
creature of the Constitution, formed every five years by (c) "Self-Help Groups (SHGs) have contributed to a
the president of India. It's primary task is to recommend change in the role of rural women in development-from
the vertical division of tax proceeds between the centre symbolic participation to empowerment." Discuss. (In
and states. And then to further recommend the about 150 words) 10
horizontal distribution of the states’ share among The experience of micro-credit began in the early 1950s
various states. as a social development initiative to alleviate rural
poverty created position impact on cash starved poor
For better fiscal decentralisation, the World report says and women in rural areas. The results of the
gram panchayats must be given more power as they programmes are increased confidence, sense of
"can best detect and respond to people's preferences self-worth, higher conscious of their rights, greater
and needs".Panchayats should be freed from awareness and exposure to the outside world, greater
implementing programmes of state or Union decision- making with the household and outside
governments. "States should avoid devolving activities and improved health and nutrition of family
responsibilities to panchayats for schemes designed members.
completely by a higher-level government, transferring to
local government The role of the facilitator is important in determining the
staff that they did not recruit and cannot fire, or asking extent of autonomy in any group. Cases, particularly
them to spend their resources maintaining assets that from region revealed that external support is more
they did not create." critical in women‟s groups. Poor women being
overburdened with work neither have time nor the
(b) "Municipal Administration in India faces both insight to open their mouths. Also they lack confidence
structural and operational challenges." Examine in the and skills to mobilize initially. Even their husbands
context of post-74th Amendment Act. (In about 250 surrender to the leadership of the facilitator as they too
words) 20 lack courage to antagonize him if any such situation
arises. Thus, there is hardly any autonomy in
Structural Challenges to Municipal Administration: decision-making by women of this group. This clearly
1. Excessive State control indicates that for the women to be able to voice their
2. Postponement of elections demands and not become puppets in the hands of the
3. Personnel management external agency, mutual trust and bonding between
4. Diffusion of authority, multiple committee members imperative.
system and tensions between the deliberative
and the executive wings
Q8. (a) "There is both criminalization of politics and making allowed to public administrators. Regulatory
politicization of criminals in India." Examine and agencies have the power to exercise this type of
identify the challenges they cause for law and order discretion in their day-to-day activities, and there have
administration. (In about 250 words) 20 been cases where regulatory agencies have abused this
power. Administrative
Criminalization of politics has challenged - law can help these agencies get on the path of following
1. Democratic principles, as votes are bought. regulations, serve the public, and in turn, a reflection of
2. People are not free to exercise voting power as the public's values and beliefs.
muscle power hinders discretion.
3. Decline in the level of debates and discussions There's a need for administrative discretion because the
in legislatures. Questions from members have public’s interest could be at risk if several agencies were
been at an all time low. not following laws and regulations. Administrative
4. Loss of parliamentary credibility, hence discretion is important because without it, it could lead
loosened accountability of executive. to arbitrary and unreasonable use of such discretion,
5. Parochial and communal politics, leaders with which may lead to destruction of basic principles of
narrow vision and borrowed ideas can’t be administrative law. Although this type of discretion isn't
expected to draw futuristic politics. laid out in the job-description of a bureaucrat/public
servant, it is necessary because citizens use these
On the other hand, politicization of criminals is bureaucratic institutions every day; such as the D.M.V. ,
legitimized and used for unfair means. It has serious public schooling, and numerous others. Street-level
challenge as well - bureaucrats have to deal with the provision of service as
1. Blanket from judicial process as parliamentary well as translating vaguely worded mandates into
privileges come in way of judicial proceedings. specific cohesive and comprehensive language to
2. Politicized criminals tend to misuse state organize protocol.
powers and machinery to their advantage.
3. Dampens morale of nation which reels under Administrative discretion allows agencies to use
poverty and hunger, loss of any expectation. professional expertise and judgment when making
4. Affects neutrality of civil servants, hence loss decisions or performing official duties, as opposed to
of rationality in policy making and only adhering to strict regulations or statuses. For
implementation. example, a public official has administrative discretion
5. Makes administration status quoist. when he or she has the freedom to make a choice
6. Over emphasis of power, even good reforms are among potential courses of action. The failure to
objected to, unhealthy competition takes center exercise reasonable judgment or discretion is an abuse
stage. of discretion.
(b) "The basic ethical problem for an administrator is (c) Justify the constitutional provision to treat certain
to determine how he/she can use discretionary power expenditure as charged upon the Consolidated Fund of
in a way that is consistent with democratic values." India. (In about 150 words) 10
Comment with reference to corruption in Non-votable charges are called Charged Expenditures;
administration. (In about 50 words) 20 and no voting takes place for the amount involved in
In public administration, administrative discretion refers these expenditures for their withdrawal from
to the flexible exercising of judgment and decision Consolidated Fund of India. This means that they have
Dear Candidates, The secret to success in Public Administration lies
There are certain ways to catch the questions in in writing practice and focused reading. Without
the Mains examination. Apply following tricks in this, it is not possible to score fair marks in this
your Mains examination for getting secured high optional and writing practice and focused reading
marks. under an expert guidance contribute in securing
high marks. It is the strategy that makes the
1. Practice Previous years and model question difference between 180 marks and 320 marks.
papers and get evaluated by an expert of The whole syllabus of public administration is just
the subject. based on a few basic concepts and these move as
2. No read to read a book end - to - end except an undercurrent to the subject. One has to decipher
‘Administrative Thinkers by Prasad and them and try to establish their linkages with all the
Prasad’. topics .
3. Seriously read only a few books for making
your foundation otherwise other books are 1. Recognise the context of the question- It may
only for reference. be…..
4. Magazines like ‘India Today/ Governance ● Parliamentary versus Presidential
Now’ and Newspapers like ‘The Hindu/ The Government
Indian Express’ can be helpful for you. ● Fact vs Value Debate
5. Prepare mnemonics sheets to remember ● Informal vs Formal Organisation etc.
various facts. Read them again and
again,especially before the exam date. 2. Recognise the Statement Giver- This way you
6. Read case studies from The Hindu, can….
Frontline, Yojana and EPW. ● Guardians of traditions…… - Paul Pigors
● moral act and moral agent…. – Ordway Tead
● various kinds of theories have grown on applying the related concepts of Paper I in
around…. – Peter Self Paper I and II and ; related concepts of Paper II in
● discipline is in jeopardy ,order disturbed Paper II and I. It is also known as ‘Concept of
and stability threatened…. –Henri Fayol Overlappings’.
● quasi-federal…. – K C Wheare In the comments section you are required to form
linkages from three to four topics , in 30 marks
3. Recognise the key words of question- e.g. question five to six topics and in 60 marks question
Question-“In a hierarchy every employee tends to eight to nine topics. This one is key for getting high
rise to his level of incompetence.” Comment. marks in Public Administration.
It is Peter Principal (Statement Giver) and the Question-“In a hierarchy every employee tends to
context of the question is Training (level of rise to his level of incompetence.” Comment.(20
incompetence requires an employee to be trained) Marks)
and key words are hierarchy, employee, level of Linkages-
incompetence. Make an interlinkages of all these 1. Training and Employee
three words and start writing your answer. 2. Training and Hierarchy
a. Explain the meaning of all keywords of your 3. Training and level of incompetence
question. 4. Training and Promotion
b. Explain correlation of keyword with the
understanding of the entire sentence. Question-Elaborate the World Bank’s Concept of
Good Governance.(30 Marks)
4. Analyse your answer- In the light of following Linkages-
concepts 1. Good Governance and Kautilya
a. (Administrative) Structure 2. Good Governance and Parliamentary
b. (Administrative) Process Democracy
c. (Administrative) Behaviour 3. Good Governance and Human Rights
d. (Administrative or Others) Ecological 4. Good Governance and E-Governance
Frameworks 5. Good Governance and Civil Society
6. Good Governance and Public Service
5. Go for Linkages – Linkages in question below
can be Meaning of ‘Linkages’ in Public Question-Democracy and good governance are
Administration contradictions in terms. Discuss with
As we all know Public Administration is most examples.(60 Marks)
interdisciplinary among all social sciences as a Linkages-
result it is highly dynamic and analytical. 1. Good Governance and Misgovernance
Linkages are very important in the context of Public 2. Good Governance and the Rule of Law
Administration. Since Public Administration is 3. Good Governance and Responsible
highly analytical, ‘Linkages’ mean thrust should be Democracy
4. Good Governance and good government of ● Do not give a long introduction this may
society lead to loss of focus and attraction of the
5. Good Governance and Sustainable examiner.The first sentence should have a
Environment direct bearing of the question or statement.
6. Good Governance and Transparency This is the sentence which contains context
7. Good Governance and Decentralization and key words both with statement-giver.
8. Good Governance and Education for All ● Before suggesting any cure take the
The search for good governance is an endless one. administrative feasibility test of your
In today’s complex world , the government alone is suggestion.
not capable of coping with myriad problems. ● Write answers like brilliant graduate and not
Democracy is the most popular form of the like a confused philosopher.
government although it was never a method of ● Use more quotes from thinkers to ‘certify’
governance which was ever regarded as Good. your stand in the answer.
● Don’t write General Studies answers for
6. Update your answer with the latest Public Administration Paper 2. Write
developments of Seminars/Conferences related to Answer like a Public Administration
Public Administration, enrich your answers with the student.
administrative committees reports –National and ● Always complete your answer with
International and Journals of Indian Institute of conclusion however small or big you may
Public Administration (IIPA). write. Even if you have little time to
conclude beautifully.
7. Use Diagram and Charts in your answer- It
should be explained as per the requirements of the
question.
NOTE-
● ‘Thinking’ and ‘linking’ the whole
syllabus/topics along with a proper
sequence in any answer.
● Practice a lot of tests from anywhere you
get.
● Identify the weak areas and focus
accordingly.
● Make a note of the mistakes that you make
in the tests or interactive session and try to
rectify them.
● The examiner only expects you to write a
simple logical answer with clarity.
Detailed Syllabus of UPSC - Public Administration
content, process and contemporary; Theories of
PAPER - I Leadership: Traditional and Modern.
Administrative Theory ● Organizations: Theories - systems,
● Introduction: Meaning, scope and significance contingency; Structure and forms: Ministries
of Public Administration; Wilson's vision of and Departments, Corporations, Companies,
Public Administration; Evolution of the Boards and Commissions; Ad hoc and advisory
discipline and its present status; New Public bodies; Headquarters and Field relationships;
Administration; Public Choice approach; Regulatory Authorities; Public - Private
Challenges of liberalization, Privatization, Partnerships.
Globalization; Good Governance: concept and ● Accountability and control: Concepts of
application; New Public Management. accountability and control; Legislative,
● Administrative Thought: Scientific Executive and Judicial control over
Management and Scientific Management administration; Citizen and Administration; Role
movement; Classical Theory; Weber's of media, interest groups, voluntary
bureaucratic model - its critique and organizations; Civil society; Citizen's Charters;
post-Weberian Developments; Dynamic Right to Information; Social audit.
Administration (Mary Parker Follett); Human ● Administrative Law: Meaning, scope and
Relations School (Elton Mayo and others); significance; Dicey on Administrative law;
Functions of the Executive (C.I. Barnard); Delegated legislation; Administrative Tribunals.
Simon's decision-making theory; Participative ● Comparative Public Administration: Historical
Management (R. Likert, C. Argyris, D. and sociological factors affecting
McGregor). administrative systems; Administration and
● Administrative Behavior: Process and politics in different countries; status of
techniques of decision-making; Comparative Public Administration; Ecology and
Communication; Morale; Motivation Theories -
administration; Riggsian models and their ● Philosophical and Constitutional framework of
critique. government: Salient features and value
● Development Dynamics: Concept of premises; Constitutionalism; Political culture;
development; Changing profile of development Bureaucracy and democracy; Bureaucracy and
administration; 'Anti Development thesis ``; development.
Bureaucracy and development; Strong state ● Public Sector Undertakings: Public sector in
versus the market debate; Impact of modern India; Forms of Public Sector
liberalization on administration in developing Undertakings; Problems of autonomy,
countries; Women and development - the accountability, and control; Impact of
self-help group movement. liberalization and privatization.
● Personnel Administration: Importance of ● Union Government and Administration:
human resource development; Recruitment, Executive, Parliament, Judiciary - structure,
training, career advancement, position functions, work processes; Recent trends;
classification, discipline, performance Intergovernmental relations; Cabinet
appraisal, promotion, pay and service Secretariat; Prime Minister's Office; Central
conditions; employer- employee relations, Secretariat; Ministries and Departments;
grievance redressal mechanism; Code of Boards; Commissions; Attached offices; Field
conduct; Administrative ethics. organizations.
● Public Policy: Models of policy-making and their ● Plans and Priorities: Machinery of planning;
critique; Processes of conceptualization, Role, composition and functions of the Planning
planning, implementation, monitoring, Commission and the National Development
evaluation and review and their limitations; Council; ``Indicative'' planning; Process of plan
State theories and public policy formulation. formulation at Union and State levels;
● Techniques of Administrative Improvement: Constitutional Amendments (1992) and
Organization and methods, Work study and decentralized planning for economic
work management; e-governance and development and social justice.
information technology; Management aid tools ● State Government and Administration:
like network analysis, MIS, PERT, CPM. Union-State administrative, legislative and
● Financial Administration: Monetary and fiscal financial relations; Role of the Finance
policies; Public borrowings and public debt Commission; Governor; Chief Minister; Council
Budgets - types and forms; Budgetary process; of Ministers; Chief Secretary; State Secretariat;
Financial accountability; Accounts and audit. Directorates.
● District Administration since Independence:
Changing role of the Collector; Union state-
PAPER - II local relations; Imperatives of development
Indian Administration management and law and order administration;
● Evolution of Indian Administration: Kautilya's District administration and democratic
Arthashastra; Mughal administration; Legacy of decentralization.
British rule in politics and administration - ● Civil Services: Constitutional position;
Indianization of public services, revenue Structure, recruitment, training and
administration, district administration, local capacity-building; Good governance initiatives;
self-government. Code of conduct and discipline; Staff
Suggested Reading Books for Public Administration
Blanchard, Organisational behavior - Stephen P.
Robbins
Suggested Reading Books for Public ● Organizations- Public administration in theory
Administration (Paper - I) and practice - M.P. Sharma B.L Sadana and
● Administrative Thinkers – Prasad and Prasad Harpreet Kaur
● New Horizons of Public Administration – Mohit ● Accountability and control- Public
Bhattacharya. administration in theory and practice - M.P.
● Public Administration – M. Laxmikant Sharma B.L Sadana and Harpreet Kaur
● Public administration in theory and practice - ● Administrative Law-: Administrative Law -
M.P. Sharma B.L Sadana and Harpreet Kaur Massey / M.P. Jain
● Public Administration : Paper I Specific Books ● Comparative Public Administration- Public
Chapter wise administration a comparative perspective -
● Introduction -: New Horizons of Public Ferrel Heady or Comparative public
Administration- Mohit Bhattacharya, Public administration – Ramesh K Arora
Administration and Public Affairs- Nicholas ● Development Dynamics- Social Theory
Henry, Development Administration and Development
● Administrative Thought - Administrative Ethics- Mohit Bhattacharya
thinkers-Prasad and Prasad, Organisation and ● Personnel Administration: Personnel
Management: A Critique of Western Theories- Administration in India- S.L. Goel, Public
D. Gvishiani Personnel Administration- Glenn Stahl
● Administrative Behaviour- Administrative ● Public Policy- Public Policy - R. K. Sapru
thinkers-Prasad and Prasad, Managing ● Techniques of Administrative Improvement-
organizational behavior - Paul Hersey & Kenneth New Horizons of Public Administration- Mohit
Bhattacharya
IAS Mains General UPSC संघ लोक सेवा NEW! Tamil Nadu
Studies Previous 10 आयोग (Main Exam) GS NEW! OLD NCERT Text
Board Textbooks
Years Question Papers सामा अ यन -प Books PDF
PDF
https://iasexamportal.com/ebook