YOJANA

Fire on the Mountain

T he grand narrative of democracy can be said to define the modern world. People have created
revolutions with their blood, sweat and tears only to realise that it has to be thrown out with even
greater sacrifices. Nations have succeeded in casting away the yoke of foreign rule only to discover
that they have to fight anew against their own system which remained infected with the ethos of the
repressive and exploitative past. Ordinary men and women struggle to save the dream of a life of dignity
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MARCH 2014

ADMINISTRATIVE REFORMS
A DEVELOPMENT MONTHLY

Governance: Civil Service & Politician Interface

B.K. Chaturvedi
Special Article
` 10

Strengthening Rural Lending

Nachiket Mor & Deepti George

Emerging Paradigms of Administrative Reforms

R. B. Jain

being washed away by a system that refused to wipe their tears and listen to their sighs. Kafka's lament Reforming Public Services: Embracing a New Management Philosophy
B.P. Mathur

Administering in an Age of Global Regulation

Biju Paul Abraham

‘every revolution dissipates and leaves behind only the slime of a new bureaucracy’ notwithstanding,
democracy has remained the lodestar on the political firmament of nations.
Perhaps this picture is a shade darker than reality. Indeed we have covered a long distance from where
we started. There is no doubt we have had our share of success in bringing a sliver of smile on the face
of our people. Through trials and tribulations, the country has displayed enough tenacity and grit to hold
on to the chosen path and forge ahead to mark its place in the world. However, we need to sit down and
ponder whether the vision of democracy we assiduously built over long years of toil has faltered in realising its promises made
at the stroke of ‘midnight hour when the world was sleeping but India had awoken to life and freedom’?
In fact, all grand narratives require a structure and framework for their realization. The civil services, the administrative
apparatus of the state and the architecture of governance provide the instruments to actualise the vision into reality. India inherited
an extensive and well defined administrative set up from the British but the challenge to change its spirit and motivation, attitude
and direction remained to be accomplished. The transformation of society depended crucially upon the transformation of this
apparatus itself from being Sahibs to Sewaks. The ‘steel frame’ needed to flow with the spirit of service without which it becomes
a cage arresting change, frustrating innovation and ultimately becoming the cause of social unrest, disaffection and violence.
We should look at the idea of administrative reform in this broader context. On the face of it, administrative reform may sound
like a mundane and humdrum concept but the truth is that it has a deep implication for the quality of life people lead. After all, it
is the administration in all its varied forms- from a patwari to the secretary to the government of India, from a traffic constable
to the commissioner of income tax- which is the face of the state for the people. Reform in administration is sine qua non if we
wish to see a fundamental transformation of our country.
It is a matter of some satisfaction though, that scores of innovative experiments have been carried out in the country to make
the administration people oriented, responsive, transparent, effective and efficient. Legislative measures like RTI and Lokpal are
seen to be systemic milestones to put a leash on corruption. However, administrative reform is a continuous process which has to
evolve in response to the changing realities of the world. The furious pace of technological change in the world, rapid globalisation
and growing specialisation in various fields of administration require the administrative structure to be agile and flexible.
It must be remembered that administration ‘provides social legitimacy to the system’. In recent times, the country has
witnessed a heightened sense of anger and frustration among people which points to a deep erosion in the perceived legitimacy
of many of our cherished institutions of governance. However, we can repose our trust in the resilience of this great nation to
emerge pulsating with a new energy and vision for future. Hasn’t the poet said-
If there’s fire on the mountain
Or lightning and storm
And a god speaks from the sky
that means someone is hearing
The outcry and the birth-cry
Of new life at its term.
(Seamus Heaney)

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 YOJANA

Exile of Buddha

T
he idea of federalism as an organising principle between different levels of a state is quite
old. Greek city states had it. Lichchavi kingdom of northern India in the 6th century BC is
a celebrated example of a republican system. In the modern world, this continues to be the
most popular system in larger countries like US, Brazil, Mexico and India. In fact, the European
Union is a recent example of the idea of federalism being implemented at a trans-national level
to leverage its various advantages in the economic sphere. It may perhaps look surprising that
close to three dozen nations have been born after 1990 either by seceding from a larger federal
structure or due to war and other factors. In a large number of cases, the mal-functioning of
the federal structure gave rise to ethnic and nationalistic strife which finally culminated in the
emergence of new countries.
Scholars have noted that there is a ‘federalist ferment’ across the world but there is no single
model of federalism. While Montesquieu talked about the ‘confederate republic constituted by sovereign city states’,
federalists like James Madison pleaded the case for a ‘compound republic’ with an ‘overarching central government that
can override against narrow local interests’. The architect of Indian Constitution, Baba Saheb Ambedkar believed that for
a culturally, ethnically and linguistically diverse and heterogeneous country like India, federalism was the ‘chief mark’,
though with a strong unitary bias. This understanding, which was shared by Pt. Jawaharlal Nehru, Sardar Patel and other
national leaders stood at sharp variance with Gandhi’s idea of federalism who was a votary of decentralisation and devolution
of power to the lowest unit of Panchayat.
Globalisation has also deeply impacted the concept of federalism. As the countries of the world become more and more
tightly integrated, the external influence of powerful financial and political entities tends to limit the freedom of action on
the part of states. It is often reflected in the weakening of public institutions. This process has also generated a phase of
‘competitive federalism’ where provincial governments compete with the centre to attract investment, garner capital and
technology for their benefit. India, on the other hand, has taken forward the path of cooperative federalism by gradually
loosening the control of the central government over the states in financial matters and restricting itself more and more to
policy issues in certain areas only. It can be argued that cooperative federalism could be the path to make best use of the
‘different advantages of the magnitude and littleness of nations’ as Tocqueville had once remarked.
It is important to underline that federalism, in its true sense, can be successful only by broadening the base of democracy
and deepening its roots. In the case of India, a deep respect for diversity of languages, cultures, ethnicity and religion as
hallmarks of its political and civilizational existence could nourish federalism and strengthen the nation. It is the only way
India could take forward its great tradition of federalism which goes back to the time of Buddha.
Let us end with a story. Around 5th century BC, the republican states of Lichchavi and Sakya had an institutional system
called Santhagara which was used to debate issues of vital importance to the republic, including disputes between various
constituents of the republic. Buddha was initiated into the Sakya Santhagara at the age of 20. When he was 28, there was
a dispute over sharing of water of Rohini river between the Sakyas and Koliyas. The Sakya military commander was in
favour of war on Koliyas which Siddhartha opposed. But the peace proposal of Siddhartha was defeated miserably during
voting. Siddhartha had to face exile. Buddha may have been defeated and exiled but the idea of the republic and settling
of disputes without the use of force has survived. The republican spirit has survived as a guiding spirit for nations.
And finally, it is the time to say adieu to the readers of Yojana with whom the last two years have been a period of
exploration and sharing of ideas on an exciting range of subjects. Yojana would continue to provide stimulating and thought
provoking material to involve the readers in this great journey of nation building.

YOJA
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Breaking Barriers

A lbert EINSTEIN had learning impairments. Yet, he developed Theory of Relativity

which greatly affected the way people view and understand the world today. Thomas
Alva Edison had hearing impairment, but his invention Electricity is more responsible than
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MAY 2016 A DEVELOPMENT MONTHLY `22

anything else for creating the modern world we live in.

Louis Braille was visually impaired, but his creation Braille, known by his name, enabled
blind people worldwide to read and write. They are the people who proved that it is not
disability but one’s ability that counts.
There was a time when disability - physical or mental, was considered a curse both on
the family of the disabled person and the person himself. It was believed that it was God's
retribution for sins committed in previous birth. Thankfully, modern science has helped to clear
such misapprehensions. Disability is now being accepted as a curable medical condition. The
disabled are no longer expected to be treated as outcasts of society. Science and innovation
has provided tools to supplement their disabilities. Braille, Jaipur foot are some examples which have bettered the lives of
the physically disabled. Mentally challenged have also benefitted with greater recognition and responsiveness about their
needs in the society.
Awareness on their special educational needs is also much more than earlier. In fact, there is now a school of thought
that the differently abled should not be going to special schools but integrated with the regular schools as part of creating
an inclusive environment. Social and cultural integration, is still an issue. But even this will surely change soon and the
differently abled will be perceived as an integral and vital component of our society and nation.
Information and communication technology has empowered the differently abled to participate actively in nation
building. There has been a spurt in efforts to provide greater accessibility for differently abled to provide them a barrier
free environment and enable them to live independently. Accessible India Campaign is the product of government’s vision
to have an inclusive society in which equal opportunities and access is provided for growth and development of persons
with disabilities to lead productive, safe and dignified lives.
Percentage of persons with disabilities being employed by the recruiters has also seen a rise in recent past, thus marking a
shift towards financial inclusion of such population. Better skill opportunities have resulted in a more qualified and competent
workforce which in turn has increased employer confidence in capabilities of persons with disability. Government has also
made provisions to provide scholarships and funding for their innovative ideas to support their livelihood. Differently abled
are now found in almost all walks of life - be it government employment, entertainment industry or even sports.
There is a plan, a purpose and a value to every life, no matter what its location, age, gender or disability. The need is
to recognize the fact that persons with disabilities are the most inspiring people. Give them an equal opportunity and they
will prove to be much stronger and capable with their different abilities than the “normal” people. And if we all have a
mindset to accept this fact, then we might just see a change in the society.  q

YOJANA May 2016 5

 YOJANA
seeking solace

D
o you often feel aggrieved because you have had an inflated electricity bill and
when you go to the electricity office for a clarification you are unceremoniously
shooed away. Or, you are getting an unfair amount of call drops and you don’t
know whom to complain to for a redressal. Or, you have to get your property changed
to your name and you are running from pillar to post in the concerned office and it just
doesn't seem to be getting done. Most of us, at some time or the other, have had to face
such problems which need redressal from some government official or organization. And,
every time one attempts to find a solution to the problem or even want a simple clarification,
there is no one to give even a proper hearing.
No system is perfect. There are likely to be shortcomings always. However, if these
shortcomings start impacting the basic interest of the public, they have legitimate claims
for the redressal of their grievances. A complaining customer can be a good opportunity
to show how good you are. That is why public grievance redressal is said to be the corner
stone of any well governed democracy.
Our Constitution does confer various rights on its citizens. However, the lack of an effective mechanism to
deal with everyday grievances of people is still one of the weaknesses of governance in India today. Various
governments, in recent years, have attempted to introduce initiatives to address the grievances of the common man
as a good governance attempt. One of the earliest attempts to address the situation was the Citizen’s Charter which
was first introduced in India in the 1990s. The Department of Public Grievances(DARPG) subsequently took on the
task of formulating a Citizen's Charter. The components of the Citizen's Charter as outlined by DARPG include the
vision and mission statement of the organization, details of grievance redress mechanisms and how to access them.
Unfortunately, the Citizen's Charters of many organizations just remained a dormant document and the consumer
was left more or less where he was earlier.
That was when the Right to Information Act was introduced in 2005. The RTI proved to be a landmark reform in
public grievance redressal because it put the onus of redressal on the officials dealing with the particular issue and
also introduced a penalty clause. This not only forced the concerned official/organization to address the grievance in
a time bound manner but also reduced corruption since the complainant had access to all documents relating to the
issue including file notings and enforced a situation of accountability.
With the growing concept of e-governance and “Minimum Government, Maximum Governance’, there has, of
late been, an increased focus on web and mobile based grievance redressal platforms. Some of the recently introduced
systems include the CPGRAMS (Centralised Public Grievance Redress and Monitoring System) – a web based public
grievance redressal mechanism - initiated by the DARPG to streamline and unify the process of receiving grievances
relating to various Ministries/Departments; PRAGATI(Pro-active government and Timely Implementation), an
interactive platform to address common man’s grievances and simultaneously monitor programmes and projects of
Centre as well as State Governments, MyGov, a citizen engagement platform and E-Nivaran a paperless mode for
redressal of tax related grievances etc. Various regulatory mechanisms have also been created to address grievances
related to services like telecommunications (TRAI), banking (Banking Ombudsman), health services(MCI and
IMA), etc.
Women are often the most vulnerable part of the population, prone to abuse at home and at the work place.
Though there are various acts to protect women from domestic violence and abuse at home and at workplaces like the
Sexual Harassment of Women at Workplace Act, 2013; Dowry Prohibition Act, 1961; Domestic Violence Act 2005,
etc, women still end up being at the receiving end. To address these issues, the government recently introduced SHe
Box (Sexual Harrassment electronic box), to provide a single window access to every woman to complain against
any kind of harassment.
The central theme of democracy is that the government is accountable to the citizens for all policies and activities.
And only an effective and efficient public grievance redressal mechanism can build trust with the citizens and assure
them that it is a government 'of the people and for the people'.

YOJANA February 2018 5

 YOJANA
Development Agenda

E
very good ruler since time immemorial has aspired that his kingdom is always
moving on the road to development, be it the governors of the Indus Valley
civilization, the Egyptians, Romans, Greeks or the Mesopotamians. In more
recent times, emperors like Akbar, Krishnadevaraya, Chandragupta Maurya, Rajaraja
Chola, Tipu Sultan et al tried to create good administrative systems for the good
governance of their kingdoms. All these rulers understood the importance of all-round
socio- economic development of their people for the kingdom to prosper.

Many paradigms are taken into consideration for the true development of the nation
today. Development today is not thought of just in terms of economic growth of a nation but
includes parameters in sectors such as education, health, agriculture and farmers' welfare,
skill development and employment opportunities for youth.

Indian Government has also not lagged behind in its efforts to promote development of the
country. The mantra in the country today is inclusive growth so that the fruits of development percolate to the poorest of the
poor. The policies of the government are geared to ensure this. Beginning with economy, the government has rationalized
the tax structure with introduction of measures like GST and banking sector reforms. GST is so far the biggest tax reform in
the country which will go a long way in increasing the tax buoyancy in the country. Key direct reforms like establishment
of Tax Information Network(TIN), Electronic Return Acceptance and Consolidation System(ERACS) eSahyog, etc have
simplified the direct tax regime.

The world is getting digitized and can India remain far behind? The rapid adoption of digital technology across various
sectors through business process engineering, technology and data analytics is reshaping the way government programmes
are being designed and implemented. Direct Benefit Transfer, Public Finance Management System, e-marketplace, Digital
payment transactions through BHIM App, etc are making government responsive through a new interface.

The Swachh Bharat Mission has truly rolled out into a mass movement or a Jan andolan. The response to this very
important flagship programme of the government has been tremendous. Since October2, 2014 over 7.1 crore household
toilets have been constructed with the rural sanitation coverage in India more than doubling from 39 per cent in October
2014 to over 83 per cent today.

Health care is another important angle of development. Getting quality medicines at reasonable cost has been a challenge
for the poor. The Pradhan Mantri Jan Aushadhi Pariyojana has tried to address this problem through its centres across the
country.

Protecting the vulnerable has been of prime importance to the government. Beginning with trying to change the mindset
of the people towards the girl child with initiatives like Beti Bachao Beti Padhao and gender champions, creating help lines
for women and children in distress and rehabilitating survivors of violence, the government has always sought to ensure that
every woman and child in India lives in an environment free from fear and aspire to contribute to the national growth.

Rural development is vital to the development of the nation. The government, through its various schemes like
National Food Security Mission, Rashtriya Krishi, Vikas Yojana, Pradhan Mantri Fasal Bima Yojana, etc has sought
to address the issue of farmers' welfare, double their income and bridge the urban-rural divide.

Growth is never merely by chance, it is the result of forces working together. And in India, the forces are marching
in the right direction to take the nation to new horizons.

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 YOJANA
Transformational Shift in Delivery of Services

I ndian history is replete with instances of Governments who were extremely

conscious of their duty to provide services to their citizens. Continuous efforts
were made by them to set up systems of good governance through various
schemes and laws. These systems were however largely based on records, files
and transactions which were generally physical. It has been only in recent years
that the concept of citizen centric e-Services has come to the fore.

Citizen centric e-Services aim to digitally empower the society and

transform the economy. They aim to restyle how citizens avail of services and
participate in the economy using less cash, opting instead for UPI, internet
banking, direct benefit transfer, digital payment platform etc., using unique
identification techniques, like Aadhaar, so as to drive financial inclusion with
minimum lapses and delays. Government’s push towards a Paper-less, Presence-
less and Cashless model of e-governance and the launch of Aadhaar, UPI and
BHIM have transformed the economy. Banking is fast moving from branch
banking to a virtual world of banking called Digital Banking.

Various new citizen centric and transformational digital platforms that have been developed include
BHIM-UPI, e-NAM, GSTN, DigiLocker, GeM, e-Hospital, MyGov, UMANG, SWAYAM, Jeevan Pramaan,
NSP etc. These efforts are heavily dependent upon the efficient use of technology and as a result technology is
increasingly being used to transform learning, economy and citizen services delivery mechanisms. The reach of
mobile network, internet and electricity is expanding its reach to remote areas, thereby ensuring that the marginalised
sections of the society are also brought into the mainstream. This digital transformation is facilitating the ease of
access for citizens with disabilities as well and empowering them to access various products and services despite
mobility constraints.

In the field of education too, technology is playing a greater role than ever before and is transforming classrooms
from being isolated units of learning to more collaborative and communicative spaces with digital pedagogies,
critical enquiry and demographic spaces that go beyond geographical constraints. Likewise, to minimise farmers’
distress, digitalising of farming systems and creating a database is also a step towards achieving sustainable
agricultural production. The delivery of services to citizens in an efficient, transparent and effective manner has
been addressed by the Geographic Information System as a decision support system for developmental planning.

Citizen centric e-Services focus on accessibility, quality, efficiency, affordability, delivery, mobility and user
experience. Products and services can no longer be viewed in isolation from the larger evolving scenarios around
us and there should be a healthy mix of technology with progressive policies and practices. The Digital India
programme and the tremendous focus of the Government on providing citizen centric e-Services are resulting in the
Indian citizens witnessing not only a transformational shift in the delivery of services but also a better engagement
of the Government with its citizens.

YOJANA July 2019 5

 YOJANA
We, The People

I
t was in 2015, the 125th birth anniversary year of Baba Bharat Ratna Saheb
Dr. Bhimrao Ambedkar that the Government of India decided to celebrate 26th
November, as ‘Constitution Day’ every year. The year 2019 marked the 70th year
of the adoption of the Constitution. To reiterate our gratitude to the chief architect of
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our Constitution, and publicise the glorious and rich composite culture and diversity
of our nation, the Government is celebrating the spirit of Constitution through a
series of initiatives and activities till 26th November 2020. Also, 14th April is the 130th
Birth Anniversary of Dr. Ambedkar.
This issue of Yojana is a tribute to the legacy of this great man and the greatness
of the Constitution. The document written over 70 years ago is the most relevant at
these times for the government, judiciary and citizens alike. Withstanding its core
principles of justice, liberty and equality, reminding the citizens of their fundamental
duties to uphold unity and integrity, and the Directive Principles for the government,
our Constitution is the guiding light for the Indian society as a whole.
The Constitution of India is a result of exhaustive research and deliberations of a
body of experts. These makers of our Constitution, with their foresight and wisdom,

of all Indians on the other. They are credited to bring in the best features of all the hitherto existing related documents and
making it the most lengthy and detailed constitutional document in the world. The document in itself is well-equipped

hundred-plus amendments over the seven decades have strengthened it further and made the constitution even more
relevant in the present times.
The Preamble to the Constitution declares India to be a sovereign, socialist, secular democratic republic and a welfare
state committed to secure justice, liberty and equality for the people and for promoting fraternity, dignity of the individual
and unity and integrity of the nation.
These Rights go hand-in-hand with the Fundamental Duties. It is the duty of every citizen to abide by the Constitution
and respect its ideals and institutions; to cherish and follow the noble ideals of our freedom struggle; to renounce practices
derogatory to the dignity of women; and to value and preserve the rich heritage of our culture.
The Rule of Law has been a core civilisational value of Indian society since ages. India has been cherishing values of
trust and faith towards justice that inspire our Constitution. About 1500 archaic laws have been repealed. And speed has
been demonstrated not only in doing away with irrelevant laws but also in enacting new legislations aimed at strengthening
the social fabric. The architect of our Constitution, Dr. B. R. Ambedkar had said: “Constitution is not a mere lawyer’s
document, it is a vehicle of life, and its spirit is always a spirit of age.”
In legislating the rights for transgender, the law against the practice of Triple Talaq, expanding the rights of
Persons with Disabilities, the government has worked with complete sensitivity and responsiveness to the needs of
modern society.
The ‘Constitution of India’ lies at the foundation of the world’s largest democracy. This is the supreme document in
the country’s democratic framework and it continuously guides us in our endeavors.
Our readers are the pulse of Yojana. We hope that this edition will help them including students, academicians,
lawyers, and civil servants alike.

YOJANA April 2020 5

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