Public Administration Solved Papers Us (2013-2021)

UPSC MAINS
PUBLIC ADMINISTRATION
SOLVED QUESTION PAPERS
(2013-2021)
CONTENTS
PUBLIC ADMINISTRATION 2021 PAPER-1 1
STRATEGY FOR PUBLIC ADMINISTRATION 239
Detailed Syllabus of UPSC - Public Administration 242
Suggested Reading Books for Public Administration 245

PUBLIC ADMINISTRATION Online Course
http://iasexamportal.com/pub-ad-coaching
PUBLIC ADMINISTRATION 2021 PAPER-1
SECTION-A decisions are programmed or

non-programmed." Explain.
Q1. Answer the following in about 150 words each:
Programmed decisions are concerned with
(a) Governance is about managing self-organizing relatively routine and repetitive problems.
networks." Elaborate. Information on these problems is already available
Self-organizing networks can offer automated and can be processed in a pre-planned manner.
functions such as self-configuration, Such decisions have short-term impact and are
self-optimization, self-healing, and self-protection. relatively simple. Non-programmed decisions deal
Governance networks play an increasingly with unique or unusual problems. Such novel or
important role in ecosystem management, it can be non-repetitive problems cannot be tackled in a
networks can be formalized or informal, top-down predetermined manner. There are not cut-and-dried
or bottom-up, and designed or self-organized. The solutions or readymade answers for such problems.
term “governance’ has wider meaning and Therefore, a high degree of executive judgment and
implications. It means the process as well as result deliberation is required to solve them.
of making authoritative decisions for the benefit of (c) Examine the approach of public service
the society. But its conceptual difficulties begin motivation as an inducement to bring the
when it is found that the term is being touted in desired level of efficiency in public service
recent years by multilateral and bilateral and given delivery.
agencies as a part of pre-conditions for economic
Motivation is the act of stimulating someone or oneself
aid or as a process of reforms qualifying for
to get a desired course of action, to push the right
economic aid.
button to get a describes motivation as the complex of
(b) Two-dimensional taxonomy was used by forces starting and keeping a person at work in an
Herbert Simon to describe the degree to which organization. In starts and maintains an activity along a
www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 1

prescribed line. It is something that moves the persons the work done most efficiently, whereas Fayol principles
to action and continues him in the course of action are concerned with managing problems with top
already initiated. Thus, motivation is a ‘will to work’. We management perspective. Fayol universal principles can
may define motivation as “a willingness to expend be applied to any organization, but Taylor principles are
energy to achieve a goal or reward. It is a force that applied only to specialized organizations like production
activates dormant energies and sets in motion the and engineering.
action of the people. It is the function that kindles
burning passion for action among the human beings of
Q2.(a) Behavioural approach has been questioned on
an organization.”
the basis of its utility in the analysis of administrative
(d) In theory, the 'civil society organizations' problems. Discuss the weaknesses of the approach
promote cooperation between people and and the shifts made therein.
public service organizations, but in practice,
their activities restrict the promotion of Behavioural approach makes the study of public
government programmes. Analyze. administration rather sterile and irrelevant to the
The idea and role of Civil Society have been recognized major issues of public policy. This is because, the
in the past two decades with the waves of behavioural approach totally excludes values from the
democratization across the developing world. The study of administrative phenomena. It cannot explain
growth of the civil society has corresponded to the the value-oriented (ethical) issues of
decline of the role of state in delivering public goods administration. Leo Strauss called behaviouralism
and social services and overall in development. a mode of 'positivism' which seeks a value-free
Although civil society has not been clearly defined in knowledge. Similarly, Christian Bay observed that the
terms of the space it occupies and the members it is end product of behaviouralism is the so-called
represented by, a discussion on the working definition of 'ethically-neutral' literature which is both
civil society is in order, notwithstanding the bewildering conservative as well as socially irrelevant. It is useful,
diversities of perception. Civil society is composed of valid, and applicable to the study of small
groups and association organized voluntarily, devoted to organisations rather than big organisations. Hence,
the cause of collective good, independent of state and it has limited utility in public administration which
on any other vested interest. A lot of confusion prevails deals with big organisations. It does not suggest
over its relation to the state. Without entering into a anything concretely to improve the overall
deeper debate, one would safely assume that the civil functioning of administrative organisations. This is
society should complement that state if desirable, because, the behavioural approach is descriptive
collaborate if possible, and confront it if necessary. rather than normative, that is, it explains 'what is'
rather than prescribes 'what ought' to be.It does not
(e) Fayol and Taylor had different management
provide an adequate conceptional framework to
perspectives, while having similar goal of
understand the organisational phenomena. This is
organizational efficiency. Comment.
because, the behavioural approach concentrates on
Fayol and Taylor have a common goal to achieve i.e. to the psychological variables of organisational
enhance the efficiency levels of the organizations. Both phenomena. Thus, the behavioural approach is micro
of them share common principles such as divided and rather than macro in its orientation and analysis. It has
specialized work, responsibilities of managers, unity shifted the emphasis in the study of public
and direction within the group etc. Taylor principles are
concerned with evaluating the performance and getting

administration from formal legal structures to the Public Private Partnership (PPP) is a contract between a
people and their behaviour. pubic sector institution/ municipality and a private party,
in which the private party assumes substantial financial,
(b) Public administration has been viewed as a socially technical and operational risk in the design, financing,
embedded process of collective relationship, dialogue building and operation of a project. Traditionally, private
and action. Examine the statement in light of the
sector participation has been limited to separate
consensus achieved in the Third Minnowbrook
Conference. planning, design or construction contracts on a fee for
Globalization brought the world closer together. The services basis-based on the public agency’s
number of people conducting comparative public specifications. PPP Project means a project based a
administration research has expanded as a result of the
contract or concession agreement, between a
need for more studies on international organisations. To
comprehend the globalisation perspective, a request for government or statutory entity on the one side and a
research funds in comparative public administration private sector company on the other side, for delivering
was made. They reinvented public administration as a an infrastructure services on a payment of use charges.
socially rooted process of collaborative connections,
discourse, and action aimed at promoting human (1) In order to attract more domestic and international
flourishing for all. This means it is anti-individualistic infrastructure funding, India needs a more stable
and works in conjunction with others to foster a healthy, regulatory environment with an independent regulator.
growing relationship for everyone. Some questioned
how the discipline would identify conflicting parameters (2) The PPP programme lacks a comprehensive data
and whether or not 'critical consciousness' should be base on the projects and studies that will be granted
included in this reformulation of public management. under the PPP programme.
Public administration must conduct studies and do (3) For private executors, project development efforts
research on public administration of various countries such as a detailed feasibility assessment are required.
to arrive at useful conclusions as no country’s public (4) The translation of targets into projects is hampered
administration system can be studied in isolation by a lack of institutional ability to handle large and
because of the emergence of liberalization, complicated initiatives.
privatization, globalization and IT. The notion that
(5) Commercial banks are essential to the private
governance in a country was the responsibility of the
sector. Financing for projects might be challenging at
government changed from being a hierarchal structure
times due to delays in the rise of debt in India's
to a more networked form of government. Technology
commercial banks. The most difficult aspect of PPP
changed the old public administration to government
projects' success is obtaining funding.
because of its ways to perform change.
Q3.(a) Integration of different streams of

(c) Public-private partnership phenomenon has been
administrative thought to propound a universal
transformed into a type of governance scheme or
administrative theory is hindered by the impact of
mechanism. Discuss its capacity to overcome future
culture. Critically examine.
challenges.

The elements of instructing and controlling have It's a tenet where leaders and governing bodies are
commonly been fallen under the capacity Driving. The dependent upon reexamination or review. The Judicial
outcome is the advanced P-O-L-C system of review has a definitive ability to assume the part of a
administrative capacities. guard dog of the governing body and the chief.
It is vital to take note of that these classes are whenever an unfair demonstration is done due to
expansive in nature. They address the general liabilities optional power by any administrative body, the Judicial
of a supervisor, no matter what the undertaking or can review it and guarantee that the essential privileges
industry-explicit obligations that a chief might confront, of an area are not abused.
like government, non-benefit, bookkeeping, finance, A request designating a magistrate or a report put
advertising, and so on together by the official might be tested entomb alia on
The Authoritative Hypothesis of the executives is still the grounds of mala fide goal, colourable exercise of
especially incorporated into our cutting edge force, ultra vires, and so on Assuming the courts can
comprehension of associations and the board practice. save off-base and unlawful demonstrations by applying
the boundaries of the Judicial review, the regulatory
Various scholars have added to Managerial
specialists can survey similar demonstration by
Administration Hypothesis. These scholars foster
investigating such requests assuming they see that they
various cycle based approaches that distinguished
are ultra vires.
administration exercises as sets of autonomous
capacities. "Subsequently, Judicial review is the standard and
substance of law and order". It is an overseer of Law
These capacities occur at all levels of the association,
and order.
no matter what the business or nature of the directors
obligations.
(c) Regulation is an old but increasingly necessary
mode of social coordination and political intervention
(b) Judicial review, prevention of misuse or abuse of
into societal processes. Examine it in the context of
administrative power and provision of suitable
globalization.
remedies are the basic principles of administrative law.
Justify as how various organs of the State are able to Regulation is an old but increasingly necessary mode of
uphold these principles. social coordination and political intervention into
societal processes. In present day modern social orders
administrative strategies are applied to practically all
Judicial review is the main power in the judiciary's hand cultural areas - from farming to wellbeing and climate
that can keep up with law and order in the country. The up to the diverse space of new advancements.
force of the judiciary to watch out for the governing Controllers might be focal states, public organizations,
bodies and regulatory exercises, how they play out their specific boards and, surprisingly, private affiliations or
obligations, whether or not the working of every circle is associations. With regards to practical and political
reliable in nature, and assuming the freedoms conceded globalization, it is specifically the American sort of
to an individual are revoked, the upper power, i.e., guideline by free commissions which has spread all
judiciary, will audit them. Judicial review to audit and over the planet and is currently turning into "the model"
decide the legitimacy of the law or request can be of political guideline on which practically totally
characterized as the force of legal survey. progressed entrepreneur nations are uniting.

Q4.(a) The new public service model approaches operation of administrative structures from an
governance on the premises of an active and involved inward-oriented one, focused on compliance with
citizenship, wherein the role of public officials is to internal rules, into a model focused on meeting citizens’
facilitate opportunities for citizens' engagement in needs (not by resorting to commercialisation, as is the
governance. Explain.
case with new public management, but by building
appropriate quality of administration).
‘New Public Service,' a movement built on work in
democratic citizenship, community and civil society, and
organizational humanism and discourse theory. We
(c) Nothing in public administration is more important,
suggest seven principles of the New Public Service,
interesting or mysterious than leadership. Analyze the
most notably that the primary role of the public servant
is to help citizens articulate and meet their shared statement in the context of strategic leadership.
interests rather than to attempt to control or steer Strategic leadership alludes to an administrator's
society. Like the New Public Management and the old capability to communicate an essential vision for the
public administration, the New Public Service consists association, or a piece of the association, and to inspire
of many diverse elements, and many different scholars
and convince others to procure that vision. Strategic
and practitioners have contributed, often in
leadership can likewise be characterized as using
disagreement with one another. Yet certain general
ideas seem to characterize this approach as a methodology in the administration of representatives. It
normative model and to distinguish it from others. While is the possibility to impact hierarchical individuals and
the New Public Service has emerged both in theory and to execute authoritative change. Strategic leaders make
in the innovative and advanced practices of many authoritative design, apportion assets and express
exemplary public managers, in this section we will essential vision. Strategic leaders work in a
examine the conceptual foundations of the New Public questionable climate on undeniably challenging issues
Service. Certainly the New Public Service can lay claim that impact and are affected by events and associations
to an impressive intellectual heritage, including, in
outer to their own.
public administration, the work of Dwight Waldo (1948),
and in political theory, the work of Sheldon Wolin The principle objective of Strategic leadership is vital
(1960). However, here we will focus on more usefulness. One more point of key administration is to
contemporary precursors of the New Public Service, foster a climate in which representatives estimate the
including (1) theories of democratic citizenship; (2) association's requirements in setting of their own work.
models of community and civil society; and (3) Strategic leaders empower the representatives in an
organizational humanism and discourse theory. We will
association to follow their own thoughts. Strategic
then outline what we see as the main tenets of the New
leaders utilize prize and motivating force framework for
Public Service.
empowering useful and quality representatives to show
much better execution for their association. Functional
(b) Neo-Weberian State of involves changing the model
Strategic leadership is about creativity, insight, and
of operation of administrative structures into a model
wanting to help a person in understanding his targets
focussed on meeting citizens' needs. Discuss.
and objectives.
The neo-Weberian state constitutes an attempt to
combine the Weberian model of administration with the
principles laid down during the retreat from the Strategic leadership requires the possibility to predict
bureaucratic management paradigm (new public and grasp the workplace. It requires objectivity and
management and public governance). The concept of potential to check the more extensive picture out.
neo-Weberian state involves changing the model of

Section-B In this context, performance appraisal cannot serve

Q5. Answer the following in about 150 words each: only to assess suitability for vertical movement, but
should be primarily used for the overall development of
(a) The approach to the study of administration in
an officer, and for his placement in an area where the
its environmental context is especially more
most advantage can be taken of his abilities and
useful for developing countries. Comment.
potential. The Group is of the view that performance
Development administration is closely related to its appraisal should be constructive and advisory in nature,
external environment. It is influenced by its political, to be used as a tool for the development and career
economic and sociocultural contexts and, in turn, planning of the officer, as opposed to a simple
influences effectively. Since development implies the judgmental exercise, which is largely the case at
ability of a social system to shape or reshape its present. There is, thus, a need for a paradigm shift in
environment, its study should naturally be ecological in the philosophy of appraisal
character. Environmental factors in general and cultural
factors in particular are important to those who attempt
to bring about major change in a developing society. (d) It is widely agreed that the government ought
Such factors condition the outcome of any to provide the goods that market fails to
governmental program or other innovation. Therefore, provide or does not provide efficiently. Argue.
changes in man’s culture and environment are among It is broadly concurred that one of the center elements
the goals of highest priority in the countries most of government is to supply public merchandise that
committed to change markets either neglect to give or can't give effectively. I
(b) Gender equality and women's rights have laid will recommend that contentions for government
down a strong foundation of development. arrangement of public merchandise require key moral
Elaborate. decisions notwithstanding the typical financial
contemplations about the general adequacy of markets
Gender equality is not only a fundamental human right,
and state run administrations in providing them. While
but a necessary foundation for a peaceful, prosperous
and sustainable world. No society can develop logicians and policymakers owe an obligation of
sustainably without transforming the distribution of appreciation to financial specialists for fostering the
opportunities, resources, and choices for men and hypothesis of public merchandise, the connection
women so that they have equal power to shape their between open merchandise and public approach can't
own lives and contribute to their families, communities, be fashioned without moral reflection on the appropriate
and countries. In the last two decades, the world has capacity and extent of government power.
narrowed the divide between men and women,
especially in primary education and health. It is time to (e) MIS has evolved and gone far beyond its
double down on global commitments to advancing traditional advantages due to technological
gender equality and women’s rights recognizing and advancements. Comment.
elevating women as agents of economic growth, MIS has been showing impressive variety during the
stability, and sustainability, and for men to work with development in the previous many years. It comes such
women to accelerate progress toward gender equality.
a major interest and challenge to draw an
(c) Performance appraisal needs to be seen all-encompassing image of the transformative
beyond the mere suitability of the official for advancement of MIS. By efficiently exploring the current
vertical promotion. Explain. agent writing/research in MIS, particularly by breaking
down and demonstrating the MIS ideas, this paper first

recognizes the emergencies and difficulties the scrutinize Max Weber, however nobody can do social
conventional MIS has confronted. Besides, by applying exploration autonomously and deductively without
EBD, a plan technique, the creator breaks down how alluding to Weber's speculations. By a similar token, the
these emergencies have been tended to, and thus, how individuals who concentrate on relative policy
implementation will unavoidably track down motivation
the traditional MIS Pyramid is changed and formed into
to investigate Fred W. Riggs' "fused -prismatic
a knowledge coordination structure for the
-diffracted model", yet in directing examination, nobody
comprehension of MISs development, which can situate is liberated from Riggs' impact. According to the
different data frameworks, yet in addition show how viewpoints of heterogeneity, covering, formalism, and
these frameworks are as yet interrelated in the entire social change, the model notices specific qualities in
course of the advancement. kaleidoscopic culture. Despite the fact that the
hypothesis behind it needs refinement, it has applied
enormous impact on the comprehension of policy
Q6. (a) Emphasis on cost control and reducing public implementation and authoritative conduct.
expenditure has diverted the focus of government
budgets from the basic objectives of reallocation of
resources, bringing economic stability and promoting
(c) A striking feature of economic development is an
social equity. Examine.
apparent symbiotic evolution of strong States and
Each level of the public authority ought to have its own strong market economies. Analyze.
spending plan to cover its own A striking feature of economic development is an
circle of movement and obligation. Most nations by and apparent symbiotic evolution of strong States and
large offer such game plans strong market economies. In any case, conventional
set up. Be that as it may, in some change economies,
investigations of financial improvement will more often
the association of the financial plan framework
furthermore the method of exchange of assessment than not center around the development of the market
sharing plans, in light of political haggling, don't economy with less consideration paid to the extension
guarantee an unmistakable task of liabilities in of the state. Similarly as private physical and human
planning. In these cases, one of the initial phases in resources amassing is a critical motor of private area
open use change ought to be to explain the dispersion development, the development of public capital is
of obligations among the various levels of the public additionally a motor of state extension. It is
authority, and to put set up steady and straightforward questionable that a decent piece of putting resources
game plans for getting sorted out the connections into state effectiveness comes from working on the
among these levels.
state capacity to carry out a scope of approaches,
(b) In modern context, Riggsian terms have not something which we will allude to as state limit. These
altogether disappeared, but have emerged in different days, this idea
forms with newer meanings. Discuss. is typical in different parts of sociology. Begat by
verifiable sociologists, for example, Charles Tilly, state
Despite the fact that his "administrative development" is limit initially alluded to the force of the state to raise
at present inadmissible, without Riggs' endeavors the
income. Here we widen it to catch the more extensive
field of policy management would in any case be
fruitless. At present, hypotheses of near policy scope of capabilities that the state gets in the
implementation can't be for all intents and purposes improvement interaction, which incorporates the ability
used to concentrate on genuine regulatory conduct. to uphold agreements and backing markets through
Riggs' hypothesis, nonetheless, opens up a totally new guideline or in any case.
field of study. Parsons once said that sociologists all

The issue of state limit is additionally normal money in elements of the ‘policy cycle’ including policy design
the applied improvement local area, where it is and development, program evaluation and review, and in
personally connected with the idea of feeble or delicate practical problem-solving to improve implementation.
states. Feeble states will generally be irredeemably Failures and under-performance are common in most
areas of policy design and program delivery. It is argued
poor, unfit to keep up with fundamental financial
here that conventional explanations usually tend to
capacities and raise the income expected to convey
focus on weaknesses and deficiencies in the public
essential administrations to their residents. They are sector’s implementation and delivery mechanisms.
likewise frequently tormented by common confusion or These might include a lack of skills or competences,
then again altogether conflict. This affinity towards inadequate funding, poor communication and
conflict and feeble government establishments will in consultation, lack of commitment and persistence over
general be grouped with low pay levels and stagnation. time, and lack of authority to achieve the right level of
coordination. These are all very important capabilities.
However, the concept of wicked problems potentially
Q7.(a) Policy problems are increasingly tending adds another layer of explanation and new research
towards being wicked. Discuss the capacity and questions, focusing mainly on the understandings that
preparedness of the State to tackle such problems. have shaped problem-identification and thus the frames
for generating problem-solutions. On this line of
There are an increasing number of policy areas where explanation, failures and unintended outcomes are likely
traditional approaches are seen as having failed to to be endemic in many complex areas of policy and
‘deliver the goods’. Traditional is here taken to mean program delivery.
both technical (expert driven) solutions, as well as
routine administrative solutions (bureaucratic business (b) Zero-based budgeting was intended to get away
as usual). To the extent that traditional approaches to
from incrementalism, but ended up being the most
management and problem-solving are seen as having
failed to provide effective or successful long-term incremental of any budgetary approach. Discuss.
outcomes in many problem areas, open dialogues The distinguishing characteristics of ZBB are that it
among stakeholders and experts to seek ‘new ideas’ requires (1) consideration of a reduced level of
(e.g. ideas summits) are sometimes initiated to expenditure, that is, one below that current expenditure
‘snowball’ some possible ways forward. Where issues level, and (2) presentation and ranking of alternative
are more intensely important to specialised or targeted
levels of expenditure for what are known as decision
stakeholders, negotiated accommodations among key
participants may be seen as necessary and appropriate. units. The decision unit is the lowest level programme
Under such conditions – negotiated goals, open or organisational entity of which budgets are prepared.
processes, battling to address complex causal For each decision unit, a series of decision packages is
pathways – the effectiveness and longevity of prepared, each package for a different level of
traditional solutions may indeed be problematic. In operations beginning with the minimum level which is
some cases the key challenge is to unpack and discuss below the current level. When ZBB was initiated in
entrenched differences. The pathway most commonly government, the anticipation was that programme bases
adopted in this instance is mediated dialogue, seeking would be re-examined thoroughly and the requirement to
to explore common ground about longer term goals and
submit minimum package levels below current year
directions, and interim steps for moving forward
together. The substantial research literature on conflict funding would force estimating officials to reduce costs
resolution has analysed many scenarios and provided to bare minimums. In practice, the Zerobase in ZBB
advice on how to address ‘intractable issues’. The role quickly disappeared because the size and scale of
of facilitated dialogue, as an element of robust
community consultation, is highly relevant for many

governmental activities makes it impossible to review residents. Accomplishing the SDGs will require the
programme base critically. purposeful endeavors of states, the business area,
society, and individual residents. Inventive initiative and
the board will be fundamental for associations in all
(c) ICT has immense potential to transform governance
areas to coordinate these economical improvement
and empower citizens. Examine.
objectives into vital plans and functional exercises in
The role of ICT in Governance Sphere and empowering assistance of understanding the 2030 goals. For
citizen could be 4-fold. 1. Improve quality of governance attaining the SDGs, leaders must manage resources, be
products and services being currently provided. 2. visionary and ethical, and focus on long-term goals
Provide new governance services and products, 3. without compromising values and principles. Moreover,
Enhance participation of people in choice and provision leaders should be motivated by a vision to achieve the
of governance products and services, and 4. Bring new goals in the midst of changing environmental factors
sections of society under the governance sphere and involve all stakeholders in the governance process.
(including those who are most likeable to remain Leadership reflects the characteristics of the
excluded – namely the poor, the illiterate, the transformational leadership style. The effects of this
differently-abled, indigenous people, the migrants and kind of leadership coupled with coordination and
displaced people). In other words, it is wrong to equate participation of all concerned would potentially lead to
Digital Governance with simply digitalistion, or improvement in economic efficiency, social cohesion
automation of governance services. It is much more and environmental responsibility. These are the three
than that. Digital Governance has to be seen as a ‘tool’ basic indicators of sustainable development. The
for good governance and human development. achievement of sustainable development is observed as
Some facts on the role of information technology in a cyclical relationship with planning and implementation
governance are: 1. Access to information forms the and monitoring of the strategies as key responsibilities
basis of decision-making (which could be for public of the leader. Finally, strong leadership, a coherent
good or private gains). 2. Well-informed implementation plan and, engagement of all
decision-making is dependent on the quality and government departments and diverse stakeholders are
timelines of information available, and 3. Limiting necessary to ensure that the Sustainable Development
access to information to an exclusive group open up Goals are achieved at national and international levels.
avenues for manipulation of information for exploitative
purposes, such as private gains.
(b) Groups work to elevate issues on the policy agenda
or seek to deny other groups the opportunity to place
Q8.(a) The successful attainment of SDGs objectives issues. In this background, discuss the role of interest
largely depends upon the wisdom, experience and groups in agenda setting in the developing countries.
farsightedness of the actors involved and their An aggregate activity point of view would foresee that
willingness to cooperate in the implementation the gatherings probably going to be addressed will have
process. Analyze. concentrated monetary interests or strongly held
The exhibition of any country, in looking to accomplish convictions, bringing about approaches at chances with
the SDGs, generally relies upon its initiative. Powerful general assessment. Then again, these interests
authority converts into reasonable public arrangement frequently center around slender issues of restricted
plan and execution, as well as great public help interest to the more extensive public. Until now, we don't
conveyance, to address the issues and goals of know how much a subset of coordinated gatherings

could shape the public plan. Besides, we have close to employees who believe that their obligations to serve
zero insight into the level of correspondence between are restricted only to those duties that are part of their
the political inclinations of vested parties and those of job classification, and for which they be held legally, but
people in general. To dissect the conditions under which not necessarily morally, responsible.
explicit sorts of gatherings and residents observe their
issues addressed before government, the papers in this
board will zero in on approach plans. A few papers will
survey the level of harmoniousness between the worries
of residents, the approach plans of vested parties, and
the strategy needs of public state run administrations.
Others will examine the endeavors and capacity of
vested parties to address cultural interests in their
connections with government. All try to add to how we
might interpret the reason why an issues of worry to
intrigue bunches observe their direction onto the
administrative plan while others are barred. Together,
the papers will resolve normatively significant inquiries
regarding the degree to which vested parties can
effectively associate residents and elites in delegate
majority rule governments.
(c) Civil servants generally tend to exhibit the values

and ethical framework of the political executives under
whom they function. Explain.
The ethical and moral ideals underlying the philosophy
of administration in many countries have meant that
public servants exhibit such traits as setting a high
standard of conduct, espirit de corps, self-sacrifice,
public duty and general concern for the social good.
Unfortunately, such ideals have come into conflict with
the narrow outlook which is characteristic of unions and
employee associations. The latter have rather
emphasised the view that the public service is merely a
job. They would rather not accept the traditional role of
public servants wherein duty to serve the community at
all times, and sacrificing even one’s personal life for the
higher cause were considered more important than the
union’s approach to work ethics. Thus modern public
administration faces an inherent-conflict between the
traditional expectation of those officials who serve the
State, and the alternative expectation of government

UPSC IAS Mains Exam 2021 - PUBLIC Constitutions, t h e Indian Constitution also
ADMINISTRATION (Paper-2) commences with a preamble, which reflects the
aspirations and expectations of the people of India.
SECTION-A
Q1. Answer the following in about 150 words each : (b) Examine the extent to which the ideal of
(a) The Preamble to the Constitution of India Constitutionalism as 'government by limited
provides a foundational framework of ideals and powers has been a functional reality in India.
values for the Indian administration. Discuss.
Constitutionalism is "a compound of thoughts,
mentalities, and examples of conduct explaining the
The most significant influence on the nature, rule that the power of government gets from and is
structure and functioning of Indian administration is restricted by a group of crucial regulation".
that of the Indian Constitution. The democratic context Constitutionalism is a way of thinking which is
in which the Indian administrative system functions is fundamental for a vote based arrangement. Here
closely linked to the Constitution. The influence of the opportunities of the individual are given supremacy
Constitution on p u b li c administration is broadly of and the State doesn't infringe upon the freedom of
two types: the formal or discernible influences that the resident. It guarantees that the public authority is
prescribe the configuration of the administrative restricted and keeps it from transforming the
system and the informal influences which determine popularity based arrangement into oppressive and
the role, responsibility and responsiveness of the legitimate. The main issue of Constitutionalism is a
administrative system, the character of governance and "Restricted Government". Constitutionalism
the behaviour of administrators. Like other

perceives the requirement for an administration and

yet additionally demands controlling its The Indian model of federalism might be one of the
(administration's) power. most intriguing typologies with regards to the world,
(c) Red-tapism is a major obstacle to the portrayed all things considered by an oddity, in any
implementation of 'good governance. Comment. case: that of being a "incorporated federalism. 73rd and
Red-tapism hinders good governance and promotes 74th Revisions were passed in 1992 to reinforce the
culture of corruption and inefficiency. Red tape is working of the third level of Indian federalism in the
an idiom referring to bureaucratic regulations or Metropolitan and Panchayat level. The prudence over
conformity to formal rules which are claimed to be financial assets accessible to nearby legislatures have
excessive, rigid or redundant which results in delay or impressive impact of state and union government. The
inaction. Governments are notorious for excessive red nearby taxpayer supported organizations need
tape followed by endless parade of paperwork that neighborhood drive and prudence on account of lacking
accompanies many official matters. Thick legal mature framework there.
documents were bound or tied with red cloth tape. So
when someone spoke of cutting through the red tape, Q2.
they meant it in a very literal sense.
(a) Kautilya envisages protection, welfare and
prosperity of the State and its people as the
(d) The role and status of the Speaker in utmost concern of a ruler. In this context,
parliamentary system have their foundation in discuss the significance of Kautilya's emphasis
the Speaker's stance on neutrality. Comment on governing, accountability and justice in
contemporary India.
Securing the neutrality of the Speaker is a question that
experts in India have been grappling with for years. In
One important fact which makes the Arthashastra
Britain, the promise of continuity in office for many
leap out of its times is the notion of the welfare state.
terms is used to ensure the Speaker’s impartiality. By
Though it supports the concept of one-man rule, it is\by
convention, political parties (usually) do not field a
all means a benevolent monarchy. As U. N. Ghoshal
candidate against the Speaker at the time of general
puts it: "The Arthashastra, on the one hand, has
elections. And the Speaker can continue in office, until
avowedly for its end the security and prosperity of the
deciding otherwise. By convention, the Speaker also
state. Accordingly, its rules of kindly conduct are
gives up the membership of his/her political party. With
determined primarily with reference to the interests of
no security in the continuity of office, the Speaker is
the state alone." The king’s duties are also defined in
dependent on his or her political party for reelection.
elaborate detail in Books I and III. His mission is the
This makes the Speaker susceptible to pulls and
yogakshema of the people which implies their welfare,
pressures from her/his political party in the conduct of
happiness and prosperity. As already mentioned, the
the proceedings of the Lok Sabha.
text asserts: “In the happiness of the subjects lies the
happiness of the king.” Time and again, the text also
(e) The Union government develops and practices mentions that the ruler is to take care of the people like
strategies to administer increasing number of existing a father. The ideal set before the ruler is that of a
local government services by sidelining local paternalistic rule. The ideal of the welfare state is
initiatives and discretion. Examine supported by means of assigning it as the duty of the
king to maintain the minors, the aged and those in

distress. There is in the Arthashastra a reference that is the kingpin of development activities. He is the
villages in new settlements are to enjoy certain chairman of the District Development Council. At the
privileges and concessions in the initial stages, though other extreme falls the Maharashtra model where, as in
in the course of time they would be treated at par with Madhya Pradesh and West Bengal, the collector has
other villages. This may safely lead us to conclude that been kept outside the Zila Parishad. The collector has
the state as visualised by Kautilya was by no means a nothing to do with the working of the Zila Parishad and
police or tax-gathering state alone but cherished the is not even a member of it. In the third category come
ideals of a welfare state. The guidelines on crisis states like Assam, Gujarat, Punjab and Rajasthan. In
administration contained in the Arthashashtra are of these states the collector is a member of the Zila
immense value Parishad but without the right to vote. Legislation in
these states postulates that the collector should be
associated with the Zila Parishad in an advisory
(b) District Collector is the most important functionary capacity and does not envisage any active involvement
in district administration in India. In light of the above of the collector with the decision-making process.
statement, discuss the multidimensional However, in Rajasthan, the collector has not been
responsibilities of District Collector in effecting completely dissociated with development work The
coordinated developmental administration in India. Rajasthan Panchayati Samitis and Zila Parishad Act has
The office of the collector was called upon to play a designated the collector as t h e District
prominent role in the implementation of development Development Officer.
programmes in free India. Introduction of community
Because of the introduction of the panchayati raj and
development and national extension programme in 1952
assigning of development role to the panchayati raj
and 1953 added further importance to the traditional
institutions there arose a controversy during the sixties
prestige and position of the collector. This completely
relating to the utility of the office of the collector in mid
changed the emphasis of the duties of the collector.
and late sixties. This controversy shook the citadel of
From regulatory activities the emphasis now shifted to
the collector temporarily but it survived the shock.
development activities. The introduction of panchayati
raj in 1959 added a new dimension to the developmental (c) The role of the Governor is of a sagacious
activities of the collector. The Balwantrai Mehta counsellor, mediator and arbitrator rather than that of
Committee recommended that the collector should be an active politician. In this context, examine the role of
closely associated with the new institutions of the Governor in state politics in India.
panchayati raj and he should be the chairman of the Zila
Parishad. When the different states interpreted the
recommendations in different ways and prepared The primary function of the governor is to preserve,
legislations for panchayati raj in their respective states, protect and defend the constitution and the law as
it was found that different roles were assigned to the incorporated in their oath of office under Article 159 of
collectors of different-states. A scholar can discern the Indian constitution in the administration of the State
three different models of panchayati raj from the point affairs. The Governor is a ceremonial head of the State.
of view of the role of the collector in it. In some of the The Constitution provides for a Council of Ministers
states like Andhra Pradesh and Tamil Nadu, the with a Chief Minister at the head to aid and advise the
involvement of the collector is manifold. Starting from Governor in the exercise of his functions except when
the Zila Parish ad to the gram panchayat level he is he can act at his discretion. The Council of Ministers is
invested with wide and sweeping powers to exercise. He

collectively responsible to the State Legislative Recruitment is “the cornerstone” of the entire personnel
Assembly. All the executive powers are exercised by the structure. Proper selection and placement of new
Cabinet in the name of the Governor who acts employees is a pre-requisite for the development of an
constitutionally on the advice of the Council of effective work force. “Unless recruitment policy is
soundly conceived, there can be little hope of building a
Ministers . The Constitution, however, specifically lays
first rate staff”. (Stahl, 1966) The aim is to ensure, as far
down that except in matters where the Governor is
as possible, that employees are engaged in jobs wherein
required to act in his discretion, he shall not be bound to they have a fair chance of succeeding and at the same
follow the advice of the Council of Ministers, but act in time feel well adjusted to their work environment.
his discretion. If any question regarding the exercise of Fairness and impartiality in recruitment are absolutely
the discretion of the Governor arises, the decision of the vital in public services. A.B. Vajpayee, former prime
Governor shall not be called in question on the ground minister of India, in a message to the platinum jubilee
that he ought or ought not to have acted in his souvenir (1926-2001) of Union Public Service
discretion. The courts of the land do not have the power Commission, observed, that free, fair and impartial
selection of personnel for posts in the government is
to question the action of the Governor taken in his
critical, not only for good governance but also for
discretion and the decision of the Governor shall be
instilling confidence in people about the impartiality and
final. neutrality of civil service. Faulty recruitment inflicts a
permanent weakness on the administration.
The Governor has a double role to play-one as
constitutional head of the State ‘and the other as agent A theoretically sound civil service structure is of no
of the Centre. We may argue that the expression ‘agent avail if those who man the structure are incompetent or
of the Centre’ is not a happy expression in so far as it is apathetic. In this context, one of the United Nation’s
un-federal, if not anti- federal; we could perhaps speak Reports rightly states that, “the core design of
of the obligations of the Governor as head of the State progressive recruitment policy in any organisation is the
and of his constitutional responsibilities vis-a-vis the reduction, if not the elimination of favouritism, nepotism
Centre. Two premises may be developed to delineate his and incompetence in the selection process.” Since the
efficiency of the civil services depends to such a great
role in this regard. Generally speaking, there is no
extent on the quality of manpower selected, the UPSC
overlap between the two roles except where otherwise
has taken meticulous care to ensure selection of
specifically provided, the role of the Governor as a persons with high caliber through a transparent, fair and
so-called agent of the Centre starts where his role as objective selection process. The systems, procedures
constitutional head of the State ends. Secondly, we may and methods for recruitment to the civil service are
also add that there is another line of demarcation in the being constantly reviewed for tapping the ‘best
Governor’s role as constitutional head of the State has available’ talent. There is a firm recognition of the fact
primacy over his role as agent of the Centre as the that the quality of public services in India and the
former relates to periods of normalcy and the latter to quality of administration on the whole remains high and
has been maintained solely because the commission
emergency situations. If these two premises are
has so steadfastly adhered to the principle of merit. The
accepted, the two roles could be easily reconciled.
need for foolproof civil service recruitment is stressed
for many reasons. The institution is the bed rock of
Q3.(a) Recruitment is the cornerstone of the whole
‘modernity’ in that it coalesces together separate
public personnel structure and it revolves around the
entities (owing to poly communalism) into the facsimile
problem of attracting the best. Discuss the essential of a nation-state. Its effective functioning, in turn, is
elements of a good recruitment system. contingent on the quality of manpower. Efficient
functioning of the civil service has positive spin-off
effects on other sectors especially in predominantly

‘political economy’ countries like India, where administrative reform in India has no future. In short,
government retains monopoly over goods and services administrative reform is a slow meandering process,
provision in the majority of sectors and continues to requiring enormous patience and tact. It rarely succeeds
play a vanguard role in the development of the economy. as expected and usually fails through faulty
implementation’. No proposal for reform is likely to be
effective if there is no significant change in mindset of
(b) Traditionally structured administrative systems the bureaucracy. An attitudinal and behavioural
have outlived their utility. Discuss as how revolution must animate India’s bureaucracy frozen as it
administrative reforms can revamp, restructure and is in the antiquated mould of colonial culture. The new
redesign the existing governmental structure to meet slogan should be service with smile, not after a mile!
the new challenges faced by the Indian administrative India’s foremost need, today, is to repair and reconstruct
set-up. the country’s public administration even though the
country shows a proneness to set up a committee on
A policy by itself cannot solve problems: it has to be administrative reform at the slightest provocation. A
implemented and the implementation strategy requires serious approach to administrative reform must follow a
to be meticulously planned which demands efficiency to system path. Public administration of the land has
implement a reform and what is more, institutionalize it. become too unwieldy picking up a lot of non-essential
Mere acceptance of a report is not enough. As work, resulting in blatant oversizing.
functionaries are accustomed to the older order of
things there is always a risk of their reverting to past
practices unless strong efforts are made to (c) The government policy of large scale privatization
institutionalize reforms .Administrative reform must not of the key sectors of economy may affect India's
be taken as a routine job: the ringing in of a new order economic health. Comment.
requires extra effort and drive.
A strong minister must be put in charge of the reform The process of privatization has both advantages and
agency: this is part of the larger requirement of an disadvantages for a developing nation like India. This
assured political stability in the country. A systemic paper has presented the salient features of
reform necessarily confronts numerous problems privatization. If public enterprises function like private
strewn all over its path including its follow-up stages. sector organizations, very efficiently without actually
All this demands high-quality leadership. Nor must one privatizing the enterprises, they can satisfy both the
expect miraculous change in public administration agenda of profit making and the social responsibility.
immediately after the administrative reform has been The process of reforms, including full and partial
implemented fully. Reform is a slow, complex exercise privatization, has to continue day by day to enhance the
and quick results cannot be expected. Monitoring, efficiency of SOEs in India. It is inevitable that social
reporting and evaluating de them hard mechanisms too justice is necessary in the process of introducing
require to be developed. reforms. Involving members of the public as
shareholders of SOEs will certainly improve their
The distressing fact is that India’s implementation performance and accountability. Granting funds and
record has been dismal poor. Administrative growth concessions should avoid loss-making and problematic
confronts definite limits which’ a reformer may ignore at public enterprises. Despite implementing product mix
his own peril. It has never been contended that diversification, Indian manufacturing companies present

poor performance, especially financial performance, Commission was thus thought necessary for main
because of the lack of modernization of machinery and training the financial balance between the Centre and
upgrading of people’s skills. These firms make positive the States. It is also necessary to bear in mind the need
contributions to the operating margin before direct for maintaining a regional balance between the
labor, but most of them lose at the earnings before backward areas and the forward areas. The Centre’s
interest, tax, depreciation, and amortization level. There responsibilities thus are overriding. The Finance
are two solutions to this issue, consisting of Commission is, thus, an instrument to correct these
restructuring and disinvestments. imbalances. Undoubtedly, the Commission plays a very
important role in the matter.
Q4.(a) As a constitutionally mandated body the

Finance Commission stands at the centre of fiscal
federalism. Evaluate the role of Finance Commission in (b) Recent market approaches to public services
ensuring just and equitable resource sharing among present serious challenges to traditional and
the states and the union. state-sponsored public service values. Evaluate the
statement in the context of Indian administration.
To assess the role of the Commission in determining

the financial relationship between the Centre and the In organisational theory, values are normally
States, certain facts have to be borne in mind. In the conceptualised as essential components of
first place, it should be noted that the distribution of organizational culture and as instrumental in
financial resources under the Constitution is loaded in determining, guiding and informing behavior. In public
favour of the Centre. Its sources of revenue are elastic organisations the New Public Management (NPM)
like income tax, corporation tax, customs duties, excise movement, which seeks the application of economic
duties, etc. Secondly, the Centre has the authority to rationalism to the public service in an attempt to
create money by printing notes. Thirdly, it can raise overcome its traditionally perceived failings, has also
loans both in the country and abroad without any encouraged and engendered new value sets. Adherence
limits. On the contrary, the revenue resources of the to high-level public service values can generate
states are inelastic; the only elastic source for them is substantial public trust and confidence. Conversely,
the sales tax. Secondly, most of the developmental
weak application of values or promotion of
functions like education, irrigation, agriculture, health
inappropriate values can lead to reductions in these
and family planning, cooperation and similar others are
essential elements of democratic governance. It follows
entrusted under the Constitution to the states. Thirdly,
that a clear definition and public statement of values is
the state governments have to provide money for local
bodies, both rural and urban. Naturally, therefore, the a requisite of all public organisations, and the task of
states are in perpetual defi ci t. In this connect io n management is to ensure that planning and actions are
the inefficiency, the incompetence and the profligacy of conducted in the framework established by these
the state governments in handling their finances has to values.
be taken into account. It has to be admitted that, by
The Oxford English Dictionary refers to the ‘principles or
and large, the State Governments, have failed to
husband their financial resources wisely. The framers moral standards of a person or social group’. Using a
of our Constitution were aware of these facts and did definition from Rokeach & Kernaghan defines values as
provide for liberal transfer of financial resources from those ‘enduring beliefs that influence the choices we
the centre to the state. The formation of the Finance make among available means or ends’. The New

Zealand State Services Commission defines values as Earlier politicians patronized criminals and provided
‘essentially the link between the daily work of public them protection from the law-enforcement agencies in
servants and the broad aims of democratic government exchange for the use of their muscle power during
in New Zealand’. However, values are not only elections. And now it is the opposite with the criminals
concerned with resource allocation and decisions on themselves taking over the reigns of power and
public policy as these definitions might imply, but can patronizing the politicians and their parties. It is well
also inform other features of organisation life such as known that all parties take the help of criminal
HR policy and interpersonal employee relations. elements to dominate the election scene in India. But
this process is influencing the mind and the will of the
A broader definition is offered by an OECD study people both to gain the majority to rule the country
commissioned during a period of particular concern according to their will. The system of democracy is
over issues of corruption and ethics in public life. It now changing into the dictatorship of some. Because
defined values as ‘the individual principles or standards the democracy of India are now in hands of the
that guide judgement about what is good or proper’. criminal who are not capable any way to hold the post
if legislature and in this process they are supported by
While this is a more useful interpretation, it is proposed
the administrators.
in this study that values are neutral in respect of their
application i.e. while an organisation may list the values
Section-B
which it believes should be central to its work, this alone
will not determine that the values are expressed and Q5. Answer the following in about 150 words each :
realised in all its activiti es .
(a) No rural development strategy can succeed
Also, values are not always the same as standards, nor unless it is complemented by appropriate
do they solely determine ‘proper’ or ‘good’ activities Panchayati Raj Institutions. Examine the
(which are normally ethical issues - see below). Instead, statement.
each value has its own characterisitcs and may In the earlier Plans the main thrust for development
influence behaviour in different ways. Many, but not all, was laid on Agriculture, Industry, Communication,
principles are values, and similarly many values are in Education, Health and Allied sectors but soon it was
fact qualities which organisations and individuals use to realized that the all-round development of the country is
express the attributes associated with their work. possible only through the development of rural India.
Therfore, the definition of values to be used in this study Keeping this in view, Panchayati Raj Institutions have
is: ‘the individual principles or qualities that guide been introduced under the 73rd Amendment Act of the
judgement and behavior.’ Constitution of India in 1992. Rural Development
includes measures to strengthen the democratic
(c) The increasing criminalization of politics is a major structure of society through the Panchayati Raj
threat to the basic fabric of Indian democracy. Institutions (PRIs). It also includes measures to improve
Comment. the rural infrastructure, improve income of rural
In fact after Independence ‘criminalization of households and delivery systems pertaining to
politics’: people with criminal backgrounds becoming
education, health & safety mechanisms. Government of
politicians and elected representatives,‘criminalization
India has taken many steps to develop rural India and
of administration’, politicalization of administration,
for this, Department of Rural Development has been
not rule of law but rule of dadas and thugs - eating into
setup under the control of Ministry of Rural
the vitals of the country have become chronic and
administration was accused of inaction and collusion. Development.

The Prime Minister's Office, which began on an

(b) NITI Aayog has been constituted to implement innocuous note in 1947, has become an all-pervasive
the goal of co-operative federalism. Discuss. body today. Prime minister occupies a pivotal
NITI Aayog has been constituted to actualise the position in any parliamentary system of government.
important goal of cooperative federalism and to enable At the time of India’s Independence, the prime
good governance in India. On the premise that strong minister’s office (PMO) started working as a low
states make a strong nation, NITI Aayog acts as the profile non-constitutional and non-statutory body.
quintessential platform for the Government of India by But within less than two decades, the PMO emerged
bringing States together as ‘Team India’ to work towards as an institution with a formidable influence in
the national development agenda. In view of this, a policymaking. It was sometimes labelled as the
number of steps have been taken by NITI Aayog to parallel government. This nerve centre of power
foster cooperative federalism through structured basks in the reflected glory of its incumbent, the
support initiatives and engagement with the States/UTs Prime Minister of India. By exercising his discretion
on a continuous basis. These include meetings between in the constitution of the PMO, the PM has signalled
the Prime Minister/Cabinet Ministers and all Chief that his PMO would be the hub of decision-making
Ministers; NITI Aayog has been providing relevant and play a crucial role in streamlining
technical advice to the Centre, States and UTs. decision-making and interaction with other
ministries.
(c) Responsibility and accountability are two major (e) Well planned and goal oriented training
goals of Good Governance. Discuss the statement in programmes arc the backbone of the civil service
the context of lndian administration. system in India. Examine the statement.
Good governance has 8 major characteristics. It is
participatory, consensus oriented, accountable,
Training is the cornerstone of so u n d
transparent, responsive, effective and efficient,
personnel management, for it makes civil servants
equitable and inclusive and follows the rule of law. It
more effective and productive. There is an ever present
assures that corruption is minimized, the views of
need for training men so that new and changed
minorities are taken into account and that the voices of
techniques may be taken advantage and improvements
the most vulnerable in society are heard in
effected in the old methods, which are woefully
decision-making. It is also responsive to the present
inefficient. Training is a practical and vital necessity
and future needs of society. Very administrative system
because, it enables civil servants to develop and rise
and societies have come close to achieving good
within the organisation and increase their ‘market
governance in its totality. However, to ensure
value’, earning power and job security. It moulds the
sustainable human development, actions must be taken
civil servants attitudes and helps them to achieve a
to work towards this ideal with the aim of making it a
better co -operation with the organisation and a
reality.
greater loyalty to it. Training is a process of learning a
sequence of programmed behaviour. It is application of
(d) The Prime Minister's Office has become a powerful knowledge. It gives people an awareness of the rules
institution in itself by virtue of its role in and procedures to guide their behaviour. It attempts to
decision-making on strategic issues of utmost improve their performance on the current job or
importance. Examine the statement. prepare them for an intended job.

the third tier of governance with focus on economic

development and social justice. A multifaceted
approach was adopted, with particular emphasis being
Q6.(a) Budget proposals in the Parliament/ State
laid on the implementation of the 73rd and 74th
Legislatures fail to ensure their collective scrutiny.
Constitutional Amendment Acts, 1992, which gave
Identify the factors which constrain effective scrutiny
Constitutional status to panchayati raj institutions
of the budget proposals.
(PRIs) and urban local bodies (ULBs) respectively, in
both letter and spirit in order to bring about greater
According to Article 112 of the Indian decentralisation and increase the involvement of the
Constitution, the President of India causes to be laid community in planning and implementing schemes and,
before both the Houses of Parliament an annual thus, increase accountability. However, most states
financial statement’ con taining the statement of the have honoured the 73rd and 74th Constitutional
estimated receipts and expenditure of the Government Amendment Acts only in letter and not in spirit.
of India for that year. On the recommendation of the Instances of states initially devolving powers and
President of India, the estimates of expenditure, other functions and later withdrawing these have come to
than those specified for the Consolidated Fund of India, light.
are presented to the Lok Sabha in the form of demands
The lack of financial resources means that PRIs and
for grants. Under Article 113, the Lok Sabha has the
ULBs are heavily dependent on the state governments
power to assent to or to reject, any demand, or to
for funds, which effectively reduces them to an agency
assent to any demand, subject to a reduction of the
of the government, rather than an institution of
amount specified. After the conclusion of the general
self-governance, as was envisioned by the Constitution.
debate on the budget, the demands for grants of
Indeed, fiscal decentralisation measured by various
various ministries are presented to the Lok Sabha.
ratios indicates that the financial autonomy of the PRIs
There was a time when all demands were introduced by
has actually decreased after decentralisation at an
the Finance Minister; but, now, they are formally
all-India level. A number of Centrally sponsored
introduced by the ministers of the concerned
schemes initiated in the 1990s are implemented through
departments. These demands are not presented to the
the PRIs and this brings in some PRI involvement, but
Rajya Sabha, though a general debate on the budget
these schemes have detailed guidelines and the PRIs
takes place there too. The demands of ministries may
have very little discretion in the use of these funds.
be voted without any discussion at all; but, in case the
members are not satisfied, several methods of
introducing ‘cuts’ can be adopted. (c) National Human Rights Commission is handicapped
by its jurisdictional limitations of not being able to
(b) 73rd and 74th Constitutional Amendment Acts investigate the cases of violation of human rights by
aimed at making the third tier of government powerfül the armed forces. Discuss.
and effective for democratic decentralization. Critically The Commission may on its own motion or on the
examine the extent to which this goal has been basis of petitions made to it on allegations of human
transformed into reality. rights violations by armed forces, seek a report from
the Central Government. On receipt of the report, it may
either not proceed with the complaint or, as the case
The 73rd and 74th Amendments to the Indian
may be, make its recommendations to the Government.
Constitution brought in a Local Government system as
According to the Act, the Central Government shall

inform the Commission of the action taken on the settlements. Integrated urban concepts are complex
recommendations within three months or such further and must correspond with the local situation.
time as the Commission may allow. It is further
stipulated that the Commission shall publish its report
(b) Rural development programmes are designed to
together with its recommendations made to the Central
facilitate multifaceted growth of rural poor. Evaluate
Government and the action taken by that Government
the role of some key rural development programmes in
on such recommendations. A copy of the report so
India in this context.
published will also be given to the petitioner.
Ordinarily, complaints of the following nature are
not entertained by the Commission: The Rural development generally refers to the process
a) In regard to events which happened more than one of improving the quality of life and economic well-being
year before the making of the complaints; of people living in relatively isolated and sparsely
b) With regard to matters which are sub-judice; populated areas. Mahatma Gandhi National Rural
Employment Guarantee Act (MGNREGA) is considered
c ) Which are vague, anonymous or pseudonymous;
as a "Silver Bullet" for eradicating rural poverty and
d) Which are of frivolous nature;
unemployment, by way of generating demand for
e) Which pertain to service matters. productive labour force in villages. It provides an
alternative source of livelihood which will have an
Q7.(a) Contemporary urbanism advocates the impact on reducing migration, restricting child labour,
integration of diverse modes of urban planning and alleviating poverty, and making villages self-sustaining
management concerns. Discuss the above statement in through productive assets creation such as road
light of urban development in India. construction, cleaning up of water tanks, soil and water
conservation work, etc.
The rural developmental programmes intend to reduce
the poverty and unemployment, to improve the health
Integrated urban design cuts across disciplines and and educational status and to fulfill the basic needs
silos in order to truly address a challenge within all its such as food, shelter and clothing of the rural
complexity. The main aim of integrated urban planning population. To improve the conditions of rural people,
is to“identify opportunities to solve problems Government of India launched some schemes through
holistically.”. To meet the current and future
the planning commission of India such as Mahatma
requirements of a consistent and rational use of energy,
key fields of operation, like urban mobility, energy supply Gandhi National Rural Employment Guarantee Act
along with efficient energy consumption and a (MGNREGA), Rastriya Sama Vikas Yojana (RSVY), Indira
well-balanced use of available space, must be treated Awas Yojana (IAY), Sampoorna Grameen Rozgar Yojana
and developed jointly, with a focus on the common (SGRY), Integrated Tribal Development Project (ITDP),
energy objective. Pradhan Mantri Gram Sadak Yojana (PMGSY), Integrated
The challenge of integrated urban planning is to Child Development Services (ICDS), Development of
organize our lived space in such a manner that Women and Children in Rural Areas (DWCRA), etc. All
functions strengthen each other, have the opportunity to these schemes are aimed to reduce the gap between
develop and do not get in each other’s ways. Integrated rural and urban people which would help reduce
urban planning is a modern planning approach closely imbalances and speed up the development process.
connected with the complex nature of the cities and
necessity of creating sustainable and resilient

(c) Police-public relations in India need to be

improved. Suggest measures to strengthen relations A paradigm shift has now taken place at the national
between police and public. level from the relief centric syndrome to holistic and
integrated approach with emphasis on prevention,
mitigation and preparedness. These efforts are aimed
Among several essential prerequisites for public to conserve developmental gains as also minimize
acceptance of the police, legitimacy of all their actions losses to lives, livelihood and property. A typical
depends upon the extent to which the public judges the Disaster Management continuum as shown below,
police to have been behaving properly in accordance comprising of six elements i.e., Prevention, Mitigation
and Preparedness in pre-disaster phase, and Response,
with the basic rules and values. The central aspect of
Rehabilitation and Reconstruction in post-disaster
this facet is Rule of Law. phase, defines the complete approach to Disaster
Management.
● The need to bring in change in attitude, secure
greater involvement of the people in policing
and spread human rights awareness and
(b) The institutional legacy of 'well-entrenched state'
education are amongst the core issues for
affected the post-reforms promises in India. Explain
consideration.
the statement in the light of economic reforms in India.
● The police are embodied with a symbol of state
power and this makes it more vulnerable to
misuse it. In a significant way, the institutional legacy of ‘a
● Emphasize on the need for change in attitude well-entrenched state’ affected the post-reform
possibilities in India. As a commentator argues, ‘India’s
because public servants are to serve the people
bureaucratized regime – the license-quota-permit raj –
and not to act as masters.
has had major, unintended consequences on
● The problem also lies in the fact that the post-transition patterns: all state governments and
judicial system and the different elements of central regimes continue to rely on state-led strategies
the justice system-such as investigation, of reform; there is no “Washington Consensus” or
prosecution, the continuous adjournments in “neo-liberal” route to reforms in India’. There is no doubt
the courts due to witnesses not appearing, that economic reforms brought about radical changes in
delays in justice and all this has failed and India’s political economy. Yet the old regulatory regime
unless these are made functional there is going of the bygone era remained critical in the path and
processes of liberalization in a very decisive way. What
to be no dent on human rights issues.
thus proliferates across India is ‘state-guided routes to
● It is important for the civil society to be alert to
liberalization rather than market fundamentalism’. This
ensure that the police provide proper service. is reflected in the obvious distortions in India’s
● Another form of poor policing is poor or lack of economy. The technology-based export-oriented
supervision of cases by senior officers city-centred economy is flourishing in the new economic
especially in far flung police stations in the environment while the agricultural economy remains
state. backward and those associated with this ‘have little
expectation of a better future remain preoccupied with
Q8.(a) In past two decades India's public policy on the daily struggle to secure a livelihood’.
Disaster Management has shifted its focus from
rescue, relief and rehabilitation efforts to holistic
management of disaster. Analyse.

(c) Do you agree with the view that the civil service in
India is losing its neutral and anonymous character ?
Argue your case.
Too much of protection can reduce a person to

cowardice. This is what a happening to civil
servants, they willingly become cowards since they do
not have courage even to face a transfer or some minor
inconvenience for upholding principles of good
governance. Like a ‘coward who dies a thousand deaths’
they are compromising and acquiescing every time just
to keep and positions safe.
The civil service is not merely the preserve of the
‘generalist’. Governance today is a complex matter. In
any case, civil servants are not only responsible for
maintaining law and order or collecting revenue, ‘they
also head scientific and technical departments. The
expansion in the duties of the government , more
so since the independence, makes it imperative that
the civil services are manned by people with calibre.
After all, the standard of administration depends on the
people appointed to these very responsible posts. It
might even be said that it is the duty of talented young
persons to serve the country. There are several
examples of civil servants who valiantly crossed
seemingly in surmountable hurdles, sometimes at a
great cost to their personal lives, and contributed to
social development or sought to clean up the system. A
few names that readily spring to mind are K.J. Alphons,
Arun Bhatia, Keshav Verma, and S.R. Rao. Civil service
activism is now a reality. In fact, it would not be an
exaggeration to say that civil service provides possibly
the best platform for activism.

SECTION-A can help you understand the test .Taylor’s principles are
guidelines to action. In scientific management, there is
Answer the following in about 150 words each: 10 x 5 = one right way to do a task; workers were not encouraged
50 Marks (in fact, they were forbidden) to make decisions or
evaluate actions that might produce a better result.
Q1 (a) "The strength of Public Administration is in its
exploration of the complexities and nuances of public (c) "Arbitrariness in the application of rule of law
policy making and implementation." Discuss. 10 Marks is a primary cause of poor governance." Discuss.
Public administration theory has always struggled to In simple terms, Rule of Law is the restriction on the
find a clear-cut understanding of the publicness of arbitrary exercise of power by subordinating it to
public administration. The first conceptual version well-defined and established laws. Law should govern
derives its understanding of exploring the public/private the nation and not the arbitrary decisions by individuals.
dichotomy and of the complexities and nuance of the Thus, Rule of Law embodies the doctrine of supremacy
public policy making process and implementation. of law. Arbitrariness is typical of various forms of
Public administration is the formulation and particularly despotism, absolutism, authoritarianism, and
implementation of public policy and the examination of totalitarianism.Despotic governments include even
the strategies and choices associated with that highly institutionalized forms of rule in which the entity
process. at the apex of the power structure is capable of acting
without the constraint of law when it wishes to do so.
(b) Principles of analysis and principles of action
were not differentiated in Taylor's scientific (d) Departments, Boards and Commissions as
management. Comment forms of organization are dissimilar in the context of
A general law or rule adopted or professed as a guide to accountability and responsibility." Analyse.
action is principles of action whereas in analysis of Based on the distribution of authority, there are two
data there are a number of underlying principles that main systems namely Bureau System and the Board or

Commission system within departments. When all the the part of local communities. More extensive
administrative authority is invested in a single individual government often means a greater number of elected
within the department then the system is Bureau. When officials and public administrators (or bureaucrats).
a plural body is vested with all the administrative power The recognition of a legitimate active engagement role
then the system is known as Board or Commission. If for bureaucracy in governance began when Public
the department is to carry out work of administrative Administration and Political Science scholars and
character, the Bureau system is more appropriate. For reflective practitioners in government service began to
services and functions that require collective conceptualize public administration as an organic
intelligence, holistic view points, mature decision process.
making, a Board system works well as there are more Additionally, within the paradigm of active
members to arrive at balanced decisions.Some engagement the act of administration includes an
researchers like Pugh, Hickson and Hinnings pointed interactive process occurring between professionals
out that the size of the organization and technological and citizens rather than involving simply a one-way
developments are other important determinants of the bureaucratic enterprise of policy implementation strictly
structures and hierarchy of any organization. following the dictates of elected officials. The
socio-political environment is affected by what
(e) Administrative man bridges the psychological man administrators will do and how they will accomplish
and the rational man. Explain. their goals; responsiveness to changing conditions is
The administrative man will always have a simplified critical for state and local government agencies.
model of the situation in question. The administrative Around the country – in urban, suburban and rural
man will seek only a limited number of alternatives areas alike – public administrators, non-profit agency
and/or information about the consequences of different managers, and private organizations are increasingly
alternatives. Decision processes are oriented towards working in an environment in which they attempt to
finding and choosing among satisfying alternatives. learn from each other and communicate, coordinate and
Only occasionally a decision is driven by maximizing. As collaborate to bring solutions to the attention of elected
the administrative man is satisfied with a limited officials to whom they report.
knowledge of the situation that she must consider, she Administrative capacity for such adaptation and
can make decisions from relatively simple heuristics, innovation borne of a collaborative learning process is a
which does not require an impossible or unrealistic critical element in the promotion of sustainability in
overview and insight. American state and local government. It is very
important that U.S. state and local government not
Q2.(a) The movement towards governance as an become so much the victim of the “hollow state”
organizing concept for public administration and phenomenon — a concept of minimalist government
management is because the focus of administration entities and maximum use of contracted services — that
has been shifting from the bureaucratic state to the collaborative learning in service of sustainability does
'hollow state' and 'third-party government. Critically not take place.
examine.
(b) "Organizations of the future will be
The hollow state is a metaphor for the increasing use of organic-adaptive structures but temporary systems."
third parties, often nonprofits, to deliver social services Discuss how Warren Bennis Characterises the new
and generally act in the name of the state. New units of form of organization.
government reflect growing and changing demands on

According to Bennis, an ‘organic-adaptive’ structure is telephone switching equipment. The researchers found
an “adaptive, problem-solving, temporary system of that although the workers were paid according to
diverse specialists that are linked together by individual productivity, productivity decreased because
coordinating and task evaluating specialists in an the men were afraid that the company would lower the
organic flux .Bennis explains that any and all major base rate. Detailed observation of the men revealed the
accomplishments made by corporations are a result of existence of informal groups or "cliques" within the
a collaborative effort. In the past, oftentimes only one formal groups. These cliques developed informal rules
person generally received the credit for the of behavior as well as mechanisms to enforce them.
accomplishment; however, whether or not an The cliques served to control group members and to
accomplishment was publicly recognized as an manage bosses; when bosses asked questions, clique
individual or collaborative effort, the fact remained that members gave the same responses, even if they were
nothing could have been achieved without a team of untrue. These results show that workers were more
assistants. responsive to the social force of their peer groups than
Bennis feels that in today’s society, that is complex and to the control and incentives of management.
technologically sophisticated, the most urgent projects
require the coordinated contributions of many capable Q3.(a) Performance information use is a form of
people. Also, because timely information is the most organizational behaviour that is influenced by
important commodity, Bennis believes that individual job, organizational and environmental
collaborations is not only desirable, but inevitable . factors." Critically analyse.
According to Bennis, “one is too small a number to
produce greatness”. Bennis also had the foresight, The use of performance information and performance
during the late sixties, to determine that “while skills in of public sector professionals varies with the targets of
human interaction will become more important, due to management control. Performance management is
the growing needs for collaboration in complex tasks, positively related to publication performance when
there will be a concomitant reduction in group performance information is used for the control of input
cohesiveness”, and an ‘organic-adaptive’ corporate targets. In contrast, we find negative associations of
society will force “people to develop quick and intense performance information with performance when used
relationships on the job, and learn to bear the loss of to control output targets. Public managers in
more enduring work relationships” . professional fields should consider these countervailing
relationships when they compose and use control
(c) "Productivity is not the result of working conditions systems. Performance management is at the core of
but the result of emotional response of workers to public sector reforms that have spread across many
work performed." Are Elton Mayo's findings relevant in Western countries and beyond. Public organizations
contemporary organizations? increasingly produce performance information to
Elton Mayo study was to find out how payment support decisions by managers and policymakers, to
incentives would affect productivity, the surprising drive learning behaviors of organizational members, and
result was that productivity actually decreased. Workers to give account to external stakeholders. Performance
apparently had become suspicious that their management has pervaded almost the entire public
productivity may have been boosted to justify firing sector, including subfields in which professional work
some of the workers later on. The study was conducted prevails. Professionals are driven by an ethical
by Elton Mayo and W. Lloyd Warner between 1931 and commitment to their profession and dependent on
1932 on a group of fourteen men who put together specialist knowledge that gives them prestige and

authority. The use of performance information in significant impact on public sector accountability. The
professional organizations may have different reform programmes were variously named, sometimes
implications depending on whether it is used for the as ‘managerialism’, more commonly now as ‘the new
control of input (i.e., appointment, promotion, and public management’, terms which mark a new emphasis
tenure) or output targets (i.e., performance-based on the role of management and managers in
funding and bonus payments). government. The reformers followed somewhat
different paths in different countries, according to their
(b) New Public Service emphasizes democracy and particular constitutional traditions and ideological
citizenship as the basis for public administration leanings. None the less, the reforms shared sufficient
theory and practice. Elucidate. common themes and common remedies to be counted
The New Public Service describes a set of norms and as a single movement and not just a haphazard
practices that emphasize democracy and citizenship as collection of isolated changes.The broader context for
the basis for public administration theory and practice. reform was provided by the worldwide ideological shift
Neither the principles of the New Public Service nor away from a more extensive role for the state in the
those of the New Public Management have become a economy and society and towards a greater role for
dominant paradigm, but the New Public Service, and markets and private sector organisations.Examples of
ideas and practices consistent with its ideals, have this change can be found in a range of policies almost
become increasingly evident in public administration universally adopted, for instance financial deregulation,
scholarship and practice. The New Public Management trade liberalisation, privatisation of publicly owned
has championed a vision of public managers as the enterprises, outsourcing of government services,
entrepreneurs of a new, leaner, and increasingly reductions in welfare entitlements, greater reliance on
privatized government, emulating not only the practices the private sector in health and education, more private
but also the values of business. Proponents of the New sponsorship of sports and the arts and so on.
Public Management have developed their arguments
largely through contrasts with the old public
administration. The "New Public Service," a movement Q4.(a) "Developments in the field of Administrative
built on work in democratic citizenship, community and Law reflect an increasingly blurred boundary between
civil society, and organizational humanism and the state and society, and between justice and
discourse theory. The seven principles of the New administration." Has administrative law become more
Public Service, most notably that the primary role of the constitutional than the Constitution itself? Argue
public servant is to help citizens articulate and meet
their shared interests rather than to attempt to control The impact of constitution upon administrative law in
or steer society. England is meager and blurred because the English
Constitution is unwritten and, as Dicey elaborates it, the
(c) "Accountability under New Public Management has rules which in other countries form part of a
undergone a radical change, although the focus has constitutional code are, in England, the result of the
continued to remain on management." Comment ordinary law of the land.
From the mid-1980s, public service bureaucracies in In the result whatever control the administrative
almost all countries underwent processes of substantial authorities can be subjected to must be deduced from
restructuring as part of an international movement for the ordinary law, as contained in statutes and judicial
public sector reform, a movement that has had a decisions. But, in countries having written constitution,

there is an additional source of control over McClelland’s achievement motivation and Herzberg’s
administrative action, and that is the written two-factor theory.
constitution which imposes limitations upon all organs
of the body politic. In these countries the sources and Process theories are concerned with “how” motivation
modes of exercising judicial control over the occurs, and what kind of process can influence our
administrative agencies are twofold, constitutional and motivation. The main process theories are: Skinner’s
non-constitutional. It is for this reason that while at the reinforcement theory, Victor Vroom's expectancy theory,
very outset every author endeavors to distinguish the Adam’s equity theory and Locke’s goal setting theory.
scope of administrative law from that of constitutional No single motivation theory explains all aspects of
law, they can never afford to forget to mention that in a people’s motives or lack of motives. Each theoretical
country having written constitution with judicial review, explanation can serve as the basis for the development
it is not possible to separate the two into watertight of techniques for motivating.
compartments.
(c) Thrust on the citizen centricity and Right based
approaches, aim to empower the citizens. In the light
of the above, has the administrative accountability
improved ? Justify your argument
Delivering services to citizens is at the heart of what
most government agencies do. Services are therefore
critical in shaping trust in and perceptions of the public
sector. Citizens today expect more transparent,
accessible, and responsive services from the public
sector in lieu of making payment to the government in
the form of taxes. Right-based approach to governance
became popular in India in the first decade of present
century with the passage of legislations conferring
Right to Information, Right to Work in rural areas, and
(b) The content and process theories of motivation Right to Primary Education upon its citizens.
have the same focus but are different in approaches." Rights-based approaches aim at strengthening the
Do you agree? Give reasons. capacity of duty bearers and empower the rights
Content theories focus on What , while process theories holders. A citizen-centric approach is one where,
focus on How. Content theories are the earliest theories instead of the bureaucracy second-guessing citizens,
of motivation. Within the work environment they have governments consult citizens about their needs, and
had the greatest impact on management practice and encourage their direct participation in policy making and
policy, whilst within academic circles they are the least service design and delivery. Policy makers can also
accepted. Content theories are also called needs make public services more citizen-centric by using data
theories: they try to identify what our needs are and and information to better understand citizens’ needs,
relate motivation to the fulfilling of these needs. The and to support civil servants identify potential
content theories cannot entirely explain what motivate accessibility gaps. Citizen satisfaction is linked to
or demotivate us. The main content theories are: service quality and direct experience of services ,but
Maslow’s needs hierarchy, Alderfer’s ERG theory, also, more broadly, to whether citizens feel that

governments are fair stewards of limited resources and (c) Has policy analysis become a major source of
follow impartial procedures. legitimation of status quo in political and social order?
Discuss.
Section-B Policy Analysis in our times has become a major source
Q5. Answer the following in about 150 words each: of legitimization of status quo interests and social
order. The alienation of our knowledge system from the
(a) "Comparative Public Administration started social reality is the major cause of ineffectiveness and
with no paradigm of its own and developed none". irrelevance of policy analysis today. Policy Analysis is
Comment the study of prevalent policies and options available to
use them in existing scenario as per the public
The1970s saw the decline of the Comparative Public importance. Policy Analysis is of existing policy and
Administration, termination of the financial support to Policy Analysis is of New Policy. The Policy Analysis of
the Comparative Administration Group (CAG) by Ford existing policy is descriptive whereas Policy Analysis of
Foundation and merge of the CAG with the International new policy is prescriptive.
Committee of the American Society for Public
Administration to form International and Comparative (d) "Fiscal policy should address the issues of
Administration. The legacies of Comparative inequity, intricacy and obscurantism." Explain.
Administration were absorbed into the larger The fiscal policy tools are globally acknowledged as
dimensions of political science and public addressing the issues of inequity, intricacy and
administration. Public Administration noted the self- obscurantism. Fiscal policy is a potent tool for
imposed failure of CPA because it fixed unachievable achieving a government’s redistributive justice.
goals and it has developed no theory or model to define Government use fiscal policy to influence the level of
itself. Comparative administration started with no aggregate demand in the economy. It influences goods
paradigm of its own and developed none. and services, employment, inflation and economic
growth. Through fiscal policy the government tries to
(b) "Markets, hierarchies and networks represent achieve price stability, full employment and economic
modern governing structures in government." Explain. growth.
Market, Hierarchy and Networks are three governance
modes. For each different mode the relationship (e) "Prevention of misconduct requires
between the actors shaped differently. To be effective institutionalization of ethical values at the political and
the governance mode should fit their context and administrative levels." Justify.
influence their context as well. The classical The essence of the various forms of ethical dilemma
bureaucracy operates according to the governance from lies in the conflict between personal virtue and public
hierarchy and actors involved communicate through virtue. Institutionalized ethical values define the
employer/employee relationship. The network form is professional role of political and administrative
based on complementary strengths and common functionary. Need of the hour is to define the broad level
interests among independent partners. Economic principles on Integrity, Accountability, Responsibility,
actions relying on market mechanism are guided by Trustworthiness, Legitimacy, Fairness, Serving the
demand and supply forces. public interest, and efficiency and effectiveness etc. and
how to apply it in specific circumstances.

Q6.(a) "Administrative ideas must be seen in the Neo- liberal paradigm has also incorporated
context of environment in which they develop." In the self-reliance as a strategy for building people’s
light of the above statement, examine the influence of entrepreneurial spirits and absorption into the capital
New Public Management and Information and market. As women experience powerlessness in and
Communication Technologies on comparative study of through the interaction of multiple social, political and
Public Administration. economic institutions, the self-reliance model for
women’s development aims to empower them. Thus, an
Taken together, customer focus, autonomy an d important aspect of SHGs is the implicit assumption
performance contracting appear to be promoting a new that through participation in the groups, women will
spirit of innovation in public service man agers. Clearly, gain, generate and acquire power, and improve their
th e New Public Management is not just a set of ‘position’ within the family and the society.
technical measures; it has a “people” dimension. Under
the NPM, public sector decision making structures are (c) Have political realities thwarted the move towards
so designed as to let managers manage. Indeed, the evidence based policy making ? Critically examine.
NPM has exposed the overprotected ‘bureaucracy’ to According to him, public policy can be characterized as
mo dels of man agement, wh ich, if carefully adopted, the output of a diffuse process made up of individuals
can bring about improvement in classical style of public who interact with each other in small group in a
administration. According to Bower and Christenson framework dominated by formal organisations. Those
who worked on a compilation of such cases argued the organisations function in a system a political
Public Management Focus is distinct from both Public institutions, rules and practices, all subject to societal
Policy Studies and Business Management. What is and cultural influences. According to Lynn, individuals in
emphasised is the need to inculcate effective organisations function under a variety of influences, and
entrepreneurial skills to the administrative leaders. In “to understand policy-making it is necessary to
fact, this neo- managerialism is a matter of updated understand the behaviour of and interactions amon g th
version of an older Taylorism mixed with public choice ese structu res in divid uals holding particular positions,
theory, agency theory and transaction cost economics. groups, organisations, the political system and the wide
society of which they are all a part.” Therefore, instead
(b) Affirmative action in socio-economic development of involving particular methodologies policy-making in
has not altogether eliminated discrimination. Discuss it this approach is a matter of adapting to and learning to
in the context of women empowerment. influence political and organisational environments. The
The term affirmative action originated in USA to prohibit policy-making process is constrained by such factors as
unfair discrimination against certain groups of people. institutions interest groups, and even ‘societal and
Affirmative action in Development does not involve cultural influences’ The focus in the political process of
changes in the awareness, motivation and behaviour of policy-making approach is on understanding how
individuals, in the relations between individuals as well particular po licies were formed, developed, and work in
as between groups within a society. These changes can practice. Lynn argues that policy-making "...
come from within individuals and group , and not encompasses not only goal setting decision-making,
necessarily from outside. The experiences of and formulation of political strategies, but also
self-reliance have led to attempts to build local level supervision of policy planning resource allocation,
organisation like, cooperatives, credit societies, operations management, programme evaluation and
neighborhood or community development associations, efforts at communication, argument, and persuasion”.
water sharing associations or women’s groups. The

Q7.(a) “Globalization is impacting the context of Business and Civil Society and creation of rules and
national policy making. The national policy agenda is structures governing their relationships.
becoming international.” Explain. (a) Legal or hierarchical modes of governance
(b) Market modes of governance
Globalization is era of think locally and acts globally. (c) Corporatist modes of governance
Globalization has had effects on society especially (d) Network governance
policy and policy making. In era of globalization with (e) Private modes of governance
WTO obligation you cannot isolate from global affairs.
Policy making in the era of globalization is more The public administration has transformed its focus
comprehensive than the other era of policy formulation. from bureaucracy to collaboration, partnership and
It needs on the part of policy makers to visualize the networking with governance necessity. Its success
situation well and move with global context like depends on political capacities and each arrangement
environment, poverty and population growth, aids, requires a separate technical skills.
drugs, trade and industry, privatization and terrorism.
Global Warming and increasing pollution is a challenge (c) Administrative reform is "an artificial inducement of
both globally and locally. So need of the hour is to administrative transformation against resistance."
include such topics in high priority in our national policy (Gerald Caiden). Identify the nature of resistance and
making. inducements required to overcome it.
Poverty and Rising population is a challenge especially Administrative reform is defined by Gerald Caiden as
for Asian nations. The rate of increment will put heavy “the artificial inducement of administrative
pressure on mother earth because the resources are transformation against resistance……public morality left
limited. So the poverty amelioration measures and much to be desired and frequent scandals and disasters
population control always given space in national policy hardly improved the public image of officialdom.
formulation. Something had to be done to reform the administrative
AIDS and Drugs are such type of global challenge from system of government more in keeping with
which no part of earth is untouched. Its impact on contemporary needs to improve the standard of public
humanity is devastating. It is always part of local policy service and root out the inefficiency and corruption”.
making. Terrorism is a global threat and no nation of the
world misses policy against it in their national policy Nature of resistance
making. (a) Colonial legacy of status quo bureaucracy is
not willing to change.
(b) "Collaboration and its cognates for public service (b) The political masters are not ready to take risk
delivery need to be viewed from the governance by inviting administrative transformation.
lenses." Comment. (c) Lack of proper blue print for administrative
Collaboration – and its cognates consultative in-house reforms
service delivery, contracting out, commissioning, (d) No alternative reform plan of colonial
co-management, co-production, and third party administration is before our planners
certification at the center of efforts to reform the public (e) The heavy reform process is quite time
service delivery. Collaborative service delivery is a mode consuming and expensive.
of governance by which services are delivered through Inducements
interaction between different set of actors- State, (a) If the reform portrayed as for economic and
social being of Society.

(b) If the reform gives benefit to the majority of the (c) Limiting access to information to an exclusive group
masses. open up avenues for manipulation of information for
(c) If the reform agenda is the electorate mandate exploitative purposes, such as private gains.
of the party in power.
(d) If the political structure is willing to serve the (b) "Performance Management Framework enables a
people. clear line of sight between planning, measuring and
monitoring performance." Critically analyse.
Q8.(a) "Disruptive nature of developments in Performance information is key to effective
Information Technology has changed the contours of management, including strategic and operational
e-governance in the last one decade." Analyse. planning, monitoring and evaluation. The PMF enables a
clear line of sight between planning, measuring and
Governance may be defined as the way society works monitoring performance and public reporting. The
and is organized. The term Digital Governance or, community expect that the public sector will deliver
E-governance or Electronic or Electronic Governance services that are of value to them, and that the services
refers to a governance processes in which Information are delivered in a manner that upholds public sector
and Communications Technologies (ICT) play a ethics principles. Generating value will influence trust
significant role. The role played by ICT could be and confidence in public services. Through measuring
wide-ranging: in delivery and standards of governance and monitoring results, agencies gain a better
services, to how people access such services, and the understanding of the external drivers of whole-of
participation of people in the governance sphere. Government direction, how the external drivers translate
into the Government’s objectives for the community,
The role of ICT in the Governance Sphere could be 4-fold priorities and strategies and, in turn, how this affects
: (a) Improve the quality of governance products and the purpose, vision and objectives of each agency. This
services being currently provided. (b) Provide new clear line of sight enables agencies to identify which
governance services and products,(c) Enhance the services need to be delivered to meet the needs of its
participation of people in the choice and provision of customers, stakeholders and the community.
governance products and services, and (d) Bring new
sections of society under the governance sphere (c) "Objectives of performance budgeting include
(including those who is most likeable to remain improving expenditure prioritization, effectiveness and
excluded – namely the poor, the illiterate , the efficiency." Has performance budgeting worked
differently-abled, indigenous people, the migrants and effectively in governmental system ? Argue.
displaced people). After World War II, attempts to make the management
approach effective was intensified, and performance
Some facts on the role of information technology in budgeting was urged. Much of the stimulus came from
e-governance are: the Hoover Commission, which noted “We recommend
(a) Access to information forms the basis of that the whole budgetary concept of the Federal
decision-making (which could be for public good or Government should be refashioned by the adoption of a
private gains). budget based upon functions, activities and projects;
(b) Well-informed decision -maki ng is dependent on this we designate as a performance budget".Such an
the quality and timeliness of the information available, approach would focus attention upon the general
and character and relative importance of the work to be
done or upon the service to be rendered, rather than

upon the things to be acquired, such as personal Functional Classification lists are “a group of related
services, supplies, equipment and so on. activities….. for which a governmental unit is
responsible. An example is health care. This f u n ct io n
Under performance budgeting, attention is centred on can be broken down into cert ai n activities, such as
the function or activity—on the accomplishment of the home, health care, sewer and septic tank inspection and
purpose—instead of on lists of employees or mass inoculation campaigns".
authorization of purchases. “A performance budget is a
budget that uses activity classifications and Performance measurement means to indicate the
performance measurements as its basic organising relationship of inputs to activities, with an emphasis on
principle.” unit costs of performance budgeting. Performance
Reports are a look back at what an agency did with its
Performance budgeting is concerned with the efficient budget. A report compares the goals and costs
use of personnel and other agency resources to projected in the budget with actual accomplishments
accomplish the agency’s job. To achieve these ends, and costs. Thus, we define a performance budget as the
Performance budgets use activity classifications, budget that uses activity classifications and
performance measurements and performance reports. performance measurements as its basic organizing
principles.

SECTION-A is precisely one of the areas in which the democratic

rules of the game are ill defined, ambiguous,
Answer the following in about 150 words each: 10 x 5 = self-contradictory and controversial. The popular
50 Marks identification of bureaucracy with oppression cannot be
taken lightly, since the extension of governmental
Q1 (a) “ Mughal administration incorporated a functions has frequently curbed and sometimes
combination of indian and extra-Indian elements. obliterated freedom of the individual. Yet, there is also
Discuss. much evidence to show that it has furthered the cause
Although the Mughal state was an Islamic one, no of freedom. Different scholars have approached the
discrimination seemed to have been made in the problem of overpowering bureaucracy’s threat to
selection of personnel. The Mughals also wisely democracy in different ways. Some safeguards have
retained the System of village administration and already been referred to while discussing bureaucracy
methods of revenue collection of Hindu times and vis-a-vis democracy in developing societies. Some other
moulded these, with slight variations, to suit their scholars suggest ‘representative bureaucracy’ or
needs. The absence of popular or representative ‘balanced bureaucracy’ or participatory bureaucracy’ as
assemblies was not felt by the people who were quite desirable structures to safeguard democracy.
satisfied with the way they were allowed to live. Thus,
the legacy of Mughal administration to the (c) Parliamentary committees are at the
contemporary administration is rich and variegated in deliberative core of parliamentary work which is crucial
the structural as well as the behavioural dimensions. for refining legislations. Elucidate.
Since the field of control is extremely vast, the
(b) There is a constant and continuous collision Parliament appoints certain committees to exercise
between bureaucratic values and democratic values control on its behalf. These committees are composed
which adversely affects development. Do you agree? of members appointed by the Parliament from amongst
Elaborate. the MPs, both of the ruling and opposition parties
In most western Countries bureaucracy and democracy together, to bring about control. These committees
developed almost simultaneously. Thus the role of exercise control through research and investigation of
bureaucracy in a democracy is problematic because this

the varied activities of the spending departments and majority of not less than three-fourths of the weighted
submit their reports to the Parliament. votes of the members present.
(d) Considering India's diversity, the planning Q2.(a) District administration is the most important
pattern of 'one-size-fits-all' was discarded in favour of unit in governance. Most of the Central and State
indicative planning. To what extent has it been useful Government schemes and programmes are directed
to India? towards the district administration. In this context,
Since July 1991 India is committed to a policy of discuss the challenges and problems posed to the
liberalisation of economy involving de-regulation, district administration.
de-control and de-licensing. India is now wedded to The importance of both the district and the district
what is called indicative planning. Under the new officer has reduced after Independence. Many factors
dispensation, the state’s role in India marks a shift. have been responsible for it. The adoption of the
From direct rowing Indian administration is now called parliamentary system of government has transformed
upon to playa steering role. It will have to develop the institution of Collector from being an agent of a
regulatory skills and mechanisms to secure its paternalistic alien rule into a sensitive instrument of a
objectives. From a highly, centralised planning system, popularly elected government. The constitutional
India has moved towards indicative planning ,concerns position of the executive, being held continually
itself with the building of a long term strategic vision of accountable to the legislature, has caused an
the future and decides on priorities of the nation. It unmistaken concentration of power and authority in the
works out sectoral targets and provides promotional hands of the minister and his office, namely, the
stimulus to the economy to grow in the desired secretariat with the consequence that the Collector is
direction. Since the adoption of the New Economic no longer the final decision maker in many matters, as
Policy plays an integrative role in the development of a he used to be during the days of the British Raj. A fairly
holistic approach to policy formulation in the critical vivid description of his position has been given bn. N.
areas of human and economic development. The Mangat Rai, when he writes: “The district officer himself
emphasis is to maximise the output by using our limited is no longer the almost exclusive dispenser of
resources. government patronage and power in his jurisdiction. He
has to contend daily with the forces, personalities and
(e) Even if all the States combine together, they prejudice of public opinion, which are backed by and are
cannot have their way decision-making in the GST the eventual creators of political power. The district
Council, unless the Union agrees to it. Analyse this in officer has to deal with the MP, the MLA and the local
the perspective of federalism in India. political and social bosses. He must discuss, persuade,
The rules of voting in the GST Council are such that the cajole and at times evade. He is by no means the
odds are stacked in favour of the Centre in the normal near-exclusive source of information or influence within
course. The vote of the central government has a the government in regard to the policies and decisions
weightage of one-third of the total votes cast, and the he is required to implement.”
votes of all the state governments taken together have a
weightage of two-thirds of the total votes cast in that Secondly, compared to his pro-independence
meeting. As per The Constitution (One Hundred and predecessor, the collector of today lack experience and
First Amendment) Act, 2016, in case of a voting, every knowledge of the problems and people with whom he
decision of the GST Council has to be taken by a deals. With the expansion of government, he spends a
much shorter span of his career in districts. He does

not regard this period as the very heart of his career. It feared by many that sometimes even in small matters
is often merely a stepping stone to move elsewhere. An the Collectors have no say.”
ambitious and able officer now spends only three or four
of his thirty or more service years in the districts, while (b) The structural part of the Constitution of India is to
his predecessors used to spent half of their time there. a large extent derived from the Government of India
The days and nights of rest house touring are a Act, 1935, whereas its philosophical part has many
phenomenon of the past. Gone with it are the other sources. Discuss the sources of the
opportunities to know the people and their problems. philosophical part.
Like other constitutions, the indian Constitution also
Thirdly, the IAS Collector now has no vital link with the commences with a preamble, which reflects the
judiciary. The importance of this change is not that it aspirations and expectations of the people of India.
has deprived the IAS Collector of an avenue of Notably, the Indian Constitution has set up up
promotion, not even that they have lost an opportunity parliamentary democracy of the type established by the
of experience in the interpretation of the law, it is Federal Constitutions of Canada and Australia.
rather that administrators are now judged in courts of Nevertheless, this idealized notion, forming part of the
law by judges who have no experience themselves of motto of “Liberty, Equality, Fraternity” of the French
the difficulties, responsibilities or even the temptations Revolution has special relevance for a multi-racial and
of administrative work. polity- a religious country like India. It would be clear
from the foregoing description that the preamble of the
Fourthly, the integral and built-in dependence between Indian Constitution provides a framework of ideas and
the police and the civil authorities has also disappeared values for the Indian administration. Since the
which has further weakened the concentrated command responsibility of enforcing the Constitution is that of the
and authority of the IAS Collector. The police, for government, it is expected of the administrative
reasons, tend to become of special importance to the system, which is an integral component of the executive
political leadership in the states. As such the district branch of government, to facilitate the application of the
magistrate has been increasingly feeling that though he ideals of liberty, equality, justice, socialism and
is responsible for law and order, yet he is not in secularism in the governance of the country. Not only
command of the police. Lastly, the Panchayati raj has need governmental laws and politics reflect these
led to the emergence of a new class of district-level interrelated ideas, but the functioning of the
politicians who have come to command considerable administrative system, including the attitudinal
patronage and power, even influence, over the state orientations and behaviour of administrators, should
government, thus eclipsing the position of the District manifest these ideals and values. In an ideal-typical
Collector in the state administrative system. P. R. situation, the nature and performance of the
Dubhashi rightly observes: ‘’The position of the collector administrative system would be judged in the context of
is under strain..... A simple ‘unity of command’ no the values forming its context. Nevertheless, any such
longer obtain. Apart from the vertical commands of the appraisal will have to be realistic enough, taking into
technical hierarchy, there are now the cross- commands account the limitations imposed by a complex and
of the elected representatives. The local pressure volatile environment affecting administration.
groups have grown in strength. The easy accessibility to
the policymaker at the state headquarters has eroded (c) The public services in India are an evolution of the
the finality of the decision of the officer on the spot. It is British Raj. Trace the Indianization of the services.

The major legacy of the Britishers was the creation of attentively, liked praise, did not take offence at warnings
the Civil Service system, to man the administrative and advice. He was immune from the pressures of
apparatus created by them. They created the Indian Civil organised commercial and industrial interests. He never
Service (ICS) to man higher posts at the centre and the passed his responsibility on to his subordinates, his
states. The Indian Police Service (IPS) was also work had preference over all other interests. He had
established to man the higher posts in the police enormous power of perceiving, understanding and
department. Recruitment to these services was based knowing the attitude, reactions, and requirements of the
on competitive examinations in which merit alone was people. With the transfer of power in 1947, the British
the sole criterion of recruitment. The other services rulers withdrew but left a well-trained. competent and
were required to aid the ICS and IPS at the central and experienced Civil Serviceable to take on multifarious
state levels to run the administration of the country. tasks of the government, which proved to be a
were also established by the Britishers and these tremendous asset to India in the moment of need. Even
services with some modifications continue even today Nehru and Sardar Patel who were critical of the Service
in the name of Central Services and State Civil Services. during the national movement had realised the
The Indian Civil Service, at first recruited in England, but importance and relevance of the Service after
only after the Lee Commission Report (1924), was independence when they saw the working of the Civil
Indianised. Servants. Nehru observed in 1949, that “every thinking
person knows that running a modern government
The ICS civil servants were generalist and non-technical requires the machinery of highly organised, efficient and
in nature, highly educated, carefully selected by a loyal services”.
difficult competitive examination, adaptable, honest,
devoted to duty, fully co-operative and broad in outlook, Q3.(a) Does the privatization of key public sector
rather than being regional or provincial in their loyalties. bodies augur well for welfarism in India? Discuss with
They started their career in the districts with a period of suitable illustrations.
attachment under the guidance of an experienced
officer and later themselves took charge of the district. Privatisation is the process of involving the private
They sometimes also served for a period at the sector in the ownership or operation of a state owned or
Provincial Secretariat. They would also be posted for a public sector undertaking. Privatisation in a narrow
period on deputation at the Central Secretariat but sense indicates transfer of ownership of a public
would remain on the strength of their province of sector undertaking to private sector, either wholly or
original allocation, and after the deputation period was partially. But in another sense, it implies the opening up
over, they would return to that province. The senior of the private sector to areas which were hitherto
posts at the central level were reserved for the ICS, but reserved for the public sector. Such deliberate
they were always taken on deputation from the encouragement of investment to the private sector in
provinces. Thus, the name ‘All India Service’ indicated a the economy, while emphasizing to a lesser degree the
manner of recruitment and coverage of all levels of expansion or growth of the public sector, will our a
government by the Civil Servants of these Services and period of time increase the overall share of the private
did not imply transferability on all India province from sector in the economy. This is the broader view in which
one to another. It was due to the Servants’ familiarity privatisation of the economy can be effected. The basic
with the local people, the language, the needs and the purpose is to limit the areas of the public sector and to
geography of the region. The ICS administrator always extend the areas of private sector operation , including
expressed his views frankly, talked freely, listened heavy industries and infrastructure. The quality of

public goods does get affected when operating at a direction and control of the entire election process in
loss, for significant periods of time. Therefore, there is a the country has been vested under the said clause in a
need to find a middle ground that can allow Commission called the Election Commission. The
governments to ensure social welfare by maintaining independence of the EC can be assured only if the
both the quality and price of public goods. appointment and term of office of the Chief Election
Commissioner and Election Commissioners are
(b) The spirit of democratic values requires that the insulated from the influence of the political executive.
independence of judiciary remains absolute. It is high
time that the All India Judicial Service (AIJS) was Q4.(a) Examine the National Health Policy in the
created. Elaborate. context of the current pandemic situation, Identify the
The promotion of good governance through judiciary problems and suggest improvements.
depends on its independence to a great extent. An
independent, unbiased and able judiciary is the first The National Health Policy, 2017 (NHP, 2017) seeks to
requirement of justice. Independence of the judiciary reach everyone in a comprehensive integrated way to
means independence from the government in power move towards wellness. It aims at achieving universal
since judges have to provide justice not only between health coverage and delivering quality health care
citizens but also between a citizen and the State. The services to all at affordable cost. The policy proposes a
Indian Constitution makes provision for an independent potentially achievable target of raising public health
and impartial judiciary. Former Chief Justice expenditure to 2.5% of the GDP in a time bound manner.
Chandrachud opines that the independence of judiciary
is the “cardinal feature” and observed that the “judiciary The NHP faces major challenges
which is to act as a bastion of the rights and freedom of (a) the changing demographics of the country,
the people is given certain constitutional guarantees to (b) the poor state of the public infrastructure,
safeguard the independence of judiciary”. The provision (c) lack of financial resources,
of an all-India judicial service (AIJS) on the lines of the (d) paucity of human capital and poor governance.
Indian Administrative Service and the Indian Police
Service was mooted soon after Independence. The Suggestions :
provision of AIJS was included in Article 312 of the (a) Quantum increase in budget allocations
Constitution through the 42nd Amendment in 1976. (b) Rebuilding trust between doctors and patients
(c) Reclaiming peace and harmony
(c) To strengthen the Election Commission of India and (d) A stronger push against tuberculosis
its commissioners is the need of the hour. Suggest (e) Primary healthcare centres regain their primacy
measures to make it more independent and impartial. (f) Women and girls are able to access care whenever
they need
It is inherent in a democratic set up that the agency (g) Establishment of Oxygen plant in hospitals itself
which is entrusted the task of holding elections to the (h) Increment of number of ventilators in hospitals
Legislatures should be fully insulated so that it can
function as an independent agency free from external (b) The Speaker of the State Assembly has assumed a
pressures from the party in power or executive of the significant role in formations and dissolutions of
day. This objective is achieved by the setting up of an governments. Examine under the circumstances of
Election Commission, a permanent body, under Article coalition governments with examples.
324(1) of the Constitution. The superintendence,

The members of VidhanSabha elect their presiding develop their own sources and check and cross-check
officer known as the Speaker. The Speaker presides over the intelligence gathered by the official unit. Timely
the meetings of the House and conducts its information is a great help in maintaining law and order.
proceedings. He maintains order in the House, allows The police acts on the orders of the Magistrate.
the members to ask questions and speak. He puts bills The relationship between the DM and Superintendent of
and other measures to vote and announces the result of police is full of tension. The SP feels that his position
voting. The Speaker does not ordinarily vote at the time has un-necessarily been subordinated to that of the DM,
of voting. However, he may exercise casting vote in case but the control of law and order by DM has stood the
of a tie. Even while upholding the Karnataka Speaker’s test of times since its inception. He being the head of
orders disqualifying 17 defectors in 2019, the Supreme district administration, has wider resources to gather
Court has allowed the former legislators to contest the information and much broader view of administration
December 5 by-elections to 15 Assembly seats. The compared to S.P. Many arguments have been given on
then Speaker, K.R. Ramesh Kumar, kept them at bay for both sides but the controversy is continuing.
days by refusing to act on their resignations. Ultimately,
he disqualified all of them and said the disqualification
would go on till 2023 — the end of the current
Assembly’s term. The Speaker’s stance was quite
controversial as it appeared to create a conflict between
resignation and disqualification. The Speaker was also
hoping to keep the defectors out of any alternative
regime as members disqualified for defection are barred
from becoming ministers until they get re-elected.
(c) At the district level, police functions under the

overall supervision and control of the District
Magistrate. Comment.
District Magistrate is responsible for the maintenance
of law and order in the district. He is the head of
criminal administration and supervises all Executive Section-B
Magistrates in the district and controls and directs the Q5. Answer the following in about 150 words each :
actions of the police. He has supervisory powers over
the administration of jails and lock-ups in the district. (a) Political neutrality of civil servants has been
Maintenance of Law and order is the joint responsibility regarded as one of the cardinal principles in
of the Superintendent of Police, who head the Police democratic governments. Is its sanctity being
force in the district, under the supervision of District maintained in practice in India? Elucidate.
Magistrate. One of the important traditional virtues of Indian Civil
The intelligence system is organised by the Special services has been its neutrality. In the words of the
Branch of the State Government. It has a small unit at Masterman Committee, “The characteristic which has
the district level, which supplies information to the State long been recognized in the British administrator and
and keeps informed of these developments to the S.P. extolled as a special virtue is his impartiality, and, in his
and D .M. at district level. But S.P. and D.M. do not public capacity, a mind untinged by political
solely depend on this official information, they also prepossession.” The main ingredients of the British

concept of Civil Service neutrality may be listed as: “(i) The issue of the excessively strict control exercised by
public confidence in the freedom of the Civil Service the state government over rural bodies through the
from all political bias ; (ii) minister’s confidence in domination of bureaucracy. To ensure proper
obtaining loyal. service from the civil servants performance of their functions, the state government
irrespective of what political party is in power; (iii) high exercises legislative, administrative, financial and
staff morale based on confidence that promotions and judicial control. This proves to be more of a curse than a
other rewards do not depend upon political origins or boon, because, it stead of providing guidance and
partisan activity but on merit alone.” The American support through the control mechanism, the control
concept of Civil Service neutrality, as described by the turns out to be negative, restricting the functioning of
Hoover Commission, is: “They should keep clear of all these bodies. Supersession, till 1992, was very arbitrary.
political activity, preserve their neutrality in matter of Through this tactic the government not only meted out
policies..... This means that they must avoid such punishment to the elected representatives but to the
emotional attachment to the policies of any citizens as well, depriving them of their elected
administration that they cannot accept, change and institutions. Now, the Constitution 73rd Amendment Act
work in harmony with new leaders ....” Senior civil has taken away the power to supersede or suspend the
servants would necessarily refrain from all political municipal body from the state government However, the
activities that would affect adversely their ability to state government can dissolve them. The financial
perform their official duties fairly, or that would tend to control over the rural bodies has also been so rigid that
identify them personally with a political party or its they have virtually no autonomy left.
policies.
(d) Urban local governance is perpetually afflicted
(b) Budget is an indicator of financial health of a with lack of financial autonomy and starvation of
polity which is reflected in the statement of income funds. Elaborate.
and expenditure. Discuss. The first and most serious problem facing the urban
A budget are about politics. All politics are ultimately local bodies is the acute scarcity of finance. Generally,
about who countries budget. The budget is the ultimate their sources of income are inadequate as compared to
total for governmental in implementing their policies. their functions. Their chief sources of income are the
The political agenda will, therefore, dominate the varied types of taxes. However, most of the income
Budget in terms of both rhetoric and financial generating taxes are levied by the Union and state
allocations. Concerns about giving in to temptations for governments and, the taxes collected by the urban
populism have been voiced. While the budgetary bodies are not sufficient to cover the expenses of the
implication are only in terms of interest payments, services provided. Though they can impose certain new
everybody knows that expanding liabilities without taxes, the elected members of these urban bodies
matching assets being created will come back to haunt hesitate in doing so for fear of displeasing their
the government at some point in time. In the budget is electorate. The administrative machinery, at the
an implementation instrument of policy, then how can disposal of these local bodies, is insufficient and
we bring the budget closer to the people it is intended to ineffective. The staff, which is often underpaid, indulges
serve? in corrupt practices which leads to loss of income. Quite
often, failure in collecting taxes leads to accumulation
(c) Panchayati Raj Institutions are still plagued by of arrears running into crores of rupees. As a result,
State control and domination of bureaucracy. Argue many urban bodies are on the brink of bankruptcy.
your case.

(e) There has been a long-standing demand for as a valued ally which brings to notice procedural and
separation of police investigation from prosecution. technical irregularities and lapses on the part of
Analyze its merits and demerits. individuals, whether they be errors of judgement,
The separation of the prosecution wing from the negligence, or acts and intents of dishonesty. The
investigation wing, following the CrPC amendment in contemporary roles of audit and administration are
1973, was an ill-considered step. It broke down the accepted as axiomatic, being essential for toning up the
coordination between the police and the prosecuting machinery of Government. Unfortunately, in India this
wing, which is essential for successful conviction in conception of complementary relationship has yet to be
criminal cases. A study done by the state CID in Odisha evolved. Audit continues to be considered as something
showed how conviction figures started plummeting alien, something extraneous, and something of the
after the separation of investigation and prosecution nature of an impediment. A natural resistance has, thus,
staff, due to lack of coordination between the two. developed in the administrative system to the
Again, the appointment of prosecutors, particularly absorption of the suggestion of audit. This trend has
district prosecutors, on political considerations has become more and more pronounced in recent years.
weakened the quality of prosecution. Supervision over With the advent of independence and the acceptance of
prosecutors exercised by the Directorate of Prosecution the concept of a welfare State, there should be the
is also poor. As a result, often, these two vital segments development of a commonness of purpose of
of the criminal justice machinery act not in coordination endeavour and achievement. The need between audit
but at cross-purposes. and administration has, thus, assumed paramount
importance.
Q6.(a) The office of the Comptroller and Auditor
General of India stands on the pillar of autonomy. (b) Implementation of administrative reforms is
Discuss the major lacunae in the functioning of this humongous and arduous. What lacks the push to
constitutional body and also suggest measures for its realize the changes?
strengthening. Administrative reform is a slow meandering process,
requiring enormous patience and tact. In his book
There are several critics of the role played by the Administrative Reform Comes of Age, Gerald Caiden
Comptroller and Auditor-General of India. In this regard, concludes, ‘Administrative reform difficult and fraught
Paul H. Appleby has said, “The function of the C&AG in with problems. It rarely succeeds as expected and
India is, in large measure an inheritance from colonial usually fails through faulty implementation’. No
rule. The function did not impede British rule it upheld proposal for reform is likely to be effective if there is no
that rule and was an integral part of it. It greatly significant change in mindset of the bureaucracy. An
restricted the Indians who served the Government. attitudinal and behavioural revolution must animate
These restrictions were sought by the Governments in a India’s bureaucracy frozen as it is in the antiquated
situation of administration largely concerned with police mould of colonial culture. The new slogan should be
and taxation functions and not engaged in rapid pursuit service with smile, not after a mile! India’s foremost
of Welfare State objectives. need, today, is to repair and reconstruct the country’s
public administration even though the country shows a
To a larger extent these observations made by Appleby proneness to set up a committee on administrative
are misleading, unsound and incorrect. According to reform at the slightest provocation. A serious approach
Ashok Chanda in all recognised democracies, audit is to administrative reform must follow a system path.
not just tolerated as a necessary evil, but is looked upon Public administration of the land has become too

unwieldy picking up a lot of non-essential work, superannuation. Every government is only too willing
resulting in blatant oversizing. and happy to reward those who play ball.
(c) The signal to other civil servants is clear. Toe
(c) Immediate post-retirement appointments of high the line and get rewarded. On a number of occasions
officers of government have become a new trend. these rewards are bestowed irrespective of the
Discuss its pros and cons. experience or the competence of the officers
A large number of civil servants opt for post-retirement concerned. These are rewards for ‘services rendered’,
jobs in the government. They start toeing the line of not very different from a ‘bakshish’. However, as
those who can help them obtain a post-retirement mentioned earlier, bureaucratic talent can’t be allowed
assignment in the government. It prevents officers from to go waste. It needs to be harnessed after retirement.
airing their views freely and frankly in the interest of
their organisation under the apprehension that their Q7.(a) Ward committees in urban local governance
personal interest could be adversely affected. have remained more tigers. The ideal of realizing
Pros : effective people's participation in collaboration with
(a) There are indeed a large number of civil local functionaries is still in the pipeline. Evaluate the
servants who truly deserve to be and are indeed gap in theory and practice.
engaged by the government after they superannuate.
Only the methodology of post-retirement engagement Due to an acute lack of civic consciousness, public
needs to undergo a change. participation in urban bodies has been negligible. The
(b) An institution like the UPSC can be tasked with population of the cities consists of heterogeneous
shortlisting the candidates for post-retirement groups and they are alienated from one another. Most of
assignments. The officer will then not feel beholden to the city population was once rural and, even now, it
the government for the assignment. It will virtually looks at the city merely as a place to earn a livelihood,
eliminate the quid pro-quo attitude that is currently the and has little attachment with it. While one understands
order of the day. the reasons behind the low level of participation of the
(c) It would be wrong not to use the services of rural population in the management of their
those civil servants who have acquired enormous politico-administrative institutions, it is difficult to
experience and expertise during their career. However, appreciate a similar, if riot identical, phenomenon in the
the criteria for their selection should be their urban areas. Why is it that, despite a relatively higher
competence and integrity and not servility and/ or level of literacy and educational standards, city-dwellers
allegiance. This can and should be done in the interest do not take adequate interest in the functioning of the
of better governance. urban government bodies?
Cons:
(a) Their lack of objectivity (in some cases A perceptible apathy on their part towards participating
collusion) results in enormous loss to the organisation, in the governance system pushes such institutions into
though they benefit personally and climb the a state of complacency and irresponsibility. It is ironical
bureaucratic ladder, reach the top and even end up that the urban population has rarely, if ever, raised its
getting post-retirement assignments. voice against cases of prolonged supersession of
(b) There have been some cases where even civil democratic municipal bodies.
servants who have enjoyed a reasonably sound
reputation begin to change as they approach

(b) Police needs to be made accountable and freed Welfare Society, and in underdeveloped countries it
from the grip of politics. It is a big challenge not only implies planned effort. This effort to succeed calls for a
for law and order but also for the development of the new type of positive-minded, action-oriented and
country. Critically examine. humanely inclined public official.The successful
In the existing set-up, the police function under the carrying out of tasks of both types-development and
executive control of the state government. According to democratization-requires on the part of administrators
the Commission, the manner in which political control not only qualities of initiative, leadership and taking of
has been exercised over the police in this country has responsibility, but also an emotional and intellectual
led to gross abuses, resulting in erosion of the rule of integration into what may be called democratic social
law and loss of police credibility as a professional values. Such tasks can hardly be well performed by
organisation. The threat of transfer / suspension is the officials who are merely hardworking, procedure-minded,
most potent weapon in the hands of the politician to impartial and honest. Something more is needed to
bend the police down to his will. The Commission push the programmes through on time, namely, a sense
recommended that the superintendence of the state of emotional integration with the policies and
government over the police should be limited to ensure programmes and identification with the interests of the
that police performance is in strict accordance with law. common man. An emotionally indifferent or ‘neutral’
In the performance of its tasks, the police should be bureaucracy will fail to deliver the goods.
subject to overall guidance from the government which
should lay down broad policies for adoption in different Q8.(a) "There are adequate legal mechanisms to
situations. There should however be no instructions in address corruption malpractices in administration, but
regard to actual operations in the field. In regard to they have failed to curb the menace to any noticeable
investigation work, in any case, the police are beyond degree." In the light of this statement, discuss the
any intervention by the executive or politicians. efficacy the institution of Lokayukta in Indian States.
On 22 September 2006, the Supreme Court of India
delivered a historic judgment in Prakash Singh v. Union The Reports of the Lokayuktas show that the largest
of India, instructing central and state governments to number of complaints have been regarding the
comply with a set of seven directives that laid down departments of public works, health, irrigation, civil
practical mechanisms to kick-start police reform. The supplies, municipalities and cooperative societies. In
Court’s directives sought to achieve functional this regard, sometimes genuine complaints by affected
autonomy for the police (through security of tenure, citizens made to the state Lokayuktas are rejected for
streamlined appointment and transfer processes, and want of jurisdiction, anonymity and triviality. On the
the creation of a “buffer body’ between the police and other hand, Lokayuktas complain that they do not get
the government) and enhanced police accountability sufficient information from the government
(both for organisational performance and individual departments, and State investigating agencies. As a
misconduct.) result, complaints filed with Lokayuktas are not cleared
expeditiously; and thus, citizens do not get speedy
(c) Civil servants are trained to follow rules and justice.A close look at the performance of Lokayuktas in
procedures so much that they become bureaucrazy. Do Indian states does not create a very positive
you agree? Justify. impression. In fact, in some states, the overall
The role of the civil servant has changed with a shift in performance has been far from being satisfactory. One
the nature and purpose of the State from negative to of the pertinent problems relating to its function is
positive. The State, today, is engaged in creating a hindered by the single institution of Lokayukta looking

after the complaints of corruption as well as dealing well as equal opportunity as stipulated in the Indian
with maladministration issues, which negatively impacts Constitution.
its efficient functioning. There is so much that could
have been done, and much more that should have been (c) Ideally citizen-administration interface is supposed
avoided.The Lokayuktas of various states have not to be based on trustworthiness and purposefulness, in
shown similar orientation towards their respective roles. reality it is observed to be plagued by suspicion,
Some have been more enthusiastic and assertive than conflicts, stresses and strains. Do you agree?
others, while a few others have been over-cautious and Elaborate.
conservative in interpreting their roles. A few No system of governance can survive for a long time
Lokayuktas could make a mark during certain periods without the support of the citizens. It is evident from the
due to support of the state political leadership, while history of the nations that longevity of their
most have suffered on account of the apathy of state governments largely depended on the co-operation and
governments. It proves that the success of the support rendered to them by their citizens. Wherever
Lokayukta depends upon the neutrality and personal this support was missing, the nations found themselves
charisma of the Lokayukta. in deep trouble that made their future uncertain. The
administration-citizen relations are significant because
(b) Despite the constitutional provisions for the support and consent of the governed is a
representation, the voice weaker of sections is not prerequisite for the sustenance of a representative
having the desired impact in the realms of Panchayati government like the one in India. The traditional theories
Raj Institutions. Critically examine. of relationship between the State and society or the
It is widely believed that the analysis of age, education, government and citizens, in different political systems,
Caste, family structure, occupation, income, land be it laissez- faire or democracy or military’ dictatorship
holding, party affiliation, etc., are important in are now inadequate to cope with the new and complex
determining the nature of leadership.The dimensions of administration that are gradually
socio-economic, educational and political background emerging. Position of the public or citizens from being
of the leaders would also enable us to anticipate as to mere recipients of the administrative help and services
what they are capable of doing, what we should expect has now shifted to their being the prime movers in the
from them and how well they are equipped to discharge affairs of governance - a change from local ‘beneficiary’
the responsibilities developed upon them by the status to active ‘participant status’. This focuses on the
electorate.In this direction the Government of India various modes of interaction between citizens and
made efforts to solve problems such as poverty, ill administration. It discusses the changing norms of their
health, illiteracy, and backwardness of varied nature interaction, and institutional strategies and devices that
prevailing in rural areas, by giving grater attention to the try to build a theoretical conceptual base for the
uplift of the rural poor.Due to the illiteracy and interface. This particularly looks into the Indian
ignorance of weaker section’s representatives, several scenario in order to understand the different dimensions
welfare policies intended for the welfare of SC’s, ST’s of the interaction between citizens and administration.
and OBC’s are not implementing properly in the
institutions of Panchayati Raj and suggest for effective
implementation of these policies for the welfare of
weaker sections and bring them to the main stream as


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

costs to benefits. Finally, rational policy making reducing the transaction and the coordination cost) and
requires a decision-making system that also become more transparent and accountable to the
facilitates rationality in policy formation. Large public . The changing global governance framework
investments in existing programs and policies advocates de-centralized governance as well as
(sunk costs) prevent policymakers from e-governance. So, the same set of policy imperatives
reconsidering alternatives foreclosed by are behind the drive for decentralized governance as
previous decisions. well as the drive for e-governance. So, there is a need
for understanding how ICT-enabled e-governance can
(d) A narrow view of information comes in the way of contribute to decentralization of power or rather
successful implementation of MIS in organization. facilitate a more decentralized form of governance.
Analyze. 10 Marks
EFforts to acquire information are generally perceived Q6(a) “Development dynamics is marked by a dilemma
as nonterminal actions to help overcome uncertainty. : the concept of development has a built-in
We can therefore conceptualize managerial information participatory orientation but the practice of
as bits of data relevant to organizational decision development has been inherently exclusionary.”
making which have some subjective degree of quality Discuss. 20 Marks
OK accuracy and can be collected and disseminated for Participatory development (PD) seeks to engage local
organizational decision making at some given speed. populations in development projects. Participatory
An extension of this conceptualization is that additional development has taken a variety of forms since it
information can be said to exist when information emerged in the 1970s, when it was introduced as an
quantity, quality, or speed increases while holding the important part of the "basic needs approach" to
other two parameters constant. In cases where the development. Most manifestations of public
value of one parameter increases and another participation in development seek "to give the poor a
decreases, information will either increase or decrease part in initiatives designed for their benefit" in the hopes
depending on how the individual values those particular that development projects will be more sustainable and
characteristics of information. successful if local populations are engaged in the
development process. It is often presented as an
(e) Has e-governance led to debureaucratization and alternative to mainstream "top-down" development.
decentralization ? Assess its impact on bureaucratic There is some question about the proper definition of
inertia. 10 Marks PD as it varies depending on the perspective applied.
The idea of decentralization within governance or Two perspectives that can define PD are the "Social
decentralized governance and debureaucratization is a Movement Perspective" and the "Institutional
need in developing countries. There is a need for Perspective". Participatory development employed in
understanding how ICT-enabled e-governance can particular initiatives often involves the process of
contribute to decentralization of power or rather content creation. For example, UNESCO's Finding a
facilitate a more decentralized form of governance. Voice Project employs ICT for development initiatives.
Information and Communication Technologies (ICTs) Local content creation and distribution contributes to
are increasingly recognized as fundamental to the the formation of local information networks. This is a
development and maintenance of systems of bottom-up approach that involves extensive
governance and E-Governance in its simplest sense discussions, conversations, and decision-making with
stands for ICT-enabled governance. E-Government can the target community. Community group members
help the government systems become more efficient (by create content according to their capacities and

interests. This process facilitates engagement with

information and communication technology (ICT) with Objective Measurement Metrics
the goal of strengthening individual and social An objective measurement typically defies
development. This participatory content creation is an interpretation: Either an employee was late five times or
important tool for poverty reduction strategies and she wasn't, or he met his widgets-per-hour target or he
creating a digitally inclusive knowledge society. didn't. For that reason, some employers use purely
objective measures for employees who have repetitive
The late 1990s saw the introduction of some new terms or entry-level jobs – performance is a function of doing
and concepts in the discourse around inequality, (or not doing) some specific action, or in meeting
poverty, fairness and justice. One of these concepts per-product or per-service productivity totals.
was that of “social exclusion”. This term is now virtually
ubiquitous, and therefore, it is useful to recall that this Subjective Measurement Metrics
is of relatively recent origin. It is also important to Some jobs cannot be easily measured. Data analysts,
remember that the concept of social exclusion attorneys and dolphin trainers each perform a job that is
originated in the North, or the present-day developed difficult to distill into a few discrete metrics. Therefore,
countries, even though it is now a standard part of the employers will determine categories of measurement –
development lexicon of the South, or the developing for example, customer service or teamwork or
countries. Given the northern roots of social exclusion, professionalism. Supervisors typically offer a numeric
there was an understandable scepticism about whether score that represents the employee's perceived
this concept would be used to assess “southern realities performance in that category, but the question of
in terms of the extent to which they converge, or whether a specific rating is "correct" is primarily a
diverge, from some ‘standard’ northern model , or matter of interpretation.
whether it would add something useful and novel to our
understanding of deprivation. Objective measures work best in situations where each
employee can be assessed directly and each employee's
Prior to the emergence of this concept, social policies performance can be meaningfully compared to another
were discussed in terms of poverty, inequality, employee. For example, it is inappropriate to give
distribution: concepts which were well-defined, part-time and full-time employees the same
well-understood, axiomatic, and rigorously researched. total-parts-per-month score. However, objective
The analytical rigour of these concepts is reflected in measures fail when supervisors distill complex
their durability and the lack of ambiguity. processes into a single score that may not have much
meaning in the real world. For example, attorneys
(b) A more effective system of performance appraisal should not be measured on the quantity of legal briefs
should acknowledge the subjective elements in it and they file each month.
be less obsessed with the objective criteria. Elucidate.
15 Marks Subjective measures are very good at allowing a
Administrative experts have debated for decades the supervisor to exercise judgment about an employee's
most useful way to assess employee performance. In performance in complicated systems. However, if the
today's world, employers tend to rely on a mix of employer/employee relationship is sour, employees may
subjective and objective measures as part of a larger see a negative rating as either punitive or unfair.
performance measurement process. Each measurement
method has its strengths and weaknesses.

(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

a purpose of solving their common problems through

self-help and mutual help (c) In the absence of a merit-based, fair and objective
civil service a more partisan and corrupt government
(b) In the era of increasing stress on productivity work will emerge. Is the statement justified? Give reason. 15
study provides the road ahead for the administration. Marks
Identify the positive attributes of work study in the Civil service recruitment and promotion hinge on several
light of the statement. 15 Marks factors such as patronage versus merit; the relative
Work study is the investigation, by means of a importance of ethnic, religious, regional and gender
consistent system of the work done in an organization preferences. Even where countries adopt a merit-based
in order to attain the best utilisation of resources i.e. system, various practices militate in favour of these
Materials, Machines, Men and Money. The aim of work biases.
study is to determine the best method of performing
each operation and to eliminate wastage so that The thrust is as much about enhancing merit-based
production increases with less fatigue. systems to raise the productivity and motivation of
existing employees as on streamlining and rationalizing
Uses of Work Study: the structure of the civil service.
1. Increased productivity and operational
efficiency. The challenges confronting expanded use of lateral
2. Reduced manufacturing costs. recruitment are important, but not decisive. The issue
3. Improved workplace layout. must be addressed carefully in a phased and systematic
4. Better manpower planning and capacity manner, which will allow governments to take full
planning. advantage of the benefits in terms of improved skills
5. Fair wages to employees. and motivation while mitigating against some of the
6. Better working conditions for employees. costs in terms of political favoritism and
7. Improved work low. demoralization.
8. Reduced material handling costs.
9. Provides a standard of performance to measure The recent reform in Hong Kong Civil Services wherein it
labor efficiency . was mandated that the civil servants would be recruited
10. Better industrial relations and employee morale. on a permanent basis but their continuation in the job
11. Basis for sound incentive schemes. would be subject to verifying the performance indicators
12. Provides better job satisfaction to employees. from time to time. This model can be replicated in India
also.
Advantages of Work Study:
1. Uniform and improved power flow.
2. Higher productive efficiency.
3. Reduced manufacturing costs.
4. Fast and accurate delivery dates.
5. Better service to customers.
6. Better manpower planning and capacity
planning.
7. Job security and Job satisfaction to workers.
8. Higher wages to workers

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

Constitutionally, the governor is a head of state. He the judgment does is to open the doors for litigation and
does not wield direct executive power except in special judicial intervention in a political subject.
circumstances for example in states where normal
political processes are not possible. That does not Q2(a) Article 356 acts, “very much like the proverbial
subtract from his political role: from sending reports bolt from the blue…. without giving an opportunity or
about the breakdown of constitutional machinery in notices to the State Government to correct its alleged
states to signing laws into existence. shortcoming”. This phenomenon not only undermines
the autonomy of the State Government, but also
Beniwal, for example, acted in a political way when she demeans the statue of the President of India. Critically
did not give her assent to Bills passed by the Gujarat analyze. 20 Marks
assembly. Her role in the controversy around the K. T. Shah remarks that, “it was a chapter of reaction
appointment of the Lokayukta in the state, too, was and retrogression. ... H.V. Kamath had observed: “We
political. It is hard to believe that she acted in her are laying the foundation of a totalitarian state, a police
personal wisdom and that she did not have the approval state. Article 356 acts “very much like the proverbial
of the Union government which was led by the Congress bolt from the blue... without giving them an opportunity
party when these events occurred. It was natural that a or notice of correcting their alleged shortcomings.
government led by Narendra Modi would not like her and
would ask her to go. Did the Union government act Article 356 of the Constitution confers a power upon the
capriciously? No, it merely acted politically as has every President to be exercised only where he is satisfied that
other government since independence. a situation has arisen where the government of a State
cannot be carried on in accordance with the provisions
A more sophisticated variant of the moral posturing is of the Constitution. Under our Constitution, the power is
the argument about developing “norms" that will ensure really that of the Union Council of Ministers with the
that governors are not sacked by new governments. Prime Minister at its head. The satisfaction
Judicially, this has led to confusion. In a 2010 judgment, contemplated by the article is subjective in nature.
(B.P. Singhal vs Union of India and others), five judges
of the Supreme Court held that a governor could not be If the court strikes down the proclamation, it has the
removed “on the ground that he is out of sync with the power to restore the dismissed government to office
policies and ideologies of the Union government or the and revive and reactivate the Legislative Assembly
party in power at the Centre" (p56 of the judgment). But wherever it may have been dissolved or kept under
at the same time, the judgment held that no reason need suspension. In such a case, the court has the power to
be assigned for the discontinuation of the pleasure (of declare that acts done, orders passed and laws made
the President) resulting in removal but the power could during the period the proclamation was in force shall
not be exercised in an arbitrary, capricious or remain unaffected and be treated as valid. Such
unreasonable manner. declaration, however, shall not preclude the
government/Legislative Assembly or other competent
Practically, it is impossible to make a distinction authority to review, repeal or modify such acts, orders
between these two acts: the removal of any governor by and laws.
the President takes place on the recommendations of
the Union cabinet and if no reason need be assigned for The Constitution of India has created a federation but
the discontinuance of the President’s pleasure, all that with a bias in favour of the center. Within the sphere
allotted to the States, they are supreme.

Hindustan Zinc have also created smart value for the

(b) Public Sector Undertaking was expected to take the government after Vedanta Group took control over
Indian economy to the “commanding heights” instead them.
the successive governments have been pushing for
disinvestment. Critically examine how the scenario has The big failure has been the operational management of
changed over the years. 20 Marks PSUs MTNL and BSNL (and ITI), and the approach of
The Narendra Modi-led NDA government’s move to sell successive governments has been a big
its entire stake in Bharat Petroleum, India’s premier oil disappointment. India has more than one billion mobile
refining and marketing company, has raised the phone subscribers but the fortunes of the Modi
opposition’s temper. The government will also sell its government have dipped as the telecom sector has
stake in four other public sector undertakings or PSUs, exploded. It has been nothing short of a disaster.
making it appear like a big bang move, something
desperately lacking in the last five years. MTNL, which once used to be traded on NYSE, was
delisted in 2012. The two telecom PSUs can be cited as
Shipping Corporation of India (SCI), Container the best examples of government inaction when they
Corporation of India (CONCOR), Tehri Hydro should have been the top priority.
Development Corporation India Ltd (THDCIL) and North
Eastern Electric Power Corporation (NEEPCO) will be the It is telling that more than half of BSNL employees
ones to go under the hammer. reportedly want voluntary retirement. The employees
see no future in sticking with the company. The Modi
Among the first things that the UPA government did government needs to find a way out.
after Manmohan Singh became the Prime Minister was
shut down the disinvestment ministry. It was turned into The Vajpayee government’s record of disinvestment has
a department in the finance ministry, relegated to the still not been matched by any government. The UPA
periphery, some would say. government’s record has been relatively pathetic. Under
the watch of both former PM Manmohan Singh and
The process-oriented approach to selling off the ‘family current PM Narendra Modi, shares of one PSU have
silver’ was not quite learnt by India’s political leaders. been sold to another for the disinvestment numbers to
Atal Bihari Vajpayee-led NDA government had managed be made-up. This practice hardly inspires confidence
to sell equity in Videsh Sanchar Nigam Ltd. or VSNL and among investors.
hawked its holding in Maruti Suzuki to allow wealth
generation. ONGC, BALCO, Hindustan Zinc and other (c) Emerging developmental aspirations of the society
companies were also sold during the same period, necessitate the constitutional amendment to change
under then-disinvestment minister Arun Shourie. the present safeguards available to the civil servants.
Evaluate the pros and cons of such an amendment. 10
The results are there to see. Left to the vagaries of the Marks
markets, Maruti Suzuki is now one of the biggest Article 311 of the Constitution of India states that:
wealth-creating companies in India with more than Rs 3 1. No person who is a member of a civil service of
trillion market capitalisation. VSNL was sold off the Union or an all-India service or a civil
completely and the Vajpayee government managed to service of a State or holds a civil post under the
create value for itself from a PSU that would have been Union or a State shall be dismissed or removed
a dud if it had held on to its stake. BALCO and

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

needs. No matter the explicit or implicit

innovation-related considerations, the introduction of Effective public communication efforts enable citizen
PPPs is usually founded on some specific, currently participation. Therefore, government communication is
unmet social or public need. more than just developing effective spokespeople, it
also involves the provision of customer oriented
In the case of PPPs it is expected that the need will be services, and building capacity for citizens to provide
satisfied through the involvement of private parties, or government with feedback as regards these services. In
to put it into more general terms, the need is expected developing countries, this requires crafting and
to be satisfied by the market. promoting good practices when it comes to
transparency issues.
In the PPP process, a particular need is defined and
articulated by the government (with or without It is important to understand that neglecting to provide
consulting with external partners), and this need is information to the public represents a serious
eventually formulated as a demand for a specific impediment to governance, and underscoring the
solution. benefits of improved government communication has a
strong multiplier effect.
In principle, it does not matter for the government if the
need is satisfied by the market by existing solutions External communication (with the media and the public)
with proven track-record, or if it assumes some can have a disciplining impact on policy work and help
innovation efforts to meet this need. However, in coordinate communication within governments,
addition to solving a social need, the government can, because consistent internal information is required to
either deliberately or by accident, also influence the communicate efficiently and effectively with external
innovative capabilities of the private provider that is audiences.
part of a PPP.
(b) "Political and administrative systems have
By leading to the creation of new skills in a private reciprocal relationships.” Discuss . (Introduction)
partner organization and causing changes in firm-level The politics-administration dichotomy has long been a
routines, the government creates a possibility that these subject of considerable debate in public administration.
new skills will diffuse across a market sector or even Despite the argument that there is no strict separation
entire economy. This, in turn, can be expected as between politics and administration, the tension
imitating and copying from other businesses is how the between the two continues to be significant. The
majority of businesses innovate. Politics- administration dichotomy is a
theory that constructs the boundaries of
Q3. (a) Communication represents the “Nerves of public administration and asserts the normative
Government" (Karl Deutsch). How can the relationship between elected officials and
communication system in the government be made administrators in a democratic society. The nature of
more effective, responsive and motivational? interaction between elected officials and administrators
(AdministrativeBehaviour) shifted from a partial endorsement of the dichotomy
Communication represents an important function of model to a demonstration that both sets of officials
government, responsible for improving three principle have extensive interactions, are interdependent, and
elements of government: effectiveness, responsiveness, have reciprocal influence. There is evidence that public
and motivational. administration scholars in the United States from the

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.

agencies and bureaucracies to the elected officials.

Individuals become fully motivated when he derives a Thus, political approach considers public administration
feeling that an individual's satisfaction is more than the to be an integral part of the political process, political
individual’s contribution. Equilibrium refers to the nature of public administration and the role of
balance in the system i.e. system to be functional bureaucracy in making public policies. More precisely, it
requires that the individual contributes towards the views public administration as a political endeavor.
organizational goal.
On the motivation to work, Barnard made the following The political approach advocates a different set of
insightful observation:“ ... it seems to me to be a matter values than that of managerial approach. It stresses the
of Common experience that material rewards are political values of representativeness, (political)
ineffective beyond the subsistence level except to a very responsiveness and (political) accountability through
limited proportion of men; that most men neither work elected officials to the people. [I.e. public administration
harder for more material things, nor can be induced should be organized around these political values]
thereby to devote more than a fraction of their possible
contribution to organisational effort.’”
He deemphasised economic motives and stressed such
inducements as desirable working conditions, satisfying
associations at the workplace, opportunity for
participation and
distinction and power and a chance to experience pride
of workmanship. Individual participants in the
organisation look for “the condition of communication
that offers opportunities not only for companionship but
also mutual support for personal attitudes.
(c) "The political approach to Public Administration

stresses on the values of representativeness, political
responsiveness and accountability through elected
officials to the citizenry" (David H. Rosembloom). SECTION "B"
Comment. (Accountability and Control) Q5. Answer the following questions in about 150 words
The political approach to public administration each:
appeared during the 'New Deal' era (1933-1938 and the Q5. (a) "The Journey of Administrative Law has
Second World War period in the USA. Paul H Appleby moved much beyond A. V. Dicey.”
(Big Democracy -1945) viewed public administration as Comment. (Administrative Law)
a 'political process' and public accountability and A. V. Dicey gave the following three postulates of rule
political character as the aspects of governmental of law:
functions. Similarly, Wallace Sayre (Classic of Public 1. Everyone is equal before the law.
Administration-1978) stresses that public 2. Sanctions have to be backed by law. 3.
administration is ultimately a problem in political theory. Supremacy of court is ambivalent in civilized
society.
The fundamental problem in democracy is the
responsibility and responsiveness of the administrative

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 centuries. 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 treatment Administrative development also requires administrative
of women's issues in development projects. It is the changes and reforms. For administrative reforms. It is
integration of women into the global economy by an essential ingredient of development in any country,
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

prioritization and, secondly, agency performance causal factor of the latter, but dynamic in the sense that
improvement. The former refers to the improvement of both are involved in an ongoing sequential relationship.
allocative efficiency through the expenditure priority
decisions embodied in the budget itself. The latter (b) Currently, administrative training focuses more
refers to the objective of promoting more effective use on improving efficiency than on transforming the
by each agency of the funds which it is allocated—which attitudes and behaviour of civil servants. What type of
means both promoting productive efficiency and, to the training will you suggest to fill this gap ? Elaborate.
(sometimes significant) extent that agencies have (Personnel Administration)
devolved authority over the types of outputs which are Induction or Orientation Training. Induction training is
produced, also allocative efficiency. given immediately after employment to introduce the
new extension staff members to their positions. It
Although certainly not unconcerned with improving begins on the first day the new employee is on the job
agency performance, the main preoccupation of (Rogers & Olmsted, 1957). This type of training is aimed
program budgeting, in the form originally introduced in at acquainting the new employee with the organization
the US in the 1960s (PPBS), was upon budgetary and its personnel. Induction training for all new
prioritization as a tool of allocative efficiency. personnel should develop an attitude of personal
dedication to the service of people and the
Q8. (a) "Administrative systems across the world can organization. This kind of training supplements
be understood only in their respective historical and whatever preservice training the new personnel might
social contexts." Explain the statement by giving have had (Halim and Ali, 1988). Concerning the
examples. (Comparative Public Administration) characteristics of a new employee. Van Dersal (1962)
Political environment is not wholly segregated from said that when people start to work in an organization
social milieu. Together they provide the setting for for the first time, they are eager to know what sort of
functioning of public administration. Political outfit they are getting into, what they are supposed to
environment affects public administration as much as do, and whom they will work with. They are likely to be
social milieu does, if not more. Students of bureaucracy more attentive and open-minded than experienced
recognise that bureaucratic behaviour and function are employees. In fact, the most favourable time for gaining
affected by extrinsic factors. Deviations from the employees' attention and for moulding good habits
behavioral and functional characteristics of classical among them is when they are new to the job.
model of bureaucracy can be attributed to the social
values of a particular society, and to the configuration of Foundation Training. Foundation training is inservice
the polity in which the system of administration is training which is also appropriate for newly recruited
embedded. personnel. Besides technical competence and routine
instruction about the organization, every staff member
The basic notion of political culture is that there exists needs some professional knowledge about various rules
within any political system “a commonly held core of and regulations of the government, financial
patterned beliefs and normative dispositions directed at transactions, administrative capability, communication
the structures and functions of the political system skills, leadership ability, coordination and cooperation
which influence and define the behaviour of actors among institutions and their linkage mechanism, report
within the political system. The relation between writing, and so on. Foundation training is made available
political culture and the political system of any society to employees to strengthen the foundation of their
is not static in the sense that the former is “simply a

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 the other societies, and action. Clyde Kluckhohn (1963:24)
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

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

conventions” in a case of a hung Assembly. Further, in

the case of a Hung Assembly, the Punchhi Commission c. “Development management advocates
prescribed: self-sustaining customer- friendly institutions at
the district level.” Comment. (District
1. The party or alliances which get the widest Administration since Independence)
support in the Legislative Assembly should be The importance of local political support in advancing
called upon to form the government. sustainable development was noted by Bulkeley and
2. If there is a pre-poll coalition or alliance, it Betsill ; they argue that the interpretation and
should be treated as one political party. And in implementation of climate protection locally is a
case, such coalition gets a majority, the leader political issue. Bulkeley and Betsill examined whether
of such alliances shall be called by the the participation of local governments in transnational
Governor to form the government. networks enhanced their ability to develop new
3. In case no pre-poll coalition or party has a clear greenhouse gas-related policies and programmes by
majority, the governor should select the Chief investigating six cities (all CCP programme members) in
Minister in the order of priorities indicated here: the UK, the US and Australia. In general, they found that
a. The group of parties which had a pre-poll the CCP programme had had the greatest impact among
alliance of the largest number. local authorities where established systems of
b. The largest single party which claims to form monitoring and reporting of local emissions led to
the government with the support of others; frequent interactions between the local authority and
c. A post-electoral alliance with all partners the CCP programme; where the programme created
joining the government; access to additional financial resources; and where
d. A post-electoral alliance where parties are individuals could gain knowledge and kudos through
joining the government and the remaining participation in the programme. They think of these
including independents are supporting the local authorities as having ‘open’ connections to the
government from outside. network, thus creating dense webs of interactions that
make it more likely the network will be maintained.
S R Bommai case
In the S R Bommai case, a nine-judge Bench had Factors to be important for improving local
underlined the significance of a floor test when there are sustainability performance :
claims by two political groups while laying down that
the floor test must be conducted by the Governor as ● First is the training of municipal staff able to
soon as possible. coordinate and build consensus while showing
respect towards citizens. He observes that all
Constitutional Provisions municipalities producing innovative
Article 164 of the Constitution says: “The Chief Minister sustainability measures have staff members
shall be appointed by the Governor and the other with such skills.
ministers shall be appointed by the Governor on the ● Second is the need for citizen involvement in
advice of the Chief Minister, and the ministers shall hold city planning, backed by citizen empowerment
office during the pleasure of the Governor.” measures.
Article 164(2) of the Constitution says that the Council ● Third is the inclusion of measures that are
of Ministers must be collectively responsible to the mutually beneficial in terms of the economic,
House. environmental and social dimensions in order

to make the most of municipalities’ limited

human and financial resources (while admitting Assam, for instance, is extremely vulnerable to climate
that this is extremely difficult). change due to both, its geographic proximity to the delta
● Fourth is the administrative level: namely region and poor socio-economic conditions. This
reform of management, budgeting, and using an vulnerability is reflected in the exposure, sensitivity and
evaluation system to achieve integrated adaptive capacity of the local population to climate
policy-making. induced extreme events such as floods. The district
● Fifth is the importance of offering citizens a administration’s project C5 (Change for Change Climate
clear vision for a sustainable society, with Change) that aims at a sustainable lifestyle to mitigate
analysis of issues and a monitoring system, the effects of climate change is a critical step towards
and finally the exchange of information about protecting the future of the next generation.Voluntary
best practice with other municipalities. activities formed the foundation of the activities
envisaged through C5, expressing hope that people and
commercial establishments would come together for
social good. People should an alternative lifestyle —
they should be green citizens, green building and
organic agriculture should be adopted.
The state government has recognised that climate

change is a deterrent for the state's development
aspirations, and recently proposed to set up a climate
change management society headed by the chief
minister.The State Action Plan on Climate Change
addresses the issues of sustainability of agricultural
systems, energy sufficiency and efficiency, and
enhanced impacts on health, among other issues.
However, a more robust, holistic and transformative
plan requires inclusion of wider issues such as climate
Q4. a. Climate change issues pose new challenges for induced migration and conflict, which is particularly
district administration to be proactive.” Elaborate pertinent to the state and has wide socio-economic
(District Administration since Independence) implications. The huge increase in temperatures is also
Climate change has emerged as the most pressing resulting in impacts at an unprecedented rate.
global challenge of the 21st century. However, despite Economic forecasting along with mapping of climate
the ubiquity of climate change, it's more immediate change trends will aid in the planning and
impacts are felt differently by different groups of implementation of adaptation and mitigation measures
people. Developing countries, with their low adaptive throughout the state, helping it cope with the projected
capacities and high dependence on climatic variables, effects of climate change.
are highly susceptible to climate-induced tragedies.
With growing discussion around the issue, there is also b. “Judicial overreach to a large extent is a
an increasing awareness about the importance of taking consequence of ineffective executive.” Examine.
into account the economic costs and risks of climate (Union Government and Administration)
change.

‘Judicial overreach’ then is the direct result of legislative a state (or other economic unit) sets quotas and
as well as executive neglect or inaction: Poor and mandatory output requirements. Planning by
dilatory performance, not only in the making of laws, but inducement is often referred to as indicative planning.
also in their implementation. Power tends to corrupt,
and absolute power corrupts absolutely” was for those
who indulged in too much judicial activism. In India,
excessive judicial interference with laws and executive
action is called ‘judicial overreach.
The real reason, for ‘judicial overreach’ is, that since all
power grows by what it feeds on, judicial power also
tends to grow by accretion; by the indifference or
ineptitude of Constitutional bodies — set up to pass
laws and to deliberate on vital affairs of the State — of
not being able to effectively do so. ‘Judicial overreach’
then is the direct result of legislative as well as
executive neglect or inaction: Poor and dilatory
performance, not only in the making of laws, but also in
their implementation. SECTION "B"
Q5. Answer the following questions in about 150 words
c. "In the transition from the State-led economy to the each:
market economy, India should rely more on a. “The 'enablers' and 'facilitators' are yet to replace
'indicative planning'.” Do you agree? Explain your the inspectors' and “controllers' in the civil service
position. (Plans and Priorities) in India. Do you agree? Justify. (Civil Services)
A market economy is an economic system in which One of the basic elements of our governance
decisions regarding investment, production and architecture is the presence of an impartial, honest,
distribution are guided by the price signals created by efficient and fearless civil service. The Civil Services in
the forces of supply and demand. Indicative planning is India still attract good talent. For this reason civil
coordinated information that guides the choices of servants still do command respect from the public at
separate state and private entities in a market economy large. The challenge before us is to change the role of
or mixed economy. Indicative planning is a form of civil servants in society, without diluting quality and
economic planning implemented by a state in an effort commitment to national goals and concern for
to solve the problem of imperfect information in market standards and retaining the regard of society. At the
and mixed economies in order to increase economic same time, the context in which all the civil services are
performance. However, indicative planning takes only functioning has also been changing. Rapid economic
endogenous market uncertainty and plans the economy growth has led to a manifold increase in the quantum of
accordingly and does not look into exogenous work. Performance expectations have increased in
uncertainty like technology, foreign trade, etc. When terms of both speed and quality. The Government is no
utilizing indicative planning, the state employs longer seen merely as a law enforcer or a controller of
"influence, subsidies, grants, and taxes [to affect the national resources. It is increasingly viewed as a
economy], but does not compel". Indicative planning is provider - albeit an efficient provider - of basic services
contrasted with directive or mandatory planning, where and public goods. People expect the Government to

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

startups that do not have the resources to pay for faster must open up quality public service
lanes. employment opportunities to members of local
communities and transfer assets into
c. “Neighbourhood management provides an community ownership.
appropriate global strategy of dealing with social 7. A long-term perspective is essential if
exclusion in the urban development scenario." integrated approaches to social inclusion are to
Comment. (Urban Local Government) be sustainable: enough time must be allowed to
Neighbourhood management is a relatively new develop capacity and commitment in both
approach to improving public services. Neighbourhood communities and local public authorities.
Management is one of the 'big ideas' in the 8. A strong and unequivocal message from central
Government's campaign to tackle social exclusion and government is required if past barriers to
will form a key part of its National Strategy for change are to be overcome
Neighbourhood Renewal. A new publication from the
Joseph Rowntree Foundation asks what we have learnt Q8. a. "Effective public grievance redressal
from experience so far. It spells out the key themes that require administrative commitment. But process
Neighbourhood Management needs to address and reengineering can help prevent some grievances.”
sums up the most promising ideas that are coming out Discuss. (Civil Services)
of practice and research. Grievance Redress Mechanism is part and parcel of the
It argues that effective Neighbourhood Management in machinery of any administration. No administration can
the future will depend on the following principles: claim to be accountable, responsive and user-friendly
1. Joined up strategy and action must be driven unless it has established an efficient and effective
through all levels of public policy- making and grievance redress mechanism. In fact, the grievance
provision - from top to bottom, from back room redress mechanism of an organization is the gauge to
to front line - with transparency and measure its efficiency and effectiveness as it provides
multi-layered accountability as the guiding important feedback on the workings of the
principles. administration. Government has taken several steps to
2. Joined up working will require fundamental make the Grievance Redressal Mechanism effective for
changes to the cultures and career structures of quick disposal of public grievances which are as under:
both government and the public service a. Review of Grievances of identified
professions. Ministry/Department is undertaken every
3. A strong infrastructure is required in order to month during meetings conducted on PRAGATI
spread rather than protect knowledge, (Pro-Active Governance and Timely
resources, skills and learning. Implementation) platform.
4. There is no change without risk - frameworks b. For effective monitoring of grievances at
for performance measurement,regulation and Secretary level, an electronic Dashboard has
audit must be broad enough to allow local been created showing the consolidated status
autonomy. of grievances disposed and pending, on
5. There will be no sustainable change unless CPGRAMS. Weekly reminders through SMS are
communities themselves are given the power also being sent for pending grievances.
and responsibility to take action. c. A Grievance Analysis Study in respect of top 40
6. As well as engaging communities in grievance receiving
decision-making, Neighbourhood Management Ministries/Departments/Organizations listed on

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

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 stages among different actors and interests within the
“- (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

example through the payment of civil service salaries to Pramaan, e-Greetings, e-Sampark, National Digital
the detriment of developmental expenditures. Literacy Mission etc to promote e-Governance
Competency Framework in the country.
b) “Development Administration and Administrative
Development have a chicken and egg kind of As part of the initiative, financial transactions would be
relationship”.- (Riggs) . Elaborate (10 marks) made cashless and entitlements would be available on
(Development Dynamics) the cloud. It will provide universal digital literacy to
Administrative Development i.e. Administration of enable citizens to use the digital platform. The
development and Development Administration i.e. government services can be even accessed in
development of administration are dependent concepts. vernacular languages to help users participate in the
Administration of development is as important as new digital mechanism to spur growth in areas of
development of administration. Superiority of one governance and service delivery.
concept over the other cannot be established.
d) “360 degree performance appraisal system is a
To achieve development goals it is essential that there rational idea, but it involves complex and inauthentic
should be adequate assessment and planning of procedures”. How can it be made foolproof?(10 marks)
resources, its evaluation and. implementation, adequate 360 degree performance appraisal system provides
involvement of people, emphasis on strong feedback on a manager’s performance collected from a
administrative machinery, developed bureaucracy, variety of people with whom he interacts regularly like
integrity in administration, innovativeness, and the peers, managers (i.e. superior), subordinates, team
decentralized decision-making etc. members, customers, suppliers/ vendors and a self
assessment etc regarding the “on-the-job” performance
Both the concepts support each other and development of the employee. However, implementation of 360
of administration is needed for administration of degree performance appraisal system is not an easy
development. As per F. Riggs 'development task because its takes too much time and creates an
administration' and 'administrative development' have a environment of suspicion.
chicken and egg kind of relationship.
Making 360 degree performance appraisal system
c) “Digitalization provides great impetus to means making it as easy as possible for the manager to
E-governance.” Discuss (10 marks) (Techniques of take action on the results. 360s were purely for
Administrative Improvement) development and that they should never be used to
The Digital India provides for e-Governance and would evaluate managers . Properly gathered 360 data should
promote inclusive growth that covers electronic be considered as one of many data points when making
services, products, devices, manufacturing and job decisions about new roles, promotions or development.
opportunities. Digital India aims to create a seamless Getting 360 feedback doesn't have to be painful or
ecosystem across multiple government departments to unhelpful. 360s can help managers to make important
make services available on both online and mobile behaviour changes quickly and easily.
platforms.
e) “A large public debt forces the adoption of tax and
The government department has taken a number of spending policies that result in higher taxes and
initiatives like MyGov(Citizen participation platform) , reduced services.” Analyze (10 marks) (Personnel
Aadhaar Enabled Biometric Attendance System, Jeevan Administration)

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 involvement.
government bonds and bills. A broader definition of The development administration has to play enabling,
government debt may consider all government collaborative, cooperative, partnership and regulatory
liabilities, including future pension payments and 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

masses and local resources with which the policy will

engage.

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.

1. Staff development at local government and

The prime minister’s secretariat grew later under the community level must be intensified.
prime ministership of Indira Gandhi into a mammoth 2. Training in planning and management of local
organization overshadowing and sometimes tending to development must be hastened as this will form
overwhelm all other ministries of the government of the basis upon which the local government
India and to denigrate the position of the cabinet human capacity will be strengthened.
secretariat. Prime minister’s secretariat during those 3. Conducting of a staff audit as a first step with a
days was virtually functioning as the ‘super cabinet.’ view to determining areas where there is excess
capacity and shortfalls which are to be
Rajiv Gandhi reverted back to the path carved out by his addressed.
mother by establishing the unquestioned authority of 4. Carrying out recruitment of suitably qualified
the PM over the cabinet and almost forced his will or persons to improve the quality of staff available
decisions over his ministerial colleagues. It is not at local government level.
that the strong PMO always meant weak cabinet 5. Capacities to capture the knowledge from past
secretariat. experiences and may opt to employ the
services of external facilitators.
Neither the time, nor the political circumstances
supported Mr. V.P. Singh in developing his PMO. The d) “Public Sector Undertakings (PSUs) in India face
same was true of the Deve Gowda and Gujral tough competition from the private enterprises and
Governments. In these cases, there was an effective Multinational Corporations (MNCs) . “ Explain(10
PMO, but not controversial. However, the importance of marks, 150 words) (Public Sector Undertakings)
the Cabinet Secretariat was not restored. Mr. Narasimha Economic Reforms in India were started by Rajiv Gandhi
Rao established a strong PMO as he settled down. in 1985 soon after taking over as a Prime Minister. He in
his first national broadcast said: “The public sector has
c) “Effectiveness of local-self government institutions entered into too many areas where it should not be. We
is hampered due to the lack of capacity building of the shall open the economy to the private sector in several
elected representatives.” Elaborate (10 marks, 150 areas hitherto restricted to it."
words) (Rural Development)
The most unfortunate fact behind the inefficiency of Consequently, a number of measures were taken to
local-self government institutions is hampered due to remove controls, open areas to private sector players.
the lack of capacity building of the elected This may be described as the first phase of
representative in India was because of lack of a liberalisation.
comprehensive strategic framework towards capacity
development. In the post 90’s period, the new economic policies,
emphasised liberalisation, privatisation and
The experience in capacity building in relation to globalisation. The role of public sector was redefined.
accelerated and sustainable development at the local With the onset of economic reforms in 1991, the
government level should be located in a strategic Government initiated a systemic shift to a more open
framework to enhance the sustainability of capacity economy with greater reliance on market forces and a
development and complement its success potential. larger role of the private sector including foreign
investment.
This can be achieved through the following measures:

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)

Lateral induction is a small step towards essential b. video-conferencing and

housekeeping in central government staffing. c. geo-spatial technology. It also offers a unique
combination in the direction of cooperative
Possible advantages: federalism since it brings on one stage the
1. It infuses fresh energy and thinking into an Secretaries of Government of India and the
insular, complacent and often archaic Chief Secretaries of the States.
bureaucracy.
2. It enables the entry of right-minded Features and Modalities of the PRAGATI application :
professionals and the adoption of best 1. It is a three-tier system (PMO, Union
practices for improving governance. Government Secretaries, and Chief Secretaries
3. It filled up the vacant post with available best of the States);
talent. 2. Prime Minister will hold a monthly programme
where he will interact with the Government of
Possible Limitations : India Secretaries, and Chief Secretaries through
1. Lateral entry could further enfeeble the Video- conferencing enabled by data and
bureaucracy. (2) Risk of degenerating into an geo-informatics visuals;
uncontrollable “spoils” system. 3. It will be held once in every month on Fourth
2. It raises concerns about accountability. Wednesday at 3.30 PM-to be known as
3. Adversely affecting the morale of incumbents PRAGATI Day.
and distort the incentives of entrants. 4. It will take into consideration various
4. It would adversely affect career-progression correspondences to PM’s office by the common
opportunities. people or from high dignitaries of States
and/or developers of public projects;
c) “Pro-Active Governance and Timely implementation 5. The issues flagged are uploaded seven days
(PRAGATI) is an innovative project of the Union prior to the PRAGATI day (i.e. on third
Government.” Discuss its features and modalities (10) Wednesday of every month).
(Union Government and Administration) 6. Union Government Secretaries and Chief
PRAGATI (Pro-Active Governance And Timely Secretaries will be able to see the issues
Implementation) is a unique integrating and interactive pertaining to their Department /State;
platform. The platform is aimed at addressing common 7. Union Government Secretaries and Chief
man’s grievances, and simultaneously monitoring and Secretaries have to put their comments and
reviewing important programmes and projects of the updates about the flagged issues within three
Government of India as well as projects flagged by State days (i.e. by next Monday);
Governments. With this, the Prime Minister is able to 8. One day – Tuesday is available to the PMO
discuss the issues with the concerned Central and State team to review the data entered by the Union
officials with full information and latest visuals of the Government Secretaries and Chief Secretaries;
ground level situation. It is also an innovative project in 9. The design is such that when PM reviews the
e-governance and good governance. issue he should have on his screen the issue as
well as the latest updates and visuals regarding
The PRAGATI platform uniquely bundles three latest the same;
technologies:
a. Digital data management,

Q3)a) “The position of council of ministers in a state is The features of the British administrative system, like
reduced to that of a body of a secretary in the presence Central and state administration, Civil Services, District
of a domineering of chief minister.” Critically analyse and Regional administration, the procedures of work,
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,

decent housing, health care, etc.is another important

aspect of the subsidiarity principle.

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

d) “The autonomy of Public Corporations raised a great social audit arrangements have mostly been ineffective
debate about their internal working and external because there is no legal provision for punitive action.
relation with the Ministers and the Parliament.” States should enact legislation to facilitate social audit
The autonomy of public corporation raised a great by the Gram Sabha.
debate about their internal working and external
relations with the ministers and the Parliament. The Q.2) a) “Douglas McGregor’s Theory X and Theory Y
internal autonomy was asserted in Policy matters, describe two contrasting models of workforce
Day-to-day routine operations, Personnel policies and motivation applied by managers in an organization.”
service conditions, and Commercial audit. Similarly, Examine.
ministerial control was resisted and limited powers of Theory X and Theory Y are theories of human motivation
the concerned minister were haltingly accepted. The and management. They were created and developed by
Parliamentary Control operates through the Douglas McGregor at the MIT Sloan School of
instrumentality of: Question hour, Adjournment motions, Management in the 1960s. According to the models, the
Parliamentary debates, Discussions on reports and two opposing sets of general assumptions of how
Parliamentary committees, especially the CPU. workers are motivated form the basis for two different
The relationship between ministers and public managerial styles. Theory X stresses the importance of
undertakings has not worked smoothly. The ministers strict supervision, external rewards, and penalties: in
usually issue clear directives in writing as they are contrast, Theory Y highlights the motivating role of job
supposed to do and take responsibility for such satisfaction and encourages workers to approach tasks
directives before the Parliament. They have also chosen without direct supervision.
to depend upon influence and secure compliance of Theory X style of management assumes that workers:
their wishes through informal means like appointment
of officials and non-officials as chairman and members ● Dislike their work.
of governing boards; deputising serving government ● Avoid responsibility and need constant
officers to executive posts in public undertakings. direction.
● Have to be controlled, forced and threatened to
e) “In spite of certain advantages, Social Audit deliver work. Need to be supervised at every
arrangements have mostly been ineffective because step.
there is no legal provision for punitive action.” ● Have no incentive to work or ambition, and
The most appropriate institutional level for social audit therefore need to be enticed by rewards to
is the Gram Sabha, which has been given ‘watchdog’ achieve goals.
powers and responsibilities by the Panchayati Raj Acts
in most States to supervise and monitor the functioning Theory Y style of management assumes that workers
of panchayat elected representatives and government are:
functionaries, and examine the annual statement of ● Happy to work on their own initiative. More
accounts and audit reports. These are implied powers involved in decision making.
indirectly empowering Gram Sabhas to carry out social ● Self-motivated to complete their tasks. Enjoy
audits in addition to other functions. Members of the taking ownership of their work.
Gram Sabha and the village panchayat, intermediate ● Seek and accept responsibility, and need little
panchayat and district panchayat through their direction. View work as fulfilling and
representatives, can raise issues of social concern and challenging.
public interest and demand an explanation. However, ● Solve problems creatively and imaginatively.

4. Change: Operational flexibility and

b) “The New Public Administration has seriously jolted organisational adaptability to meet the
the traditional concepts and outlook of the discipline environmental changes should be in-built in the
and enriched the subject by imparting wider administrative system.
perspective by linking it closely to the society.” (Felix 5. Client Focus: Positive, proactive, and
A. Nigro and Lloyd G. Nigro) Elucidate. responsive administrators rather than
New Public Administration is an anti-positivist, inaccessible and authoritarian "ivory tower"
anti-technical, and anti-hierarchical reaction against bureaucrats.
traditional public administration. A practiced theory in 6. Management-Worker relations. . The new
response to the ever changing needs of the public and approach has to satisfy both the efficiency and
how institutions and administrations go about solving the human relations criterion in order to achieve
them. New Public Administration traces its origins to success.
the first Minnowbrook Conference held in 1968 under
the patronage of Dwight Waldo. Felix and Lloyd Nigro c) “The central concern of Administrative Law has been
observe that New Public Administration has seriously the legal limitation of administrative discretion.” Give
jolted the traditional concepts and outlook of the reasons.
discipline and enriched the subject by imparting a wider Discretionary power of administrative agency is the
perspective by linking it closely to the society. The right to make reasonable decisions by choosing from
overall focus in NPA movement seems to be to make among acceptable choices. Discretionary powers are
administration to be less "generic" and more "public", conferred on administrative agencies because
less "descriptive" and "prescriptive", less administrative agencies possess expertise and
"institution-oriented" and more "client- oriented", less specialization to deal with matters delegated by
"neutral" and more "normative" but should be no less legislatures to the agencies.
scientific all the same.
When a statute provides that an administrative agency
1. Relevance: Traditional public administration has discretionary powers, it does not allow unlimited
has too little interest in contemporary problems discretion. Discretionary power can be exercised only in
and issues. Social realities must be taken into accordance with the statute. Administrative agencies
consideration. i.e. people should see changes can discharge discretionary functions within express or
as relevant meaning thereby that changes implied powers allotted to agencies by legislature.
should be specific to the needs of the area and Where a statute is clear and unambiguous,
the need of the people administrative agencies cannot disregard the statute.
2. Values: Value-neutrality in public administration Administrative agencies are not to exceed or ignore
is an impossibility. The values being served legislative limitations imposed upon agencies’ power.
through administrative action must be Similarly, administrative agencies are not allowed to
transparent.To practice transparency in public withhold its approval or authorization when statutory
administration is to ensure citizens the conditions for approval are met.
availability of information which is deemed
public. Administrative agencies are not supposed to exceed its
3. Social Equity: Realization of social equity power while exercising discretionary powers. An agency
should be a chief goal of public administration. which has been granted discretion by statute is
expected to limit its discretion based on the regulations

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

capital and enabling citizens to identify and articulate sort of training as professional development. As a result
their values, beliefs, civic norms and democratic training is considered as paid holidays.
practices; fourth, by mobilizing particular
constituencies, particularly the vulnerable and b) “Public Borrowing produces different effects on the
marginalized sections of masses, to participate more economy.” Examine.
fully in politics and public affairs; and fifth, by Public borrowing involves transfer of purchasing power
development work to improve the wellbeing of their own from individual to government and a subsequent
and other communities. retransfer of the same to the individuals from the
government. It is said that the net effect of government
borrowing is expansionary. If loans are raised for
productive purposes, scarce resources may be
distributed rationally. In other words, resource allocation
will take place to sub- serve national interests.
Consequently, national income will rise.
It is alleged that public borrowing widens income
inequality. As far as loan repayment is concerned,
government levies taxes whose burdens are felt more or
less by all—both rich and poor. However, the burden of
taxes is mostly felt by the poor people.
Whether public borrowing is anti-deflationary or anti-
inflationary depends on how the debt affects the money
supply and how it affects economic activity. Loans from
banks (say purchase of government bonds by
SECTION-B commercial banks) lead to an increase in money supply.
This will put great pressure on the price level. In this
Answer the following questions in about 150 words sense, ‘borrowing is inflationary’.
each: However, public debt is not necessarily inflationary in
Q.5) a) “Training is considered as paid holidays.” character. If public debt is used to raise income,
Comment. employment and output, the inflationary effect will then
Training is teaching, or developing in oneself or others, be greatly minimized. But inflation, under the
any skills and knowledge that relate to specific useful circumstances, is unavoidable. Further, if government
competencies. Training has specific goals of improving borrows money from individuals, rather than banks, then
one's capability, capacity, productivity and performance. the individual borrowers will be forced to curtail their
It forms the core of apprenticeships and provides the consumption spending. This will then serve as a good
backbone of content at institutes of technology (also anti-inflationary measure.
known as technical colleges or polytechnics). In
addition to the basic training required for a trade, c) “Self-Help Groups are considered as one of the most
occupation or profession, observers of the labor-market significant tools to adopt participatory approach for
recognize as of 2008 the need to continue training economic empowerment of women”. Comment.
beyond initial qualifications: to maintain, upgrade and SHGs are considered as one of the most significant
update skills throughout working life. People within tools to adopt participatory approach for the economic
many professions and occupations may refer to this empowerment of women, SHG is a group of people that

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.

● Reduced material handling cost. ● Improved workplace layout.

● Improved workflow. ● Reduced manufacturing cost.
● Better working conditions to employees ● Increased productivity and operational
● Fair wages to employees. efficiency
● Better manpower planning and capacity
planning

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 with time. It is devolving powers to states and provinces in
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

increase in individual opportunity. Even in countries SECTION B

which had not been colonies but had been administered Q.5) Attempt all of the following questions in about
by some other form of authoritarian government, this 150 words each:
was a generation of rising and insistent expectations a) “Autonomy granted to higher civil servants tends to
pressing for rapid political, social, and economic increase their creativity and productivity.” Argue the
change. New governments and their bureaucracies, their case to make the civil service more accountable as
administrative agencies and processes, were expected well as innovative.
to give reality to these anticipated fruits of The overall cost of the civil service remains a valid
independence and liberty. These new functions, these concern, of course. Addressing the causes of and
demands upon the administration system, were not only reversing the spiralling civil service wage bill
enormous in size and weight, they were novel and experienced by many countries in the 1970s and 1980s
complex in character. remains a primary concern. More recently, added to
these problems, a number of others have been better
c) “Legislatures have become a place for infighting understood that relate more to the quality of the civil
rather than for proper policy making.” Comment in the service and their motivation, such as:
context of the working of State Governments. 1. Poor performance management, leading to
Legislative violence broadly refers to any violent clashes inadequate incentives to perform well.
between members of a legislature, often physically 2. Recruitment and promotion systems that poorly
inside the legislature and triggered by divisive issues reflect the realities of the country, are often
and tight votes. Such clashes have occurred in many overly concerned with formal education, and fail
countries across time, and notable incidents still to attract or promote qualified staff.
regularly occur. Although the sight of brawling 3. Politicization of the civil service.
politicians is incongruous with a legislature's stately 4. Lack of a mission or the respect of the public.
image, its occupants, like in any other workplace, are
still prone to stress and anger. The confrontational (b) Justify the budgetary support to nationalized banks
nature of politics and the high stakes often add to the to overcome the crisis resulting out of Non-Performing
simmering tensions. Assets (NPA).
The attempt to bring more capital into asset
reconstruction companies (ARCs) by allowing more
foreign domestic investment has not worked, and is
unlikely to work. PSBs are unwilling to sell their NPAs at
the discounts mandated, given the quality of such
assets. This is because the current governance
framework provides little incentives to PSB chairmen to
take the bull by its horns and sell such assets. Instead,
the current governance framework provides all the
perverse incentives to kick the can down the road to the
next chairman. Such procrastination, built into the
governance framework, only exacerbates the problems
in PSBs. Second, the setting up of the BIC requires
legislative reform, including the modifications of the
Bank Nationalisation Act and the Banking Regulation

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

● Inter-Agency Coordination 2. A separate Statement of Budget Estimates and

● Investing in DRR – Structural Measures Demand for Grant will be created for Railways;
● Investing in DRR – Non-Structural Measures 3. A single Appropriation Bill, including the
● Capacity Development estimates of Railways, will be prepared and
● The Response part of the Plan has identified presented by the Ministry of Finance to
eighteen broad activities which have been Parliament and all legislative work connected
arranged into a matrix to be served as a ready therewith will be handled by the Ministry of
reckoner: Finance;
● The Plan has also incorporated a Chapter on 4. Railways will get exemption from payment of
Strengthening Disaster Risk Governance. The dividend to General Revenues and its Capital-at-
generalized responsibility matrix given in this charge would stand wiped off;
section summarizes the themes for 5. Ministry of Finance will provide Gross
strengthening Disaster Risk Governance and Budgetary Support to Ministry of Railways
specifies agencies at the Centre and State with towards meeting part of its capital expenditure;
their respective roles. 6. Railways may continue to raise resources from
● The National Disaster Management Plan the market through Extra-Budgetary Resources
(NDMP) provides a framework and direction to as at present to finance its capital expenditure;
the government agencies for all phases of 7. The presentation of a unified budget will help
disaster management cycle. present a holistic picture of the financial
● The NDMP is a dynamic document in the sense position of the Government;
that it will be periodically improved keeping up 8. Merger of Rail Budget with Union Budget would
with the emerging global best practices and facilitate multimodal transport planning
knowledge bases in disaster management. between highways, railways and inland
● Globally, the approach towards post-disaster waterways; and
restoration and rehabilitation has shifted to one 9. It will allow the Ministry of Finance greater
of betterment reconstructions. The NDMP elbow-room at the time of mid-year review for
provides a generalized framework for recovery better allocation of resources, etc.
since it is not possible to anticipate all the
possible elements of betterment Q.7) “The Right to Information Act is a path-breaking
reconstruction. legislation which signals the march from darkness of
● The Plan also highlights that the disaster risk secrecy to dawn of transparency.”
reduction will be achieved by mainstreaming a) What hurdles do the citizens face in obtaining
the requirements into the developmental plans. information from the government? Explain how the
reluctance of the government to part with information
c) What benefits do you foresee in the proposed under RTI can be addressed.
merger of the Railway Budget with the General Budget? Under Section 5(3) of RTI Act, it is expected of the PIO
The salient features of merger and the benefits likely to to assist citizens in drafting RTI applications. However,
accrue therefrom are broadly given below: it was observed during the Information Seeker survey
that more than 49% of the respondents did not receive
1. Ministry of Railways will continue to function as any assistance from the concerned PIO while drafting
a departmentally run commercial undertaking; and filing RTI applications. During the information
seeker survey it was observed that 59% of the

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

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 five penalty, and the code provides a fairly clear set of
„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

and community decision making. There is some

evidence that there are some age and class groups B. “The position-classification attempts to establish a
which are less likely to use web or text messaging as a triangular relationship between duties and
means of undertaking transactions services and some responsibilities, working conditions and qualification
age groups for which this is the almost exclusive means requirements.” Elucidate.
of communication. The state will be responsible for Classification is a process by which jobs of a common
joining up policy and delivery. The state will tailor nature with similar duties and responsibilities are
services to individual needs. The state will provide grouped together for the purposes of assignment to an
added value at the point of contact and the citizen will appropriate pay range.The position description is the
choose the channel or means of delivery. These foundation of the classification process because it is
changes, which are already in progress and due to the primary tool used to accurately define and describe
become widely available in every local authority. They the current duties and responsibilities of a
could provide entirely new models of governance, which position.Once a position is has been classified we can
will require a new balance in the state citizen determine the following:
relationship. These changes are planned and are ● Placement into the appropriate job family and
foretold in ‘Modernising Government’ in 1999 [Cabinet collective bargaining unit.
Office]. ● Proper compensation and minimum
qualification standards.
Q8. 20+15+15 marks ● Performance appraisal factors and
A. “The concept of political feasibility in policy expectations.
alternative is a probabilistic concept and is related to ● Career ladders and promotional lines when
each policy alternative.” In the context of the above applicable.
statement analyse Dror’s contribution. ● Translation of broad organizational plans into
A brief discussion of the main points of Professor Dror the assignment of duties and responsibilities to
on problems of governmental institutions. Certain individual positions.
factors necessary for supplementing present Classification is based upon the objective elements of a
policymaking systems are postulated: the existence of position which include such elements as the nature,
organizational capabilities for the systematic scope, and level of duties and responsibilities; the
reexamination and redesign of the policymaking system; relationship of the position to other positions in the
the extent to which alternative policies are department, campus or CSU system; supervision
systematically developed and critically examined; the given/received; and exercise of independent judgment.
existence of adequate arrangements for learning Since position classification focuses on the specific
feedback; the use of modern techniques of systematic duties and responsibilities of each position, the quality
rational analysis in those areas where such techniques of performance, the quantity of work, the status of an
can make a useful contribution; and the training and employee, or information relative to the employee’s
development of policymakers in both rational and length of service or current salary are not considered in
extrarational techniques of policy analysis. In terms of the classification process.
these criteria, Professor Dror measures Congress and
policymaking systems of the U.S. Government as well C. “MIS, PERT and CPM have accelerated the process
as systems of developing countries. Among his of reinventing 0 & M.” In the context of the above
long-range recommendations is a proposal to develop a statement, explain the recent developments in
new discipline of policy sciences. managerial techniques.

The performance of the government has to be evaluated specification. In this technique, first of all, the project is
in a courteous manner to ensure the efficiency of divided into activities and events. After that proper
administration. Developmental program is a key to sequence is ascertained, and a network is constructed.
ensure welfare and they have to be evaluated in a After that time needed in each activity is calculated and
scientific manner. the critical path (longest path connecting all the events)
A management information system (MIS) focuses on is determined.
the management of information technology to provide Critical Path Method or CPM is an algorithm used for
efficiency and effectiveness or strategy decision planning, scheduling, coordination and control of
making. The concept may include systems termed activities in a project. Here, it is assumed that the
transaction processing system, decision support activity duration are fixed and certain. CPM is used to
system, expert system, or executive information system. compute the earliest and latest possible start time for
The term is often used in the academic study of each activity.
businesses and has connections with other areas, such The process differentiates the critical and non-critical
as information systems, information technology, activities to reduce the time and avoid the queue
informatics, e- commerce and computer science; as a generation in the process. The reason behind the
result, the term is used interchangeably with some of identification of critical activities is that, if any activity is
these areas. delayed, it will cause the whole process to suffer. That
PERT technique studies and represents the tasks is why it is named as Critical Path Method.
undertaken to complete a project, to identify the least In this method, first of all, a list is prepared consisting
time for completing a task and the minimum time of all the activities needed to complete a project,
required to complete the whole project. It was followed by the computation of time required to
developed in the late 1950s. It is aimed to reduce the complete each activity. After that, the dependency
time and cost of the project. between the activities is determined. Here, ‘path’ is
PERT uses time as a variable which represents the defined as a sequence of activities in a network. The
planned resource application along with performance critical path is the path with the highest length.

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 coordinator 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

centralized, and authoritarian. Therefore, administration inclusive will to great extent depends on the response of
too, was the same. the States
But after independence with the change of guard , The Centre would have to play the role of friend,
political culture became democratic, and welfare- philosopher and guide to the States in facilitating the
oriented. Therefore, administration ethos too changed in growth process. It should take the initiative of activating
the course of time. the Constitutionally-approved institutional mechanisms,
Administration also influences political culture and so that States get a platform to voice their concerns.
helps in formulating governmental policies. The This would help the country achieve higher and
administrators provide different types of expertise and harmonious growth. Involvement of States should be an
suggestions to the political executive in the course of integral part of the development process.
the formulation of programmes and policies . Thus,
administrative and political culture interacts with each C. As Dr. B. R. Ambedkar observed, “the text of the
other. Constitution can provide the organs of the State, but
the final outcome of the governance process depends
B. Briefly discuss the main recommendations of the on how it has operationalized by the political parties
Punchhi Commission (2010) on Centre- State relations and people”. Elucidate the statement. 10
for transforming Indian Federal System. 20 Measuring governance is inherently controversial and
The Commission on Centre-State relations under the political exercise. According to the United Nations
Chairmanship of Madan Mohan Punchhi looked into the Development Programme's Regional Project on Local
new issues of Centre-State relations keeping in view the Governance for Latin America:
changes that have taken place in the polity and
economy of India since the Sarkaria Commission had Governance has been defined as the rules of the
last looked at the issue of Centre-State relations over political system to solve conflicts between actors and
two decades ago. adopt decision (legality). It has also been used to
Punchhi Commission recommended that the ISC must describe the "proper functioning of institutions and their
meet at least thrice a year on an agenda evolved after acceptance by the public" (legitimacy). And it has been
proper consultation with States. used to invoke the efficacy of government and the
The Commission also laid out the modalities for making achievement of consensus by democratic means
the ISC an effective mechanism for intergovernmental (participation) Political party treated as an intermediate
dispute resolution. semi-governmental and semi-societal organisation.
Constitution is the supreme law of the land, a
Despite repeated assertions by different Commissions, fundamental normative from which all other secondary
the ISC has held only 10 meetings in the last 22 years of norms such as statutory law, executive orders and
its existence and made tardy progress in addressing ordinances are derived. Political parties familiarize and
inter-State disputes educate voters and citizens in the functioning of the
political and electoral system and in generating general
Successive governments have preferred extra political values. Political parties balance opposing
constitutional bodies over Constitutionally-mandated demands and convert them into general policies. It
bodies like Zonal Councils and ISC to spearhead the channel public opinion from citizens to government and
development process. recruit and train candidates for public offices.
The success of the various initiatives from the Centre to A country can be said to be democratic only when its
make the growth process more sustainable and peoples need to have a free and informed choice among

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

according to the directions issued by the Council of

Ministers.
C. Comment on the recent changes in the approach and

methodology of devolution of responsibilities and
transfer of funds from the Union to the States.
Article 280 of the Constitution of India requires the
Constitution of a Finance Commission every five years,
or earlier. For the period from 1st April, 2015 to 31st
March, 2020, the 14th Finance Commission (FFC) was
constituted by the orders of President on 2nd January,
2013 and submitted its report on 15thDecember, 2014.
The Finance Commission is required to recommend the
distribution of the net proceeds of taxes of the Union
between the Union and the States (commonly referred Section-B
to as vertical devolution); and the allocation between Q5. Attempt all of the following in about 150 words
the States of the respective shares of such proceeds each: 10X5=50
(commonly known as horizontal devolution). A. Critically examine the concept of community
With regard to vertical distribution, FFC has policing as a tool for improving public-police relations.
recommended by majority decision that the States’ Strong relationships of mutual trust between police
share in the net proceeds of the Union tax revenues be agencies and the communities they serve are critical to
42%. The recommendation of tax devolution at 42% is a maintaining public safety and effective policing. Police
huge jump from the 32% recommended by the 13th officials rely on the cooperation of community members
Finance Commission. The transfers to the States will to provide information about crime in their
see a quantum jump. This is the largest ever change in neighborhoods, and to work with the police to devise
the percentage of devolution. In the past, when Finance solutions to crime and disorder problems. Similarly
Commissions have recommended an increase, it has community members’ willingness to trust the police
been in the range of 1-2% increase. As compared to the depends on whether they believe that police actions
total devolutions in 2014-15 the total devolution of the reflect community values and incorporates the
States in 2015-16 will increase by over 45%. principles of procedural justice and legitimacy.
B. Explain how budget can be used as a political

instrument.
The central government presents its annual budget,
which outlines the ruling party’s fiscal planning,
economic priorities and political game plan for the year
ahead. The inter-related objectives that government
budget serves in public policy making. These objectives
include the use of budget as a tool for implementing
fiscal policy, as an accountability tool for government
functioning, a planning tool to operationalise a
multi-year plan perspective and as a tool for anchoring

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 a theory X and presented his theory Y as a response to
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 decentralized. 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 context The essence of e-governance is "The enhanced value for
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 H.D. In India, transfer of planning and administrative
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

more functional autonomy and a. India is a welfare state and happiness of citizen
competitiveness. comes first.
4. Strategic Disinvestment for the improvement of b. In international relations, Kautilya’s Mandala
efficiency of the PSU. theory can be seen - India have not friendly
5. Last but not the least, introduction of VRS( relations with Pakistan and China on the one
Voluntary Retirement Scheme). side and on the other hand friendly relations
with Iran, Afghanistan and Russia.
But all the steps above are half hearted, some more c. Like Kautilyan administration present Indian
needs to be taken :- administration has well developed intelligence
1. Introduction of managerial practices like citizen and foreign services.
charter, TQM, etc in the PSU.
2. Inclusion of competitive and private budgetary ● Gandhian rhetoric :-
practices. a. In pursuance of Gandhian peace, India was a
3. Professional code of conduct for improving founding member of NAM, United Nation etc.
entrepreneurial skills. b. India follows principle of Panchsheel based on
4. Autonomy to diversify the production and truth and non-violence of Gandhi.
manufacturing. c. 73rd and 74th constitutional amendment gave
5. Collaboration and mutual transfer of employees due importance to local self government as
with big ventures for better training and propounded by Gandhi.
development.
6. More autonomy to raise funds and agreements (c) "District Collector is a legacy of the British Raj and
from international market. has largely remained insulated from the demands of
contemporary professionalism." Discuss. 10
(b) "Indian administration is said to be characterised by After Independence there was regular debate on the
its three features viz. Weberian structures, Kautilyan future of bureaucratic structure and post of District
practice and Gandhian rhetoric." Examine the Collector. With Sardar Patel’s argument and favour India
statement. 20 decided to continue this institution. Although post of
Indian administration is highly influenced by Weberian district collector was British experiment in India but it
structures (Professional outlook), Kautilyan practice played a decisive role in developing India.
(Centralized and Welfare overtone) and Gandhian 1. It strengthened government administration.
rhetoric (Moral values) :- 2. It provided expert knowledge at all levels of
● Weberian structure:- government.
a. Indian bureaucracy is rational-legal in character. 3. It played a major role in developmental
b. Bureaucrats are selected solely on the basis of schemes.
merit. 4. It also played a major role in implementing
c. Civil services as career social legislations.
d. Proper hierarchy 5. Last but not the least it played a major role in
e. Written communication the area of law and order & revenue collection.
f. Distinction between private and public ends.
g. Orders are impersonal. But this has several colonial British Raj features
unwanted for a welfare state : -
● Kautilyan practice:-

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 same way of revenue sharing.
nature as those practiced by the dacoits whom they The ruling is considered extremely significant as it will
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.

Panchayati Raj Institutions have been introduced under

These committees are: the 73rd Amendment Act of the Constitution of India in
1. The Public Accounts Committee 1992. Rural Development includes measures to
2. The Estimates Committee strengthen the democratic structure of society through
3. The Committee on Public Undertakings Panchayati Raj Institutions (PRIs). It also includes
4. The Standing Committee measures to improve the rural infrastructure, improve
Thus, the budget in a parliamentary system has its income of rural households and delivery systems
procedures of executive and parliamentary control. The pertaining to education, health & safety mechanisms.
revenues raised and public expenditure incurred has to The Government of India has taken many steps to
be accounted for and duly controlled by the finance develop rural India and for this, the Department of Rural
ministry and by Parliament through the instrumentality Development has been setup under the control of
of the C&AG of India. Ministry of Rural Development.
When both the houses of Parliament finally pass the The Panchayats are expected to play an important role
reports of PAG, the budget of the previous year stands in rural development in India, particularly after
executed and the process continues every year. The independence. Plan documents of both the central and
finance ministry and the executive departments have to state governments and various committees have
take actions on the recommendations of Parliament emphasized the importance of these bodies in the
committee reports and avoid the lapses in future. polity. Five-year plans, especially the second five-year
plan, laid special emphasis on the role of Panchayats in
Sunset legislation, ZBB, PB and PPBS are some of the rural developments.
recent techniques suggested as budgetary reforms by
Hoover Commission in USA and Peter A. Phyn of a (d) "Police-Public relations are a story of insincere
private company. The presidential system, because of efforts made on both sides." Elaborate. 10
separation of power does not have a minister/secretary ● Among several essential prerequisites for
in the House of Congress to monitor the budget of the public acceptance of the police, the legitimacy
President. So the budget has to be self-explanatory to of all their actions depends upon the extent to
muster support of Congressmen and senators on the which the public judges the police to have been
basis of its performance standards. behaving properly in accordance with the basic
rules and values. The central aspect of this
Similarly, programme planning is needed in the facet is Rule of Law.
American system where budget encounters adhocism ● The need to bring in change in attitude, secure
and deficit budgeting is to be avoided in the era of greater involvement of the people in policing
global spending by the President. In India, all these and spread human rights awareness and
techniques were easily adopted because of their education are amongst the core issues for
obvious advantages in a deficit economy and the consideration.
availability of planned economy. ● The police are embodied with a symbol of state
power and this makes it more vulnerable to
(c) Do you think that the role of Panchayati Raj should misuse it.
go beyond development administration? Give reasons ● Emphasize the need for change in attitude
for your answer. 10 because public servants are to serve the people
and not to act as masters.

● 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 that even to face a transfer or some minor inconvenience for
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

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 failed it was the traditional model of public administration that
experiments and failed techniques, mostly with their looked more and more dated (Hughes, 2003).
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."

Under a thought experiment, by assuming that there is

an equal chance for one to be anyone in society and,
thus, could benefit or suffer from a change, the public
interest is by definition enhanced whenever that change
is preferred to the status quo ex ante. This approach is
"ex ante", in the sense that the change is not evaluated
after the fact but assessed before the fact without
knowing whether one would actually benefit or suffer
from it.
The approach can be traced to John Stuart Mill, who, in

his letter to George Grote, explained that "human
happiness, even one's own, is in general more
successfully pursued by acting on general rules, than by
measuring the consequences of each act; and this is SECTION B
still more the case with the general happiness, since any Q.5. Answer the following questions in not more than
other plan would not only leave everybody uncertain 150 words each: 10x5=50
what to expect, but would involve perpetual (a) "Comparative Public Administration both resembles
quarrelling..." and differs from modern organization theory."
Applying a detailed definition is likely to result in Elaborate. 10
unintended consequences, in Acting in the Public According to Waldo, comparative public administration
Interest. Instead, each circumstance needs to be (CPA) both resembles and differs from modern
assessed based on criteria such as the relevant public, organization theory. It shares with modern theory a
wants, and constraints. The key to assessing any public concern for methodological problems; a reliance on
interest decision is transparency of the decision-making models such as the systems framework and structural
process, including balancing competing interests. functionalism; an interdisciplinary orientation; a search
There has been a great number of theories of public for universal concepts, formulas and theories; and an
interest like utilitarianism, elitism, intuitionism, social emphasis on empirical description.
justice etc. these are mutually conflicting, and one
executive action can be justified on the basis of one and However, CPA differs from modern theory in its explicit
condemned on the basis of other. With the coming up of comparative perspective, its focus on cultural diversity
LPG and international obligations, public policy has to and its fascination with Weberian bureaucracies.
take into account various other external international Though it was at one time widely believed that CPA was
factors too rather than just citizens and state issues. It the area of greatest promise in contemporary public
is therefore suggested that the public interest administration, Waldo feels that that promise has yet to
framework may not be sound as a ground theory to be fulfilled. CPA tells us about the relationship between
evaluate public policy. administration and social ends, the critical dependence
of civilization on effective governmental administration
and the difficulties in transferring the Western model of
administration to other cultures. But the basic problem
of the CPA movement was the distance between the
theoretical models employed and the evidence of field

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

● Encourages spending up to the budget so that

the budget is maintained next year. Despite such inspiring models of effective public
● The budget may become out of date and no participation (PP), the benefits have not been fully
longer relate to the level of activity or type of utilized. Primarily because decentralization of
work being carried out. development planning which is a precondition for PP
● The priority for resources may have changed has not been achieved in reality. Institutions like DPC
since the budgets were set originally. and MPC are still getting bogged by top down planning
● There may be budgetary slack built into the approach. This is further aggravated by the closed and
budget, which is never reviewed- managers mechanical bureaucracy as steps like Sevottam model
might have overestimated their requirements in or Open door administration are still in their primary
the past in order to obtain a budget which is stage. Further the definition of participation still does
easier to work to, and which will allow them to not encompass redistribution of power in ground reality,
achieve favourable results. reflected from the voluntary provision of granting
Q.6. (a) "For those who use the euphemism of 'shared operational and financial autonomy to the municipalities
power' for participation, the appropriate literature for and panchayats. And most importantly the existing
guidance is practical politics, not organization and economic inequality and social disparity delimits the
management." "Strong state and strong civil society are maximizing effect of public participation. Thus to
the need to develop both participatory democracy and achieve responsive administration both state and civil
responsive government as mutually reinforcing and society should work towards mitigating the bottlenecks
supportive." Bring out the myths and realities en route participatory governance.
associated with public participation. 20
Administration in the contemporary period is witnessing (b) "..... in most cases .... newly independent states, of
a paradigm shift towards responsive administration the nations of Africa, Asia and Latin America, despite
focusing on transparency, accountability and their differences .... are in transition." (Ferrel Heady).
participation. This shift is further emphasized through What common features are indicative of characteristics
the impetus put on participatory governance in the 12th of their administrative patterns (cultures)? 15
five year plan. The three continents of Africa, Asia and Latin America
had recently emerged from Colonization,and had
The shift towards participation is supported by the fact adopted administrative models from the West, while
that it is not only the means and end of development but their existing social systems were difficult to dismantle.
in the process strengthens democracy. In this
endeavour a strong state is needed for ensuring The study of CPA highlighted the common features of
standards, efficiency, equal opportunities ,checking these societies as ones in transition towards industria
market distortions, protecting and balancing interests, or a diffracted society. Under F.W Riggs Prismatic
complemented by the role of strong civil society to Societies Model the following societies due to uneven
check the inefficiencies and unresponsive state, thus social change had peculiar characteristics namely:
symbiotically encouraging “communitarianism”.
Introduction of village education committees, SMC, The Diffracted society is a society with high individuality
bhagidari scheme of Delhi govt, “communitization” of while Fused society has very low individuality and has
public services in Nagaland reflect the success of high herd or group mentality in working. While taking
mutually benefiting roles of state and civil society under American society as Diffracted and newly Independent
participatory governance. states as in a transition from fused to diffracted society.

a. Formalism : In these societies though there and respect for contract agreements, and legitimate
sufficient rules and laws to provide equality to recovery of costs and profit proportional to the risks
all, but there is a degree of deviation in actual undertaken. This role play of governance by the state
practice.This level depends on the extent to here will manage the continuum
which it has moved towards prismatic society
b. Heterogeneity : This talks of deviation seen in E-governance initiatives were also taken by providing
the way different groups of people are dealt on-line resources to augment decision making
with in real sense all though rules are the same. capabilities with respect to PPP projects. Apart from
There can be the presence of traditional courts these, the formulation of PPP policies and rules is done
as well as judicial courts in such society. with extensive consultation of central and state
c. Overlapping: There are levels of overlapping in government which ensure transparency, fair &
functions or values in society. There may be competitive bidding, affordability and value for money
multiple organizations doing the same job. For finally serving as a regulatory guideline under which,
example, respecting elders and making them to PPP models functions flawlessly. The institution like
comply with rules and procedures of the India Infrastructure Project Development Fund (IIPDF)
organization may be a matter of overlapping for project development & procurement, two central
where its up to the person whether to give him training institutes like the Indian Maritime University and
preference or according to queue. Lal Bahadur Shastri Institute of Public Administration
d. Nepotism : Giving preference to people of one's for training of officials to deal with PPP projects are
own community over other communities.The also lined-up.
level of these administrative patterns vary with
states may vary but are present in states in Q7. (a) “Economic reforms are a work in progress with
transition as identified by Ferrel Heady. the state reluctant to fully relinquish its reins.”Discuss
the statement with regard to the implementation of
(c) "To talk about the regulatory framework is to talk economic reforms in India. 15
about governance." Analyse the statement in the The impact of ten years of gradualist economic reforms
context of public-private-partnerships and identify the in India on the policy environment presents a mixed
elements of regulation. 15 picture. The industrial and trade policy reforms have
The role of government in the investment model like gone far, though they need to be supplemented by labor
“public-private partnerships” are not only to provide market reforms which are a critical missing link. The
quality public services, but also to monitor the logic of liberalization also needs to be extended to
marketplace emphasizing the necessity of sound & agriculture, where numerous restrictions remain in
well-defined regulatory framework to be in place that place. Reforms aimed at encouraging private
will maximize the benefits of the government. The investment in infrastructure have worked in some
framework will also ensure that essential partnership areas but not in others. The complexity of the
operate efficiently and optimize the resources available problems in this area was underestimated, especially in
to them in the line with broader policy objectives the power sector. This has now been recognized and
ranging from social policy to environmental protection. policies are being reshaped accordingly. Progress has
been made in several areas of financial sector reforms,
In turn, it provides assurance to the private sector that though some of the critical issues relating to
the regulatory system includes protection from government ownership of the banks remain to be
expropriation, arbitration of commercial disputes, addressed. However, the outcome in the fiscal area

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

gladly; responds well to overtures by peers; Mr.C is a teacher who loves responsibility; Need
but neither mixes with anyone himself nor to be utilized both in hygiene matters and
seeks anyone's company. What is more, he motivational matter; (Herzberg). Organisation
seems quite happy in his isolation. needs people like C. So it must ensure that
Mr. A has impeccable professional qualities Finance section does not raise undue
except that he is a reserved person; He would objections for genuine medical bills; Should
be a greater asset to the organisation if he can give him full tenure if there is a vacancy;
be more social as he can Instil professionalism (Motivational factor) . If full tenure can’t be
in his colleagues; It could help him in his given, then a commensurate hike must be
upward mobility; Following strategies can be provided; (Hygiene factors), If even hike can’t be
used to make him more social : Organise provided, then financial difficulties must be
lunch/dinner meetings, where A can participate clearly communicated to Mr. C.
in informal groups; Ask him to mentor his 4. Mr. D is a metallurgist in the forge shop of the
younger colleagues; providing him a platform to steel plant, and has received honours for his
showcase his professional talent; Involve him innovativeness in modifying conventional
with a sociable team; alloys. He also paints well and values his
2. Mr. B is an efficient charge-hand at the welding painting skills far more than his metallurgy and
shop. He is very outgoing and makes friends is extremely unhappy that the company house
fast , but falls out with them very fast too. He journal did not finally carry his water sketch on
is however easily pacified when anyone asks its front cover.
him to calm down in the name of the Mr.D is an innovative metallurgist whose
organization. work-life balance is undermined because his
Mr.B is Social and responsible but can be water sketch was not on the Journal cover.
conflict-prone.Organisation may suffer because Herzberg prefers vertical loading to horizontal
of this- As he may antagonise other employees; loading in his view of Job enrichment; So the
Affect the health of the organization. Need to organisation can Organise a painting
follow Likert’s take on Conflicts : Managers competition where Mr.D can participate and
should solve the substantive conflicts by vent out his creative frustration.If a school is
win-win strategy;Managers should ensure that attached to the organisation, Mr.D can be asked
effective conflict would never arise as affective to spend some time teaching children about the
conflicts are difficult to solve; In an organisation concepts of painting
it is not only necessary to be friendly, it's also
indispensable to be polished; These skills must 8(b). Suppose the government of India is thinking of
be imparted to Mr.B through a training on soft constructing a dam in a mountain valley girded by
skills; forests and inhibited by ethnic communities. What
3. Dr. C is completely happy and absorbed when rational techniques of policy analysis should it resorts
he is teaching in the classes, and does not at to for coping with likely uncertainties and unforeseen
all mind when his workload gets heavier and contingencies.
covers new areas. But he gets angry when the
finance section raises objections about his In order to approach the above stated situation,
medical bills; and is furious that the higher scenario planning within rational policy technique must
administration is yet to give him full tenure. be adopted. The construction of a Dam would need to

evaluate the Environmental Impact, Social Impact and Several other scenario combinations must be seen eg. If
Integrated Impact in the vicinity of the Infrastructure the large dam is replaced by smaller run of the river
project. dams what would be the potential losses in terms of
energy and revenue and what would be the benefits in
Different scenarios would have to be planned and its terms of losses prevented to the community. A
subsequent impact on the different parameters be comprehensive Cost benefit analysis must also be
worked out. Eg. If the Dam with full capacity is gone adopted. However the costs must be compute values
ahead with, then what will be the ecological loss in for possible uncertainties eg. Floods- through damage
terms of biodiversity, ecological services- prevention of cost method. A supplementary qualitative framework
soil erosion, water retention, clean air among others. must supplement to capture loss of livelihood and
The number of hamlets that will be displaced and the dignity due to relocation. The benefits must include
cost in their effective resettlement and rehabilitation. local benefits of the project since hydroelectric projects
What are the social dynamics within the hamlets and are usually not to meet local needs, but rather to feed
how to design policy for R&R taking into cognizance the into the national grid.
well being of the vulnerable sections namely-elders,
women and children. What kind of livelihoods can they Keeping in mind the above factors the policy option can
be integrated into so that transition into new life is be well deliberated with the stakeholders to arrive at an
smooth. acceptable policy

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 to
personnel at the State level as well as at grassroots 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

appeasement, hence focus on projects like b. Identification of programme elements

Smart City, port-led development, sector c. Allocation of resources to programmes
specific development in Steel, Cotton and d. Utilizing forecast studies analysis-mostly
textiles. These projects are inspired to help multi-year forecasts are considered in
people meet their expectations. programmed budgeting
5. Democratization is the focus so as to leverage e. Measuring the actual performance of approved
bottom-up approach , hence more campaigns programmes and comparing with budget
like Progress Panchayat are being undertaken performance
for awareness. Civic bodies are competing in
Swachata Survekshan which again brings (c) The design of the Indian Police was to subjugate
citizens and their concerns at the center of the Indian People in the aftermath of 1857." Analyse in
discourse. the context of the Indian Police Act of 186l.
The public administration has become an open system. With the police force in India still being governed by the
The feedback loop has gained importance more than 19th century Police Act enacted in the aftermath of the
ever before. Assisted by digital technology 1857 revolt or subsequent post-Independence versions
administration is relying on people’s cooperation. primarily based on it, several committees, studies and
Administration as the facilitator which can treat the reports have suggested holistic reform to make policing
citizens are clients seems to be the future of more efficient and responsive.
governance.
The Supreme Court, while ordering reform, had in 2006
(b) Performance budgeting failed because it was issued some directions aimed at minimising political
applied to sectors/programmes where quantitative interference and enhancing efficiency in functioning.
'evaluation was not feasible." Examine the principles Most states abided by the order in letter but not in spirit.
underlying performance budgeting techniques. The intervention had been sought after the government
Performance budgeting started in the 1970s in the US did not implement the recommendations of the National
navy by Hover Commission where in inputs are related Police Commission constituted in 1977 after police
to outputs. excesses during Emergency.
Failure to sectors/programmes where quantitative The Sorabjee committee, the petition points out, had
'evaluation was not feasible : recommended an average of maximum eight hours of
1. One can quantify the number of schools built duty which could be extended up to 12 hours in certain
yet can't say how many students got real exceptional circumstances if adequate compensation
benefits of education. and facilities were provided. The model law provides for
2. It can't quantify the administrative division of all healthcare, housing, insurance, special allowances and
the ministries. other benefits.
3. It is not always possible to quantify each and
every work done by the government as many The report by the Gore committee, constituted by the
services are intangible. government in 1971, records that the average working
hours of subordinate police officers were "usually 10-16
The principles underlying Performance Budgeting are - every day, seven days of the week". "The constabulary
a. Identification of programmes required fulfilling is, therefore, largely concentrated in barracks," it said.
the mission An increase in workforce and efficient manpower

management to diffuse the pressure of work can ensure

24x7 policing without having a toll on policemen. CAG Audit is kind of a social audit, though it is
Government process and focuses more on Government
(d) "Reducing the size (geographical area) of the officials and Government auditors, whereas Social
district will provide relief to the overburdened and audits in broader in its scope and seeks to make the
overworked collector." Comment audit process more transparent and seeks to take audit
As regard the changing role of district administration findings to the public and stakeholders, who are the
majority of respondents of these districts agreed that users of Government schemes, services and utilities.
Independence has brought new challenges to district
administration. As captain of the team of district Q6. (a) "Gandhian model of decentralization is similar
officials, the collector has to coordinate the different to the process of reinventing governance." Analyse in
departmental units to prevent duplication, overlapping the context of good governance. (In about 250 words)
and waste. Majority of respondents considered the 20
District Collector as an agent of the state, custodian, Mahatma Gandhi advocated the concept of ‘Welfare
protector and a watchdog of the interests of the people State’ based upon the principles of good governance,
of district. which meant a state where the necessities of
The District Collector Coordinates the work of various down-trodden and welfare of a commoner through
development departments of the State Government at indigenous industries would become a hallmark. The
the district level. Maximum percentage of respondents first and foremost reform, in my view, is to address the
felt that the role of Collector as a coordinating agency Trust Deficit. The colonial administrative systems and
should be strengthened. The multifarious activities procedures seek of lack of trust in the officers who
performed by the Collector make him almost implement the schemes. The powers, administrative
indispensable but at the same time, also make him an and financial, are centralized and the decision making
overworked official. In the wake of acceptance of the processes are labyrinthine and time consuming.
ideology of the welfare state, and the technique of Mahatma Gandhi said “I believe in trusting. Trust begets
planned development, the District Collector had become trust. Suspicion is foetid and only stinks. He who trusts
something of a jack of all trades and had become an has never yet lost in the world. The employees are to be
overburdened official at the district level. trusted first to channelize their energy and creativity to
further the goals of the organization.
(e) "The concept of social audit is more comprehensive
than that of traditional audit." Comment Panchayat Raj is a system and process of good
The concept of Social Audit is more comprehensive, governance. Villages have always been the basic units
having a greater scope than that of traditional audit. In of administration in India since ancient times. The Gram
general, Social Audit refers to a process for measuring, Sabha can become the cornerstone of the whole
understanding and improving the social performance of Panchayat Raj institutional set-up, thereby to the Indian
an activity of an organization. In particular, it aims to democratic system. Gandhi’s concept of democratic
involve all stakeholders in the process. It measures decentralization bears the stamp of his passionate
social performance in order to achieve improvement as belief in non-violence, truth and individual freedom. He
well as to report accurately on what has been done. calls it Panchayati Raj or Village Swaraj. He wants to
Social Audit is an ongoing process, often done in 12- see each village a little republic, self- sufficient in its
month cycles that result in the preparation of annual vital wants, organically and nonhierarchical linked with
Social Audit document or report of an organization.

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 to (c) Justify the constitutional provision to treat certain
determine how he/she can use discretionary power in a expenditure as charged upon the Consolidated Fund of
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

to be paid in any case, whether the budget is passed or

not passed. Following are the charged expenditures:
Salary and Allowances of the President, Speaker /

Deputy speaker of Lok Sabha, Chairman/ Deputy
chairman of Rajya Sabha, Salaries and Allowances of
Supreme Court judges, Pensions of Supreme Court as
well as High Court Judges, Salaries and Allowances of
CAG, LokPal Debt charges of Government of India. The
above expenditures cannot be voted because; these
payments are deemed to be guaranteed by the state.
Although voting does not take place on such charges,
discussion can take place in any house of the
parliament. The demand for grant for these charges is
also made on recommendation of the president. (Article
113) Here we should not that retainer of Attorney
General or Solicitor General is NOT a charged
expenditure on Consolidated Fund of India. They are
paid a fee which comes from the budgetary allocations
of Department of Legal Affairs, which itself though
comes from consolidated fund but is a votable charge.
Further, while salary of High Court Judges is charged
from Consolidated Fund of States, their pension comes
from Consolidated Fund of India

STRATEGY FOR PUBLIC ADMINISTRATION
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; `Ìndicative'' 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

associations; Political rights; Grievance

redressal mechanism; Civil service neutrality;
Civil service activism.
● Financial Management: Budget as a political
instrument; Parliamentary control of public
expenditure; Role of finance ministry in
monetary and fiscal area; Accounting
techniques; Audit; Role of Controller General of
Accounts and the Comptroller and Auditor
General of India.
● Administrative Reforms since Independence:
Major concerns; Important Committees and
Commissions; Reforms in financial
management and human resource
development; Problems of implementation.
● Rural Development: Institutions and agencies
since independence; Rural development
programmes: foci and strategies;
Decentralization and Panchayati Raj; 73rd
Constitutional amendment.
● Urban Local Government: Municipal
governance: main features, structures, finance
and problem areas; 74th Constitutional
Amendment; Global local debate; New localism;
Development dynamics, politics and
administration with special reference to city
management.
● Law and Order Administration: British legacy;
National Police Commission; Investigative
agencies; Role of central and state agencies
including paramilitary forces in maintenance of
law and order and countering insurgency and
terrorism; Criminalization of politics and
administration; Police-public relations; Reforms
in Police.
● Significant issues in Indian Administration:
Values in public service; Regulatory
Commissions; National Human Rights
Commission; Problems of administration in
coalition regimes; Citizen-administration
interface; Corruption and administration;
Disaster management.

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

● Financial Administration- Financial ● Civil services- Public administration in theory

administration of India - M.J.K. Thavaray and practice - M.P. Sharma B.L Sadana and
Harpreet Kaur
Suggested Reading Books for Public ● Financial management : Financial
Administration (Paper - II) Administration in India - G.S. Lal
● Administrative reforms since independence-
Administrative Reforms- P.R. Dubhashi / S. R.
● Second ARC Reports
Maheswari / G.E. Gaiden
● Punchhi Commission recommendations
● Rural development- Local Government in India -
● Yojana and Kurukshetra Magazine
S.R. Maheswari
● Indian Administration – S R Maheswari
● Urban local government- Local Government in
● Indian Constitution - D.D. Basu (or) Pandey
India - S.R. Maheswari
● IASEXAMPORTAL Public Administration Study
● Law and order administration- - Law and Order
Kit
Administration in India - K. K. Sharma, District
Policing - K. J. Guha Roy
Public Administration : Paper II Specific Books Chapter
● Significant issues in Indian administration-
wise
Public administration in theory and practice -
● Indian Public Administration – Ramesh K. Arora
M.P. Sharma B.L Sadana and Harpreet Kaur ,
& Rajni Goyal
IGNOU study material
● Evolution of Indian administration- Indian Public
Administration – Ramesh K. Arora & Rajni
References :
Goyal, Administrative History of India (Vol. I, II
● Administrative History of India (Vol. I, II and III)
and III) - B.N. Puri
- B.N. Puri
● Philosophical and constitutional framework of
● Laxmikant's guide (for clearing concepts)
government: Indian Constitution - D.D. Basu,
● IGNOU Study Materials ( BA and MA)
Indian Public Administration – Ramesh K. Arora
● IJPA articles on relevant topics
& Rajni Goyal
● ICDEOL- Himachal Pradesh University Notes on
● Public sector undertakings- Public Sector
Public Administration
Undertakings - R. K. Jain
● The Hindu daily Newspaper
● Union government and administration- Central
● India Today Magazine
Administration - A. Avasthi
● Reports on National Administrative Committee
● Plans and priorities- Indian Public
Administration – Ramesh K. Arora & Rajni Goyal
● State government and administration- State
Administration - J.D. Shukla
● District administration since independence-
District administration -- S. S. Khera, District
Administration -T.N. Chaturvedi

Public Administration Solved Papers Us (2013-2021)

Uploaded by

Document Information

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

Public Administration Solved Papers Us (2013-2021)

Uploaded by

Copyright:

Available Formats

UPSC MAINS

PUBLIC ADMINISTRATION 2021 PAPER-2 11

PUBLIC ADMINISTRATION 2020 PAPER-1 23

PUBLIC ADMINISTRATION 2020 PAPER-2 33

PUBLIC ADMINISTRATION 2019 PAPER-1 45

PUBLIC ADMINISTRATION 2019 PAPER-2 58

PUBLIC ADMINISTRATION 2018 PAPER-1 76

PUBLIC ADMINISTRATION 2018 PAPER-2 90

PUBLIC ADMINISTRATION 2017 PAPER-1 104

PUBLIC ADMINISTRATION 2017 PAPER-2 116

PUBLIC ADMINISTRATION 2016 PAPER-1 129

PUBLIC ADMINISTRATION 2016 PAPER-2 142

PUBLIC ADMINISTRATION 2015 PAPER-1 155

PUBLIC ADMINISTRATION 2015 PAPER-2 166

PUBLIC ADMINISTRATION 2014 PAPER-1 177

PUBLIC ADMINISTRATION 2014 PAPER-2 192

PUBLIC ADMINISTRATION 2013 PAPER-1 208

PUBLIC ADMINISTRATION 2013 PAPER-2 223

STRATEGY FOR PUBLIC ADMINISTRATION 239

Detailed Syllabus of UPSC - Public Administration 242

Suggested Reading Books for Public Administration 245

PUBLIC ADMINISTRATION 2021 PAPER-1

SECTION-A decisions are programmed or

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 1

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 2

Q3.(a) Integration of different streams of

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 3

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 4

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 5

Section-B In this context, performance appraisal cannot serve

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 6

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 7

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 8

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 9

(c) Civil servants generally tend to exhibit the values

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 10

PUBLIC ADMINISTRATION 2021 PAPER-2

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 11

perceives the requirement for an administration and

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 12

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 13

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 14

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 15

Q4.(a) As a constitutionally mandated body the

To assess the role of the Commission in determining

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 16

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 17

The Prime Minister's Oﬃce, which began on an

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 18

the third tier of governance with focus on economic

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 19

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 20

(c) Police-public relations in India need to be

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 21

Too much of protection can reduce a person to

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 22

PUBLIC ADMINISTRATION 2020 PAPER-1

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 23

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 24

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 25

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 26

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 27

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 28

www.IASEXAMPORTAL.COM PUBLIC ADMIN SOLVED PAPERS (2013-2021) 29