Governance 1

Governance Ready Reckoner
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GOVERNANCE
READY RECKONER
INDEX
Sl. No. Topic Page No.

1. Good Governance 1–2
2. Citizen Centric Governance 2–3
3. Citizens’ Charter 3–7
4. Transparency in Governance 8–9
5. Accountability 9 – 11
6. Social Audits 12 – 14
7. “Minimum Government and Maximum Governance” 14 – 15
8. Right to Information Act 15 -18
9. E-Governance 18 – 21
10. Corruption 21 – 22
11. Self Help Groups (SHGS) 22 – 24
12. Civil Services 25 – 27
13. Civil Society 28 – 29
14. Pressure Groups 30 – 30
15. NGOS 31 – 32
16. Rule of Law 32 – 33
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1. GOOD GOVERNANCE
1.1. DEFINITION
Process of measuring how public institutions conduct public affairs and manage public
resources and guarantee the realization of human rights in a manner essentially free of abuse
and corruption and with due regard for the rule of law.
According to the World Bank the components of Good Governance are:

o Capacity and efficiency in public sector management
o Accountability
o Legal framework for the development
o Information and transparency
1.2. CHARACTERISTICS & PILLARS OF GOOD GOVERNANCE
According to UNESCAP, the characteristics of Good Governance are as follows:

 Participatory
 Rule of Law
 Effectiveness and efficient
 Transparent
 Responsiveness
 Equitable and Inclusive
 Consensus oriented
 Accountability
1.3. NECESSARY PRE-CONDITIONS FOR GOOD GOVERNANCE
• Ethos (of service to the citizen),
• Ethics (honesty, integrity and transparency),
• Equity (treating all citizens alike with empathy for the weaker sections), and
• Efficiency (speedy and effective delivery of serviceand using ICT increasingly).
1.5. OBSTACLES
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1.6. INITIATIVES TAKEN BY GOVERNMENT

 Enacting Right to Information Act
 Introducing E-Governance – eg : JAM Trinity
 Legal Reforms
 Ease of Doing Business
 Decentralization -
 Police Reforms -
 Pro-Active Governance and Timely Implementation (PRAGATI)
 Good Governance Index
 Aspirational district Program
1.7. WAY AHEAD

 Strong Government Institution
 Strong Civil Society
 Prohibiting gender disparity
 Removing corruption.
2. CITIZEN CENTRIC GOVERNANCE
2.1. DEFINITION
Means placing citizens at the centre of modern public administration.
2.2. CITIZEN CENTRIC GOVERNANCE: ADVANTAGES

 Increased responsiveness to citizens
 Improved service quality
 Progressive interventions making it result oriented
 Participative service delivery
2.3. CITIZEN CENTRIC GOVERNANCE: HURDLES

 Low levels of Awareness of the Rights and Duties of Citizens
 Ineffective Implementation of Laws and Rules
 Red tapism
 Attitudinal problem of civil servants
 Inability within the system to hold the Civil Services accountable for their actions

2.4. HOW GOVERNANCE CAN BE MADE MORE CITIZEN CENTRIC?
 Re-engineering processes to make Governance ‘citizen-centric’.

 Adoption of Appropriate Modern Technology
 Right to Information
 Citizens Charters
 Independent Evaluation of Services.
 Grievance Redressal Mechanisms
 Active Citizens Participation – Public-Private Partnerships
 Making Institutions Vibrant, Responsive and Accountable
 Civil Service Reforms
 Periodic & Independent Evaluation of the Quality of Governance
2.3. INITIATIVES TAKEN BY GOVERNMENT

 Setting up of Central vigilance commission
 Review of Administrative Laws which include unification & harmonisation of statues,
laws, etc.
 Citizen charter
 e governance
 Computerised Grievances Redressal Mechanisms
 Right to information act
3. CITIZENS’ CHARTER
3.1. DEFINITION
BASICALLY, a set of commitments made by the organizations regarding the standards of
services and the deliveries.
3.2. PRINCIPLES OF CITIZEN CHARTER

(i) Quality - improving the quality of services;
(ii) Choice - for the users wherever possible;
(iii) Standards - specifying what to expect within a time frame;
(iv) Value - for the taxpayers’ money;
(v) Accountability - of the service provider (individual as well as Organization); and
(vi) Transparency - in rules, procedures, schemes and grievance redressal

Bernard Herdan Report - Comprehensive Review of Charter Mark Scheme

Key drivers of customer satisfaction.
1. Delivery of promised outcomes and Handling problems effectively
2. Timeliness of service provisions
3. Accurate and comprehensive information and progress reports provided
4. professionalism and competence of the staff
5. staff attitude - polite, friendly and sympathetic
3.3. HOW TO MAKE CITIZEN CHARTERS EFFECTIVE?

 Provide them statutory status
 Internal Restructuring shall precede charter formulations. (BPR)
 One size does not fit all - The formulation of citizen charters shall be a decentralised
activity with head office providing broad guidelines.
 Wide consultation process
 Firm commitments shall be made
 Redressal mechanism in case of default
 periodic evaluation of charters- citizen charter is a dynamic document
 Benchmarking of charters with end user feedback
 Hold officers accountable for Results.
3.4. PRINCIPLES TO BE FOLLOWED IN MAKING THE CHARTERS AND CHALLENGES

Factor Meaning Challenges Examples
It has to be both
vertical and
horizontal. Cutting
Managerial
edge functionaries Chennai Metropolitan
charters as they
across the water supply and
are prepared at
1. Consultation organisation need to sewerage board has a
highest level of
be involved. Stake consultative user group
hierarchy without
holders need to be and advice on charters.
any consultation.
consulted in
preparation of the
standards.
Capacity It is changing the Huge bureaucratic -Passport Seva Kendra in
2. building and way how the resistance to the ministry of external
business organisations change and affairs increased

process re- Perform their reform. efficiency and

engineering. functions i.e. transparency in charter
simplification of Established vested implementation.
work process to gain interest to the
efficiency. existing work -FAST - fully automated
process. software for transport of
Capacity building RTO Hyderabad – It has
involves building the Lack of provided for a real time
human and adaptability to the feedback on work
institutional increasing completion.
capacities through technology.
training -24 x 7 offices
and/capacity -Jan sunvayi kendras for
addition. citizen services in
Vadodara.
Professionalism,
- Lack of
attitude of the staff,
behavioural - Services first
information sharing
training initiative in
with customers, and
- Authoritativ Malaysia is to
Behavioural flexibility to the
3. e tendency rectify the mistake
change situation improves
- Beneficiary of public servant
satisfaction of
orientation when things went
citizens. (Bernard
to the public wrong.
Herdan Committee
services.
Report)
No proper ground
work is done in
KVIC (Khadi & Village
the preparation of
Industries Commission) –
the charters.
did not provide any
The objective shall
measurable standard to
4. Quantification be clear and Terms such as ‘in
verify the service.
measurable. best possible
time’, ‘to the
Kerala Police declined to
capacities of
prepare a citizen charter.
organisation’ are
used.
The model chapter
Charter has to
of Department of Charters of Women and
reflect vision and
Admin Reforms child welfare and
mission of the
5. Uniqueness and Public Department of Youth
organisation and
grievances is Affairs and Sports have
distinctive services
replicated in most very few differences.
provided by it.
of Departments.
Charters need to be
updated to the Only 6% of the
6. Revision changing needs of charter considered --
the people and a revision.
technology.

Many state has enacted

Right Service Act.
A bill was introduced in
Lok sabha –
In most of the
organisation in Right of Citizens for
Citizen shall be
India, grievance timely delivery of goods
provided with a
redressal is either and services and
Grievance mechanism to
7. absent or redressal their grievances
Redressal escalate and get
ineffective. It is Bill, 2011.
their grievances
increasing the - Hyderabad
redressed.
burden on Metropolitan water
judiciary. and sewerage
board offered
compensation if it
failed to fulfil the
commitment.
In India, charters
It gives greater In Malaysia client charter
are moral
respect and is a legally binding
8. Legality obligation not
attention from commitment on the
legal
executive. organisation.
commitments.
- Charter mark
Sevottam model in scheme in UK.
India takes in to - Sevottam in India
consideration only - 6th Pay Commission
Best implemented the organisational recommended for
charters, better aspects of charter integrating
9. Incentivisation performing officers such as Sevottam score to
need to be identified implementation Performance related
and awarded. but not the citizen incentive scheme
expectations in - 2nd ARC proposed a
charter 7 step model to
evaluation. improve charter
efficacy.
Charter is based on
a demand driven
In UK, awareness
approach so, No special funds
generation is considered
10 awareness of citizens are allocated for
Awareness as a special component
. leads to its awareness
to the charter
improvisation and generation.
Implementation.
better
implementation.

3.4. MEASURES FOR GREATER EFFECTIVENESS OF THE CITIZEN’S CHARTER
 Empowering gram Sabha as appropriate institutional level for social audit

 Empower social audit committees
 Enhance local capacities for social audit
 Social development monitoring (SDM): SDM is a periodic observation activity by socially
disadvantaged groups as local citizens who are project participants or target
beneficiaries.
3.5. WAY FORWARD

 Realistic assessment of quality and standard of service delivery
 Proper training and sensitisation programme among staff are needed.
 Consultation exercise is a must to ensure bottom-up approach
 Easy grievance redressal system and time bound delivery act
 Independent audit of results
CITIZEN CHARTER: BEST PRACTICE

4. TRANSPARENCY IN GOVERNANCE
4.1. DEFINITION
‘Increased flow of timely and reliable information - accessible to all the relevant stakeholders.
4.2. OBJECTIVE
‘The release of information which is relevant for evaluating institutions.’
 Ensures that laws and regulations are administered and implemented in an impartial
and predictable manner.
 All about publishing information and inviting people in, to use the information in
creative ways.
 People have a right to know what their government is doing, and the government has an
obligation to provide that information.
4.3. SIGNIFICANCE OF TRANSPARENCY
4.4. TYPES / FORMS OF TRANSPARENCY

4.5. MAJOR INITIATIVE TO ENHANCE TRANSPARENCY IN PUBLIC ADMINISTRATION IN

INDIA
 Right to Information Act: induces deep trust in the actions of the system
 Public Services Bill
 Citizens Charters: providing rights to citizens for time-bound delivery of goods and
services and provide a Grievance Redressal Mechanism
 e-Governance
 e-Bhoomi
 e-Choupal
 e-procurement
 Mission Karmyogi – Transparent personnel administrative system
RTI AMENDMENT ACT- 2019
5. ACCOUNTABILITY
5.1. DEFINITION
Obligation of those holding power to take responsibility and be held answerable for their
behavior and actions.
5.2. ELEMENTS OF ACCOUNTABILITY

1. Answerability- Responsibility of duty bearers to provide justification for their actions.
2. Enforceability- It is possibility of penalties or consequences for failing to justify once
actions
Types of Accountability
 Supply side accountability – Governmental side accountability
 Legislature control - Add tools used by these institutions
 Executive Control
 Judicial control
 Demand Side accountability – Social Accountability

5.3. KINDS OF ACCOUNTABILITY
External Accountability: Accountability directly to citizens. In democracies - achieved

through direct elections
 Internal accountability: It constitute institutional checks and balances and internal

oversight.
 Fiscal Accountability: involves scrutiny of records and financial transactions
 Process accountability: ensures public agencies to perform their actions as per the set
rules and procedures.
 Program accountability: looks in to the achievement of intended goals and outcomes of
an action. It goes beyond efficiency and looks into effectiveness.
5.4. IMPORTANCE OF ACCOUNTABILITY

 Ensures right use of power for collective good.
 Domesticates powers. It is done through different ways
 Threat of sanctions
 Forcing one to justify his/her actions
 Forcing one to exercise power in transparent ways
 Accountability makes discretionary power sensible and lawful.
 Increases trust of the people in their government.
 Brings in confidence, credibility and legitimacy to the government
 Ensures delivery of work as per set standards
 Creates a dialogic relation between public officials and citizens

5.5. ACCOUNTABILITY MECHANISM IN INDIA
5.6. CHALLENGES WITH EXISTING ACCOUNTABILITY MECHANISMS

 The failure of anti-corruption bodies has resulted into low conviction rate and low
disposal rate.
 Constitutional protection under 311 - 2nd ARC is in favor of repealing it.
 Lack of autonomy to CBI.
 Many types of official conduct which can cause immense damage to public interest - not
covered under PCA.
 Delay in appointment of lokayukta and lokpal and restrictions on there powers such as
neccesity to get prior approval.
 Immoral nexus between minister and corrupt civil servants.
 Lack of awareness and proper guidelines to carryout social audits.
 Non adherence to citizen charter because of lack of statuatory backing.
5.7. HOW TO IMPROVE ACCOUNTABILITY

 Regular, reliable and relevant information
 Clear delegation of roles and responsibilities with commensurate powers and resources
 Greater decentralization
 Greater monitoring of public expenditures
 Mandatory social auditing

6. SOCIAL AUDITS
6.1. DEFINITION
Social Auditing is assessment of organizational performance by primary stakeholders
Section 17 of the MGNREGA has mandated Social audit of all Works executed under the
MGNREGA.
6.2. OBJECTIVES OF SOCIAL AUDIT

 Assessing the physical and financial gaps between needs and resources available for
local development.
 Creating awareness among beneficiaries and providers of local social and productive
services.
 Increasing efficacy and effectiveness of local development programmes.
 Scrutiny of various policy decisions, keeping in view stakeholder interests and priorities,
particularly of rural poor.
 Estimation of the opportunity cost for stakeholders of not getting timely access to public
services.
 Enhancing transparency and making the system accountable
 Empowering people.
6.3. NEED OF SOCIAL AUDIT
6.4. BENEFITS
 Involvement of people in developmental activities ensures that money is spent where is
it actually needed.
 Enhancing accountability and transparency in local bodies
 Scrutiny of implementation of government programmes
 Options with rural people to air their opinion and grievances
 Promotes a sense of integrity and community among the people.
 Reduces corruption and wastage and promotes awareness among the people.

6.5. STEPS OF SOCIAL AUDIT
The Ministry of Social Justice and Empowerment has formulated a scheme, namely
Information-Monitoring, Evaluation and Social Audit (I-MESA) in FY 2021-22
 Social Audits are to be conducted for all the schemes of the Department starting FY
2021-22.
 Done through Social Audit Units (SAU) of the States and National Institute for Rural
Development and Panchayati Raj.
6.6. KEY FACTORS FOR SUCCESSFUL SOCIAL AUDIT

 Level of information shared with and involvement of stakeholders, particularly of the
rural poor, women, and other marginalized sections.
 Commitment, seriousness and clear responsibilities for follow-up actions by elected
members of the Gram Panchayat.
 Involvement of key facilitators in the process.
6.7. HOW TO ENHANCE LOCAL CAPACITIES FOR SOCIAL AUDIT

 Organization of a mass campaign to increase public awareness about the meaning,
scope, purpose and objectives of social audit.
 Establishment of a team of social audit experts in each district who are responsible for
training social audit committee members (stakeholders).
 Implementation of training programmes on social auditing methods - conducting and
preparing social audit reports, and presentation at Gram Sabha meetings.
6.8. ISSUES
 Lack of awareness among people.
 Lack of any legal proceedings for not following social audit principles
 Difficulty in fixing responsibility for wrong doing
 Ill structured and increase opportunity cost for the poor.
 No clear timetable for conduct of social audits
 Lack of follow up action on social audit findings.
 Lack of capabilities and resources for gram sabha for conduct of social audit.
 Reluctant attitude of bureaucracy to share information.
 Intimidating atmosphere to conduct social Audits
6.9. WAY FORWARD

 Enhancing of Gram Sabha powers to make them effective instruments of participatory
decision-making and ensuring accountability of PRIs in local development planning.
 Setting up of Ombudsman to look into complaints of local maladministration.

 Institutional capacity need be increased at PRI, Block, and DRDA level, in terms of
information Storage and distribution mechanism
 Development functionaries found guilty of violating established norms for local
development planning should be punished.
 Important to ensure that rural poor are given due protection when they wish to stand
up to speak against any misconduct.
 Develop an Institutional Framework for, organising PRI Accounting Audit and Social
Audits and putting them on the Internet.
Ram Chandran Committee Recommendations on Social Audit
 Convergence of all programs to conduct social audit on a single day. It
decreases the opportunity costs of poor and increases their participation.
 Effective information sharing, submission of action taking reports to grama
sabha to make it effective.
 Development of proper accounting mechanisms at village level is also most
important.
 Social audit reports can be introduced in legislature. It will improve their status
and legitimacy.
7. “MINIMUM GOVERNMENT AND MAXIMUM GOVERNANCE”
7.1. DEFINITION
 A shift from the state being the only provider of resources, to the effective
participation of the other non-state actors in nation building.
 Also means reducing and streamlining the government machinery to make it lean and
effective.
7.2. CONSTITUENTS
 A citizen friendly and accountable administration is the focus of such system.
 The Government is trying to shift from government to governance
 Objective - People should not be just receiver of government policies but they should be
the real driving force.
 Simplification and rationalization of the existing rules and introduction of information
technology to make governance more efficient and effective.
7.3. MERITS

7.4. EFFORTS TAKEN

Minimum Government
 Withdrawal from non-essential sectors(e.g.-divestment), encouragement to FDI
 easing of approval and clearances (e.g.-single window clearance) and opening up of
hitherto government monopolies(e.g.-oil and gas exploration and production)
 replacement of Planning commission with NITI Aayog having only advisory and think-
tank role
 Encouragement to PPP by government (E.g. In road construction and public utilities)
 Enhanced focus on ease of doing business (E.g.-Tax breaks, better infrastructure, SEZ
and manufacturing zones)
 Downsizing, Outsourcing and Right Sizing.
Maximum Governance
 Adoption of transparency, objectivity and accountability in service delivery (E.g.-
through e-governance)
 Inclusion of citizen charter, grievance redressal and Sevottam model in government
functioning
 JAM-DBT trinity for subsidy, scholarship, pensions and schemes (E.g. -Ujjwala yojana)
to maximise benefits to the people
8. RIGHT TO INFORMATION ACT

RTI: The Harbinger of Transparency “March from Darkness of Secrecy to the Dawn of
Transparency”.
8.1. RTI – OBJECTIVES
8.2. SALIENT FEATURES OF RTI ACT

8.3. PERFORMANCE OF RTI : 15 YEARS OF RTI

 Satark Nagrik Sangathan and the Centre for Equity Studies : more than 2.2 lakh Right
to information cases are pending at the Central and State Information Commissions
(ICs)
 CIC takes 388 days (more than one year) to dispose of an appeal/complaint from the
date that it was filed before the commission.
 Government officials face hardly any punishment for violating the law.
 Of the 29 ICs, two ICs -Jharkhand and Tripura -were found to have no commissioners
for varying lengths of time.
 In the last 15 years, at least 86 people who had filed RTI applications have been killed
while 175 others have been attacked.
8.4. RTI AMENDMENT ACT – 2019 – FEATURES AND CRITICISM
CRITICISM
 Dismantling of transparency architecture: Empower the Central government to
unilaterally decide tenure, salary, allowances and other terms of service of Information
Commissioners.
 Due to the excessive delegation, there is curbing of powers of the state legislature violate
the constitutional principles of federalism
 undermine the independence of Information Commissions
 delegates essential legislative functions to the Central executive and it is ultra vires of
Article 14 and 19(1) (a) of the Constitution
8.5. CHALLENGES IN IMPLEMENTATION OF RTI

 Colonial climate- mistrust of people by the bureaucrats.
 Official Secrecy Act which buttress secrecy: Classification of information as official
secrets in an unjustified manner.
 Low public awareness- as per the PWC Survey it was revealed that only 15% of the
respondents were aware of the RTI Act.

 Constraints or complications in filing complaints
 Problems with information provided

 Ineffective record management system and collection of information from field
offices
8.6. WAY FORWARD

 Change in bureaucratic attitudes: the public authorities must be sensitized
towards suo-motudis closure of correct information.
 Repealing of official secrets act, 1923 - substituted by a chapter in the national
Security Act
 Setting up of independent public grievances redressal authorities to deal with
complaints of delay, harassment or corruption.
 Leveraging e-governance for transparency
 The National Commission to Review the Working of the Constitution (NCRWC) :
should have an oath of transparency in place of an oath of secrecy for the
ministers.

 Establishment of Public records offices by integrating and restructuring the multiple

agencies currently involved in record keeping.
 Training on right to information for all government functionaries
8.7. SECOND ARC RECOMMENDATIONS TO STRENGTHEN THE ACT

 Repeal Official Secrets Act, 1923
 Amend Section 123 of the Indian Evidence Act, 1872
 Safeguard against disclosure of information against the national interest may be
provided through written undertaking by incorporation of a clause in the national
security law dealing with official secrets.
 The Armed Forces should be included in the Second Schedule of the Act.
 Amend and update the rules in Civil Service Conduct Rules, 1964 to ensure that they
are aligned with the present
 Strengthen the institutions that disseminate information.
9. E-GOVERNANCE
9.1. DEFINITION
Carrying out the functions and achieving the results of governance through the utilisation of
ICT (Information and Communications Technology).
9.2. STAGES OF E GOVERNANCE
9.3. GOALS
(a) Better service delivery to citizens
(b) Ushering in transparency and accountability
(c) Empowering people through information
(d) Improved efficiency within Governments
(e) Improve interface with business and industry.
9.4. PILLARS OF E GOVERNANCE

• People
• Process
• Technology
• Resources

9.5. TYPES OF E – GOVERNANCE
9.5. SIGNIFICANCE
 Automation of Administrative Processes
 Paper Work Reduction
 Quality of Services
 Elimination of Hierarchy
 Change in Administrative Culture
 Transparency by dissemination and publication of information on the web.
 Economic Development: The deployment of ICTs reduces the transaction costs, which
makes services cheaper.
 Social Development: The access to information empowers the citizens. Informed
citizenry can participate and voice their concerns, which can be accommodated in the
programme/ project formulation, implementation, monitoring and service delivery.
 Strategic Information System: ICTs effectively enable putting such strategic information
systems in place.

9.6. DRAWBACKS IN IMPLEMENTATION OF e-GOVERNANCE

 Low Digital Literacy
 Poor Internet connection
 Cyber Security issues
 Weather and geographical problems
 Language barrier
 Mistakes and errors caused by the technology during the implementation: Not being
able to recognise the biometrics of beneficiaries while distribution of PDS, Pensions etc.
 Lack of Proper Infrastructure facilities
 Non-Inclusive nature of technology
9.7. INITIATIVES TAKEN BY THE GOVERNMENT
G2G: Government to Government

 Computerization of Land Record
 Bhoomi Project, Karnataka
 Gyandoot , Madhya Pradesh
 Lokvani Project in Uttar Pradesh
 Project FRIENDS in Kerala
 e-Mitra Project in Rajasthan
G2C: Government to Citizen

 Khajane Project in Karnataka
 SmartGov (Andhra Pradesh)
G2B: Government to Business

 e-Procurement Project in Andhra Pradesh and Gujarat
 MCA 21
G2E: Government to Employee
 e-office

9.8. WAY FORWARD

 Building a congenial environment
 Identification of e-Governance Projects and Prioritisation
 Capacity Building and Creating Awareness
 Protecting Critical Information Infrastructure Assets
 Periodic independent evaluation of the information available
 Impetus should be provided to increase rate of literacy in India.
 Creating awareness about the usage of Information Technology.
 Making people aware of the facilities offered by the e-government
 Government websites must be made user friendly.
 Providing Internet access to all through public terminals as a part of Government
Universal access effort.
 Government should provide the measures so that the users can trust the technology
provided to them.
 Impetus to provide inclusive technology.
 Bilingual information on E-governance Application.
GOOD PRACTICE
Hyderabad has become the first city in the country to make available its transport data for
public use. It is country’s first data portal publishing datasets on bus stops, bus routes,
metro routes, metro stations, schedules, fares, and frequency of public transit services.
Open Datasets are important for technologists and researchers to create applications that
are needed for social good. In the age of analytics, machine learning and artificial
intelligence, such open data sets can help create all kinds of applications that make the
most optimum use of public resources.
10. CORRUPTION
10.1. DEFINITION
Use of public office for private gain.
10.2. CAUSES OF CORRUPTION
 POLITICAL: Emergence of political elite which believes in interest oriented rather than
nation-oriented programs and policies.
 ECONOMICAL: The more is the economic activity in the country regulated and limited, the
higher the authority and the power of officials in decision making and the greater the
possibility of corruption
 PROFESSIONAL ETHICS AND LEGISLATION: Where there is insufficient legal basis or
sufficient political will to control, which enables a non-transparent functioning of both politics
and the economy, corruption flourishes.
 SOCIO-CULTURAL: Tolerance of people towards corruption, complete lack of intense public
outcry against corruption and the absence of a strong public forum to oppose corruption
allows corruption to rein in our society

10.3. TYPES OF CORRUPTION

 SYSTEMIC CORRUPTION: When corruption is an integrated and essential aspect of the
economic, social and political system, when it is embedded in a wider situation that
helps sustain it.
 SPORADIC CORRUPTION: Occurs irregularly, not crippling, but it can seriously
undermine morale and sap the economy of resources.
 POLITICAL CORRUPTION: Any transaction between private and public sector actors
through which collective goods are illegitimately converted into private-regarding payoffs
 PETTY CORRUPTION: Small scale, bureaucratic
 GRAND CORRUPTION: takes place at the policy formulation end of politics, takes place
at the top levels of the public sphere
10.4. LEGAL AND INSTITUTIONAL FRAMEWORKS TO DEAL WITH CORRUPTION

 Prevention of Corruption Act -1988 and Amendment in 2019.
 Lokpal and Lokayukta Act – 2013 – Created an institutional framework at centre and
state level
 Central vigilance commission Act-2003.
 Central Bureau of Investigation
 Prevention of Money Laundering Act
 Anti -corruption Bureaus
 Consumer courts
 Whistle Blower protection Act- 2014
10.5. WAY FORWARD

 Promote competition in various sectors
 Simplifying transactions
 Reducing discretion
 Quick and Swift prosecution
 Proactive vigilance on corruption
 Reforms in investigation agencies
 Reforms in police (As Suggested in Prakash Singh Case)

11. SELF HELP GROUPS (SHGS)
11.1. DEFINITION
Groups of 10-20 people in a locality formed for any social or economic purpose. The SHGs are
formed for the purpose of better financial security among its members. SHGs can exist with or
without registration.
CHARACTERISTICS OF SHGS
11.2. EVOLUTION OF SHG MOVEMENT IN INDIA

1. PHASE 1
(a) SEWA (Self Employed women's Association) – Ela Bhatt –organised women
workers with the primary objective of increasing their income, Nutritional
standards.
(b) MYRADA - a Karnataka based NGO, promoted several locally formed groups to
enable the members to secure credit collectively and use it along with their own
savings for activities which could provide them economically gainful employment.
2. PHASE 2
(a) 1991-92 NABARD: started promoting self-help groups on a large scale
(b) Major experiments in small group formation at the local level were initiated in
Tamilnadu and Kerala about two decades ago through the Tamilnadu Women in
Agriculture Programme (TANWA) 1986, Participatory Poverty Reduction
Programme of Kerala, (Kudumbashree) 1995 and Tamilnadu Women’s
Development Project (TNWDP) 1989.
(c) 1993: Reserve Bank of India also allowed SHGs to open saving accounts in banks
11.3. ROLE PLAYED BY SHGS

 Status of women: SHGs has a multiplier effect in improving the status of women in
society as well as in family.
 Assets and income: SHGs have enabled the women to build assets, increase family
income, and reduce their vulnerability to economic stress, violence and exploitation.
 Health and nutritional status of the women and children has increased.

 The SHG programme has contributed to reduced dependency on informal money lenders
and other non-institutional sources.
 Education: Families participating in the programme have reported better school
attendance and lower drop-out rate
11.4. INITIATIVE TAKEN BY GOVERNMENT TO PROMOTE SHGS

 Minister of Rural Development has announced that more than 17 lakh self-help groups
(SHGs) are to be developed by 2022.
 National Rural Livelihood Mission (NRLM) or Ajeevika
 Self-Help Group (SHG)-Bank Linkage Programme
 NABARD promotes SHGs by providing grant support for training, capacity building,
skill upgradation, exposure visits etc.
 The government is planning to link platforms such as e-marketplace with the SHGs to
provide better prices for their products.
 “Women SHGs Development Fund” with a corpus of Rs.500 crore is operated by
NABARD.
 Rashtriya Mahila Kosh

12. Civil Services
12.1. BUREAUCRACY ROLE IN STRENGTHENING DEMOCRACY AFTER INDEPENDENCE

1. Indianization of civil services
2. Civil services got broad based with reservations
3. Welfare and developmental administration is able to take governance to the common
man.
4. Stability in times of political crisis is offered by the Bureaucracy ex- after death of Indira
Gandhi, Officers of PMO and cabinet secretariat played an important role to avert crisis
and communal tensions.
5. Values of Bureaucracy - Political Neutrality and anonymity aligned Bureaucracy with
democracy
6. Bureaucracy also helped in rooting local governments in India ex-capacity building of
local governments
7. It promoted a sense of Nationhood
8. Ministerial responsibility and respect, accountability to representative and
constitutional institutions reinforced democracy - ex - support to Election commission
and commitment to free and fair elections.
12.2. ISSUES WITH CIVIL SERVICES
12.3. CHANGES NECESSARY IN THE BUREAUCRACY IN THE ERA OF LPG

1. Adaptive and shall become specialized - More role for specialists need to be increased in
decision making
2. Technology utilization need to increase. Decision support systems need to be improved.
- E- governance
3. Accountability and transparency brings greater credibility to Bureaucracy. Ex - citizen
charters, social Audits, RTI etc
4. Pro active, adaptive Bureaucracy is required
5. People friendly, development centered
6. Isolationist, silo mindset shall change to wholistic view
7. It shall respect partnerships with private sector and civil society
12.4. LATERAL ENTRY REFORM IN CIVIL SERVICES
 The term lateral entry means the induction of specialists and experts, mainly those from
the private sector, in government organizations and ministries.
 In 2018, the government decided to undertake lateral recruitment of joint secretaries to
fulfil the twin purpose of bringing in domain expertise to the civil services and
addressing the problem of shortage of IAS officers at the Centre.

WHY?
 IAS has been designed for the pre-reform India of a dominant state. Lateral entry
enables entry of those who have “experienced” the government from the outside
 Career progression in the IAS is almost automatic , failure to induce efficiency and
meritocracy .
 Will bring in much-needed outside experience, buffer the talent within the
administration and challenge the IAS into continuous self-improvement.
 The shortage of officer is minimized.
 Transparency in Service.
 Improve efficiency and create competition in governance delivery.
CRITICISM
 Conflict of Interest.
 Lateral entrants cherry-pick their jobs, enjoy a system of revolving doors, come to
burnish their CVs, or in some cases even to promote private interests from within the
government
 Difference in organisational Values : Profit motive v. Public service
 Decision making process becomes tedious.
 Chances of Favouritism/nepotism increases.
 Groups representing SCs, STs and OBCs have protested the fact that there is no
reservation in these appointments.
12.5. SPECIALISTS VS GENERALISTS

Adopting Specialist Approach
 Specialists should be right at the top in the line authority rather than in a staff-cell
attached to the generalist line authority.
 The government would become: Less bureaucratic, more programme-oriented and
committed.
 The generalist administrator - frequent transfers
 Emphasis should shift from mere theoretical, bureaucratic control to a self-contained
knowledgeable set-up.
 Generalists are prisoners of rules, regulations and precedents, too much stress on
continuity, caution, and red tape.
 Understanding amongst experts (i.e. people with similar domain expertise) is better and
it may result in conducive work environment and better policy.
 Would end monopoly at the top with the introduction of lateral entries
 Ending of ageism as younger people will get to hold higher positions.
Adopting Generalists Approach
 Vests in a bureaucrat a successively larger responsibility for enforcing the general point
of view of the government.
 Top management job requires a general understanding
 Specialists employ an esoteric language to convey their ideas - leads to difficulty in
communication between the non-expert minister and the highly specialized expert
secretaries.
 Civil services thus require a mix of both generalists and specialists.

12.6. MISSION KARAMYOGI
NEED OF THE MISSION

 For comprehensive reform of the capacity building apparatus at individual, institutional
and process levels for efficient public service deliver
 to formalize the recruitment process and match the public service to a bureaucrat’s
competence.
 Enhance governance capacities.
 to enable systems for life-long learning for civil servants
BENEFITS OF MISSION
 Rule based to Role Based Training
 Professional Growth
 Uniform Training Approach: will harmonise training standards across the country, will
be a uniform approach in managing and regulating the capacity building ecosystem on
collaborative and co- sharing basis.
 Vision for future India: aims at building a New India, with its civil servants equipped
with right attitude, skills and knowledge.
 On Site Learning: democratise learning and enable equitable access to content at the
learner’s convenience.
 Adoption of Best Practices: will encourage and collaborate with the best-in-class
learning content creators/providers including public training institutions, universities,
and individual experts.
 Reducing the Training Cost: will persuade all the Central Ministries and departments
and their organizations to give more emphasis on online courses and directly invest
their resources towards co- creation and sharing the learning processes through
internal and external faculty.

13. CIVIL SOCIETY

13.1. DEFINITION
Civil society is an important element in the mobilization of resources, knowledge and
expertise to facilitate bottom-up approach of development. Civil Society provides for
sustainability of the developmental effort by bringing a sense of collective ownership among
communities.
The Gandhiji‘s Sevagram model, Tagore‘s Shantiniketan model also suggested for development
through people collectives.
13.2. WHAT ARE THE DIFFERENT TYPES OF CIVIL SOCIETY ORGANISATIONS?
Types of civil Society Features

To promote human rights of specific social
Civil rights advocacy organizations
groups
To promote individual civil liberties and
Civil liberties advocacy organizations human rights of all citizens, rather than
focusing on particular social group.
To increase citizen’s participation on public

Community based organizations, citizen’s
policy issues so as to improve the quality of
groups, farmers’ cooperatives
life in a particular community.
Business and industry chambers of To promotion policies and practices on

commerce business
To promote the rights of employees and
Labour unions
workers
International peace and human rights

To promote peace and human rights.
organizations
To produce, disseminate, or provide

production facilities in one or more media
Media, communication organization
forms; it includes television, printing and
radio.
To promote conservation of natural resources,
National resources conservation and
including land, water, energy, wildlife and
protection organizations
plant resources, for public use
To promote development through grant-

Private and public foundations
making and partnership
Political Parties; Religious Organisations;

Miscellaneous Housing cooperatives, slum dwellers and
resident welfare associations

13.3. ROLE PLAYED BY CIVIL SOCIETY INSTITUTIONS

 Essential for ‘restoring sanity’ to state and market institutions, whenever either of them
crosses a line.
 Early warning mechanisms, which are able to detect and amplify perturbations on the
ground, among the people, and alert society, the state, and the market to take corrective
action.
 Biodiversity reserves for preserving a vast variety of ideas and beliefs.
 Incubators for innovative approaches to resolve problems which neither the state nor
the market have been able to crack—such as guarding civil liberties, or the lack of basic
services to the majority.
 Crucial agent for limiting authoritarian government and it works towards popular
empowerment
 Increases the engagement of citizen and government on a day-to-day basis facilitating
the substantive democracy.
 The growing democratic deficit because of apathy of young population with convictional
politics is filled with new vibrant discourse in the public spaces facilitated by civil
society associations
 Civil society articulates public opinion to the policy making institutions such as
parliament, cabinet etc.
13.4. CHALLENGES
 Frequent arresting of activists and raiding CSIs
 Curbing sources of foreign funding while imposing onerous reporting and operating
conditions
 the rise of the right wing which questions the very legitimacy of the CSIs, just as the left
was doing in an earlier generation
 the increasing marginalisation of civil society with respect to all three spheres of our
lives—political, economic and social
 Many CSIs are seen as corrupt, and personal fiefdoms of charismatic founders.
 A large number of CSIs are seen as ‘self-appointed do-gooders’, not accountable to any
constituency other than their donors.
13.5. WAY FORWARD
 CSIs need to increase their membership or user-ship base and become accountable to
them.
 Need to become more democratically governed, participatory and accountable.
 CSIs must accept and practice the highest standards of financial reporting and
disclosure and hold themselves open to public audits, social audits, impact assessments
and so on

14. PRESSURE GROUPS
14.1. DEFINITION
A group of people who are organised actively for promoting and defending their common
interest.
14.2. KINDS OF PRESSURE GROUPS

 Institutional interest groups: groups are formally organized in the form of
institutions.
 Associational interest groups: organized specialized groups formed for interest
articulation, but to pursue limited goals.
 Anomic interest groups: more or less a spontaneous breakthrough into the political
system from the society such as riots, demonstrations, assassinations.
 Non-associational interest groups: are the kinship and lineage groups and ethnic,
regional, status and class groups that articulate interests on the basis of individuals,
family and religious heads.
14.3. HOW DO PRESSURE GROUPS ENHANCE THE DEMOCRATIC PROCESS?

1. Vital link between the government and the governed - keep governments more
responsive to the wishes of the community, especially in between elections.
2. Are able to express the views of minority groups in the community who might not
otherwise receive a hearing.
3. Able to use their expertise to provide the government with important information.
4. Offer an alternative source of advice to the government, separate from that coming from
the Public Service.
5. Generally promote opportunities for political participation for citizens, without the need
to join a political party. Moreover, they allow for the democratic rights of freedom of
speech, assembly and association to be upheld.
14.4. SHORTCOMINGS OF PRESSURE GROUP

 Exert influence because of their financial position
 Narrow selfish interests
 Some pressure groups are not democratic in themselves.
 Misuse of power
 Instability
 Propagating extremism

15. NGOs
15.1. DEFINITION:
“Private organizations that pursue activities to relieve suffering and promote the interests of
the poor.”
15.2. CHARACTERISTICS OF NGOS

 Formed voluntarily
 Independent of government
 Are not for private profit or gain
 Principal is to improve the circumstances and prospects of disadvantaged people.
15.3. ROLE OF NGOS

 Human rights and child rights
 Poverty eradication
 Animal Rights
 Prevent Social Injustice
 Conservation of Environment
 Aged people care routine
 Empowerment of women
 Disease Control and others
 Health and Nutrition plans
 Conservation of Wildlife
 Hygiene and Sanitation conditions
 Humanitarian Relief
 Education plans and literacy
 Refugee Crisis
15.4. CASE FOR REGULATION OF NGOS

 Fast pace of growth
 Misuse funds by floating NGOs.
 Most NGOs work with inadequately trained professionals.
 An increasing monopolization of their leadership.
 Many are funded by the government - therefore need to be scrutinized
 Recent Supreme Court judgement, called for regulation
 Less than 10% submit their accounts with the Registrar of Societies, as mandated by
law.
 Foreign funded NGOs’ agendas might be antithetical to national interests.

15.5. CASE AGAINST REGULATION OF NGOS

 Over-regulation: More regulations might hamper the functioning of well-meaning NGOs
 May restrict their ability to explore alternative paradigms of development to challenge
social, economic and political forces.
 Hence, while it is desirable and acceptable to regulate NGOs, the government should
take note as to not stifle their voices with over-regulation.
16. RULE OF LAW

16.1. DEFINITION
Is a legal principle that law should govern a nation, as opposed to being governed by arbitrary
decisions of individual government officials.
 Given by A.V. Dicey.
 Derived from the French phrase 'la Principe de legality' which means 'Government based
on the principles of law'.
 Based on the Latin term 'Lex is Rex' which means 'Law is King'
 According to Sir Edward Coke “Rule of Law” means the absence of arbitrary power on the
part of Government.
16.2. SIGNIFICANCE
“Rule of law is the cornerstone of all democratic societies”

 A proper system of checks and balances maintains the separation of powers

 ensures accountability
 enhances resilience
 maintain trust in public institutions
 the principles of legality
 legal certainty
 prohibition of arbitrariness of the executive powers
 Ensures judicial independence, impartiality, and equality before the law
16.3. DIFFERENCE BETWEEN RULE OF LAW AND RULE BY LAW
Rule of Law Rule by Law

Rigidity of the fine line of rules must be
Supreme authority must be granted to Law adhered to in order to set a thing into
motion.
Control the unlimited exercise of the power by Laid down by the supreme law-making
the supreme law-making authority of the land authority of the land.
16.4. CHALLENGES TO RULE OF LAW

 Lack of Independence of Judiciary
 Corruption in Judiciary
 Failure in imparting speedy Justice
 Poor justice administration
 Social inequalities
 Unequal distribution of wealth
 Unprofessional police
 Environmental degradation in the name of economic development etc

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Governance 1

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Governance Ready Reckoner

www.laexias.com Page 1 elearn.laex.in

Sl. No. Topic Page No.

2. Citizen Centric Governance 2–3

3. Citizens’ Charter 3–7

4. Transparency in Governance 8–9

7. “Minimum Government and Maximum Governance” 14 – 15

8. Right to Information Act 15 -18

11. Self Help Groups (SHGS) 22 – 24

12. Civil Services 25 – 27

13. Civil Society 28 – 29

14. Pressure Groups 30 – 30

16. Rule of Law 32 – 33

www.laexias.com Page 2 elearn.laex.in

According to the World Bank the components of Good Governance are:

1.2. CHARACTERISTICS & PILLARS OF GOOD GOVERNANCE

According to UNESCAP, the characteristics of Good Governance are as follows:

Group-1_Mains Page 1 https://manalaexcellence.com

1.6. INITIATIVES TAKEN BY GOVERNMENT

1.7. WAY AHEAD

2. CITIZEN CENTRIC GOVERNANCE

2.2. CITIZEN CENTRIC GOVERNANCE: ADVANTAGES

2.3. CITIZEN CENTRIC GOVERNANCE: HURDLES

Group-1_Mains Page 2 https://manalaexcellence.com

2.4. HOW GOVERNANCE CAN BE MADE MORE CITIZEN CENTRIC?

 Re-engineering processes to make Governance ‘citizen-centric’.

2.3. INITIATIVES TAKEN BY GOVERNMENT

3.2. PRINCIPLES OF CITIZEN CHARTER

Group-1_Mains Page 3 https://manalaexcellence.com

Bernard Herdan Report - Comprehensive Review of Charter Mark Scheme

3.3. HOW TO MAKE CITIZEN CHARTERS EFFECTIVE?

3.4. PRINCIPLES TO BE FOLLOWED IN MAKING THE CHARTERS AND CHALLENGES

Group-1_Mains Page 4 https://manalaexcellence.com

process re- Perform their reform. efficiency and

Group-1_Mains Page 5 https://manalaexcellence.com

Many state has enacted

Group-1_Mains Page 6 https://manalaexcellence.com

3.4. MEASURES FOR GREATER EFFECTIVENESS OF THE CITIZEN’S CHARTER

 Empowering gram Sabha as appropriate institutional level for social audit

3.5. WAY FORWARD

CITIZEN CHARTER: BEST PRACTICE

Group-1_Mains Page 7 https://manalaexcellence.com

4.3. SIGNIFICANCE OF TRANSPARENCY

4.4. TYPES / FORMS OF TRANSPARENCY

Group-1_Mains Page 8 https://manalaexcellence.com

4.5. MAJOR INITIATIVE TO ENHANCE TRANSPARENCY IN PUBLIC ADMINISTRATION IN

RTI AMENDMENT ACT- 2019

5.2. ELEMENTS OF ACCOUNTABILITY

Group-1_Mains Page 9 https://manalaexcellence.com

5.3. KINDS OF ACCOUNTABILITY

External Accountability: Accountability directly to citizens. In democracies - achieved

 Internal accountability: It constitute institutional checks and balances and internal

5.4. IMPORTANCE OF ACCOUNTABILITY

Group-1_Mains Page 10 https://manalaexcellence.com

5.5. ACCOUNTABILITY MECHANISM IN INDIA

5.6. CHALLENGES WITH EXISTING ACCOUNTABILITY MECHANISMS

5.7. HOW TO IMPROVE ACCOUNTABILITY

Group-1_Mains Page 11 https://manalaexcellence.com

6.2. OBJECTIVES OF SOCIAL AUDIT

6.3. NEED OF SOCIAL AUDIT

Group-1_Mains Page 12 https://manalaexcellence.com

6.5. STEPS OF SOCIAL AUDIT

6.6. KEY FACTORS FOR SUCCESSFUL SOCIAL AUDIT