In the post war period in general, development consciousness and development efforts, emerged in the new nations of Asia, Africa, Latin America and parts of Europe, required a civil service of integrity, equipped with administrative ability and practical sagacity for development. Ferrel Heady1 says, “The importance of administration is almost universally recognised among commentators on development. Usually an effective bureaucracy is coupled with a rigorous modernizing elite as a pre-requisite for progress”.
Development and Development Administration
The term `Development’ is explained in dictionaries as `end oriented’. It is defined as a growth into a better, fuller, higher and mature condition. In the context of post war efforts at development, the term development also means a state directed and planned effort at change. Mr. Bata K. Dey1 says, “Development is a total plan of action, to bring about a directed or guided change in all aspects of social activity geared to national progress, with a heavy import of achievement of pragmatic goals”. If such is the meaning of development, naturally, the government and administration are jointly and deeply involved.
The administration concerned with developmental activities is called “development administration”. Development Administration is actually an action and goal-oriented administrative system geared to realize definite pragmatic values. These values are usually referred to as `nation-building’ and socio-economic progress’. Weldner2 defines Development Administration as “the process of guiding an organization towards the achievement of progressive political, economic and social objectives that are authoritatively determined in one manner or another”.
Fainsod3 , considers development administration as “a carrier of innovating values”, which also “ordinarily involves the establishment of machinery for planning economic growth and mobilization and allocating resources to expand national income”. Panandikar4 defined it as an “administration of planned change”. William J. Siffin5 says, “the essence of development administration is holistic change undertaken through integrated, organized and properly directed governmental action”.
J.N. Khosla4 points out “Development Administration not only envisages achievements of goals in a particular area of development by making a system more efficient, it must also reinforce the system imparting an element of stability as well as resilience to meet the requirements of future developmental challenges. Apart from putting emphasis on `pragmatic goals’, `innovating values’ or `holistic change’, also required is the `development design strategy’.
William Siffin and Milton Esman says there should be a focus on ‘Institution Building’. Siffin emphasizes that the essence of development is not to maintain, but to create effective institutions as and when required. For it, Development Administration needs efficient institutions having “ability to design, problem solving and making arrangements (involving technology)”.
Maximum utilization of all the resources
In the words of Donald Stone3 Development Administration is the blending of all the elements and resources (men, money and material) into a concerted effort to achieve agreed upon goals. It is the continuous cycle of formulating, evaluating and implementing inter-related plans, policies, programs, projects, activities and other measures to reach established development objectives in a scheduled time sequence.
Role of Bureaucracy in development Administration
According to Charles T.Goodsell2, Bureaucracy/civil services are essentially a mechanism for processor to provide planning and an institutional infrastructure to convert inputs of objectives, capital and know-how into developmental outputs. Valson1 says that owing to the other pre-occupation of political leadership and its lack of technical know-how, the role of civil service in policy making, which in theory is advisory, has become actually a determining one.
Main responsibilities of Bureaucracy for making Development successful
Converting policies into directive plans, programs and projects is an inevitable function of action oriented development bureaucracy. At higher levels, the development administration has to see policy formulation, goals and strategy; appropriations and allocations of funds; fixing priorities; execution of policy; direction and training. The middle level is usually responsible for learning and interpreting; energizing and supervising; coordination and collection of information. The lower level undertakes the role of mass contacts, demonstration of innovations, introduction of new institutions and collection of taxes.
Requirements of Development Bureaucracy
The following are the requirements needed for the personnel/civil servants engaged in development administration should have –
- Mental framework – A scientific outlook. They should be progressive, innovative, reformist and even revolutionary in mental attitudes and approaches. They should never be rigid.
- Knowledge – They should have enough knowledge in their respective areas of the work – be it in the field science, technology or general administration.
- Skills – They require conceptual skills – ability for innovative thinking, problem – analysis, planning skills, technical skills, managerial skills and human skills.
- Vision – A bureaucrat working for development administration requires the vision of a statesman and not that of either narrow-minded politicians or a rule-minded bureaucrat. Along with vision is required dynamism, integrity, drive and passion to convert dreams into reality.
- Structures – Development Administration requires less hierarchical and more team-like structures such as Commissions, Boards, Corporations etc.
Behavior – The behavioral pattern should consist of (a) action and achievement orientation (b) responsiveness (c) responsibility (d) all round smooth relations inside with juniors and seniors and outside with clientele and the public (e) commitment to development ideologies and goals.
Besides, there should be –
- A working partnership between the civil servants and the people.
- Transparency in their working
- A sense of service, a spirit of dedication, a feeling of involvement and a will to sacrifice for the public welfare.
- A pragmatic application of the basic democratic principles. Higher civil servants should provide the required leadership to the lower levels of administration.
- Constant field inspection by senior officials.
- to provide the government with the ability to be in constant contact with the people; and
- to make the people conscious that the government is alive to their problem;
- Smooth relation between generalist administrators and experts specialists.
- Training from time to time to understand the success already achieved in the field of development administration and the efforts to be initiated in future.
Weaknesses of Development Administration
According to Valson1, the higher-level development bureaucracy suffers from four constraints:
- disagreements with political bosses;
- the relatively better economic and social status of civil servants;
- Supremacy of seniority and patronage than qualifications in promotions; and
- Unwillingness of bureaucrats to accept new ideas and technology for fear of loss of power and positions.
Middle level is constrained by: –
- conflict between young and old minds in civil service;
- a high level of corruption;
- low commitment to development; and conflict with higher level development bureaucracy and local politicians.
The lower level is facing:
- insufficient qualifications;
- poor salary;
- loss of morale and loss of faith in development ideology due to frustrating field experience; and
- loss of initiative, crippling subservience to seniors and sacrifice to developmental objectives.
According to Ferrel Heady1, the main hindrances on the way of effective development are:
- The growing gap between the rich and the poor nations or between different social strata within a nation. By seventies, the decaying trends had become noticeable in all the nations of developing world. Events like fast developments in the developed countries and a crisis with liberal democracy in the developing or under-developed nations in seventies and the early eighties have dampened most traces of early optimism.
- By the late sixties, a spirit of frustration and despair with `development administration’ and with `development’ in general had set in. For one thing, it became evident that externally induced modernization had failed to eradicate the basic problems of under-developed sections of society, it purported to solve. Whilst some significant increase in GNP had indeed taken place, poverty, disease and hunger had either worsened or remained unaltered.
All developing nations have inherited many things from their past. Their colonial heritage has meant
- a carry-over of the colonial bureaucratic traditions like elitism, authoritarianism, aloofness, red-tapism and paternalistic tendencies;
- There is a lack of incentive for talented and skilled for manpower necessary for development program. It is caused by inadequacies and deficiencies in the educational system, recruitments, training schemes and brain drain.
- There is lack of achievement orientation. The emphasis of civil servants is usually not on program goals, but on personal expediency, status-consciousness, and pleasing the political bosses. Reason for this is the persistence of traditional value system. Results of this tendency are `institutionalized’ and `socially sanctioned’ large-scale corruption and `over-staffing’ in lower bureaucracy.
- Discrepancy between form and reality. There is wide gulf between the administrative form and reality due to a superficial change to modernizing values and substantial continuation of the traditional ideas. As a result, we find superfluous and excessive legislation or rules (which are normally violated), false delegations and decentralizations, eye-washing/superficial reports and continuing backwardness.
Due to all these factors like colonial tradition; monopoly of some elite civil services over technical and professional services; excessive control of general administrators services involved in the sustainable development of infra-structure sector of the nation; coercive power gained by some self-serving politicians; the tiredness, near absence of strong political leadership; committed bureaucracy etc. have all made it more self-serving rather than working for development oriented administration.
An appropriate designing and sincere shaping of the civil service for making the administrative system an effective instrument for achieving developmental goals can be done –
- Development Administration mainly requires increasing the effectiveness of the human resource of administration termed as personnel or civil service.
- For increasing effectiveness in administration, the entire personnel system should be efficient.
- The role of the higher civil servants or the managerial cadre of service is always more important. As in development administration, they have to gear up their capacity to deal with continuous changes with vision, values, ideas, and monitor effective implementation of plans and programs of the government and its evaluation.
Making bureaucracy/civil service capable for development administration and achieve its goals within expected time is not an impossible thing. It requires a development of administration itself. Development of Administration means “a pattern of increasing effectiveness in the utilization of available means to achieve prescribed goals”. It can be done –
- through patterning the Administrative structure; and
- through patterning the behavior of civil servants.
Behavioural changes in bureaucratic patterns are obviously more important. These dimensions can be achieved either through reforms (structural) or through proper education and training of higher civil servants.
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