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Recruitment in Civil Services in India – “Right person on right position at right time”

 

 

Recruitment in Civil Services in India

 

“Authority without wisdom is like a heavy axe without an edge.”

 Anne Bradstreet

The saddest part of life right now is that science gather knowledge faster than society gains wisdom.

Isaac Asmov

 

Introduction

No element more important for good governance, than the recruitment policy – The report of Inquiry on Public Service Personnel appointed by Social Science Research Council of USA in 1935 says, “No element of career service is more important than the recruitment policy.” [i] Gladden also points out that on recruitment rests, “The nature and degree of the usefulness of administrative machinery, to the service of which the human elements are dedicated” [ii]

Nothing damages the administration more than faulty recruitment.  A solid permanent structure cannot be built on weak foundation.  Any system can be strong, only when its foundations are laid strong. Any laxity in the recruitment and performance of this Service jeopardizes the objective and pushes the developmental goals behind. The quality, the tools and the style of governance depend on variables like the characteristic of the nation, the social structure, and nature of its people, their behavior and their value system.  

 

Diversities in India poses problems – The diversity made the divide easy in India, comprising of people belonging to different ethnic, religious, castes, linguistic and regional identities. It presents a fascinating picture of unity amidst diversity, cultural richness, largeness of area and huge population. While, different identities lived together for centuries and presented a mosaic culture, there have been periods of discord.

Way back on December 9, 1946, Mr. V.N. Narayan had said, At best of times, India is ungovernable country of diversities, conflicts and problems.[iii] Mr. Nani Palkiwala, a leading lawyer also expressed the same feeling after 50 years of self-rule, which gave to India empty coffers, unfulfilled promises, political instability, fractured society and perpetual divide among different groups along caste and community lines.  He said, Our legal systems have made life too easy for criminals and too difficult for law abiding citizens.[iv] A touch here, a push there may make India ungovernable.

However, the forces of unity have always been stronger than the divisive forces. It is for this reason that India occupies a special place in the global society. Indian civilization is one of the oldest alive civilizations of the world.

Governance in India, a difficult task – Governance of a pluralistic democratic country, like India, is a sensitive and challenging exercise. The governance is not done in vacuum. For running the administration of any democratic country, amongst all, two variables are most important. One who governs, and two who are to be governed. Any deficiency on part of any of these two variables makes a democratic nation corrupt.

Henry George says about who are to be governed “When democracy becomes corrupt, the best gravitates to the bottom, the worst to the top.” And then its government becomes “the Government of the poorest, the most ignorant and the most incapable, who are necessarily the most numerous.” (Lackey)

Role of civil services in governance – In a democratic country, for the governance and delivering goods to public at large, the Government roughly depends on the following two general processes: –

       Process of politics, which consists of activities of the elected representatives of the people, and

       Process of administration which consists of the activities of permanent civil servants.

Role of permanent civil servants/Administrative machinery – The administrative machinery or Civil Service is a Professional body of officials, permanent, paid and skilled.[v]  The main characteristics of any administrative services are its efficiency, predictability, impersonal nature, and its impartial and speedy working.  It is always associated with exercise of authority.  Theoretically, the administrative machinery is subordinate to the elective body i.e. the Council of Ministers. But in practice, it plays a different role. The responsibility of political chiefs becomes formal, as they are forced to listen to the advice of the civil servants, which can dig and present data in a matter as they consider fit. The service role in relation to the minister is that of influence and not of power.[vi] It is this administrative apparatus that runs the government.

Recruitment Policy in Civil Services of a nation

Future lies not in jobs but on job-holdersThe future of any country lies not in jobs, but on jobholders.  Entry of sub-standard persons into administrative cadre, inflicts a permanent, cascading and damaging effect on the system.   No amount of training or coaching, pre or post, can convert the inherent weaknesses into strength within a short period. Today’s wrong selection could be tomorrow’s organizational problem.

Job requirements a must, while recruiting – Before recruitment, a thorough study needs to be done on job requirements, in the context of present and future roles.  The candidates should be selected on the basis of their capabilities, attitudes, aptitude and adaptability to meet the position profile.  The focus should not be only on job skills, but on attitude and behavior as well.

How to find out and recruit ‘Mr. Rights’ – It is one of the prime functions of any national Government to recruit, retain, train and retrain the best talent of the nation for its administrative work.  These Mr. Rights could either be recruited directly and be trained or could be selected from amongst already trained, experienced and skilled persons. New entrants should be told clearly about their role in administration, their responsibilities, key result areas and impact of their working on the whole system and the general public.

‘Merit concept’ for recruitment in career services -The need for a sound recruitment policy was first realized by China, centuries ago, which started the adoption of merit principle based on competitive examination.  Prussia was the first country, in modern times, to evolve a sound recruitment system.  Later on, the principle of merit was adopted by India in 1853, Britain in 1857 and U.S.A. in 1883 (through Civil Service Act of 1883).  Now all the nations accept that a good initial selection in positive term provide the Government with the right type of officials to implement its plans, policies and programs in a systematic and purposeful manner.

In India, the present recruitment policy has been evolved after a long experience.

Recruitment/selection of Mr. Rights during British rule in India

In India, the present recruitment policy has been evolved after a long experience. During British Imperial rule, the policy of the government for manning its crucial positions depended on following dictums –

White-man’s superiority during British Rule – The British, according to their aims and objectives, pursued the policy of ‘racial discrimination’ for recruiting officers in administration. They followed the dictum of White-man’s superiority” for the appointments of higher civil services in Government of India.  Though Queen Victoria’s Proclamation of 1858 clearly stated, “It is our further will that so far as may be, our subjects of whatever race or creed, be freely impartially admitted to the offices in our service, the duties of which they may be qualified by their education, ability and integrity, duly to discharge.[vii] But it was not meant to be followed. The rulers virtually prohibited Indians to join higher civil services intentionally for a long time. They did not want to give Indian any control over the governance of the country.

Lord Lytton, in his confidential document, confirmed that the pledge of the Royal proclamation of 1858 was never intended to be carried out.  He said, We all know that these claims, expectations never can or will be fulfilled. We have had choose between prohibiting them (Indians) and cheating them, we have chosen the least straightforward course.[viii]

Lord Kimberley, the Secretary of State, laid down in 1893; It is indispensable, that an adequate number of members of the Civil Service shall always be European. Viceroy Lord Landsdown stressed Absolute necessity of keeping the Government of this wide-spread empire into European hands, if that empire is to be maintained.[ix] In 1867, Lawrence said very clearly, We have conquered India by force of arms, though the policy and good Government have already aided us. In the like manner, we must hold it. The Englishmen must always be in the forefront holding the post of honor and power, as the condition of our retaining of our rule.[x]

In Home Department Resolution of May 1904, Lord Curzon’s Government justified the policy, they were pursuing with regard to White-man’s superiority in Civil Service. The highest ranks of the civil employees in India, those in the Imperial Civil Service, the members of which are entrusted with the responsible task of carrying on the general administration of the country, though open to such Indians, who proceed to England and pass the requisite tests, must nevertheless, as a general rule be held by the Englishmen, for the reason that they possess partly by heredity, partly by upbringing and partly by education that knowledge of the principles of Government, the habits of the mind and vigour of character, which are essential for the task and the rule of India, being a British rule  and any other rule being  in the circumstances of the case impossible.  The tone and the standard should be set by those, who have created it and are responsible for it.[xi]

Illbert Bill controversy also proves that White bureaucrats were not at all prepared to share administrative powers with Indians, in spite of all the official declarations of 1833, 1858, 1861, 1892 and 1909.

Graduates from Oxford or Cambridge in higher civil services – Initially the British youth, who joined ICS, were mainly from the ranks of British professional middle classes. They had made smooth progression from school to Oxford or Cambridge.  The main attractions for them, to join the Indian Civil Services, were extremely generous salaries, opportunity to do something worthwhile, quick promotions, and responsibilities with full freedom to work.

These officers thought it their duty and took it as a challenge to provide, Care, protection and guidance ultimately liberty to the people, they ruled.[xii] Mr. Lines, an ex- ICS officer, said, I suppose, we thought of a simple Indian villager… Here are simple people, who need leadership. Mr. Arthur, another ex ICS officer, said, Their attitude, certainly was pateralistic, which was necessary in a colonial administration.

Restrictions on Indians to join higher services – The British deliberately kept Indians at bay by creating conditions, which prohibited Indians’ recruitment in higher administrative jobs.  They held the entrance competitive examination for Civil Services in England up to 1922. Only a very few Indians could bear the hazards and expenses of going abroad. There were extremely remote chances of succeeding in that examination.

 With the birth of Indian National Congress Party in 1885, and intensification of the nationalist movement, the demand for greater Indian participation at higher levels in Government and its administration grew. Gandhiji, Gokhale, Tilak, Patel and other devoted leaders put great pressure on the British for holding Civil Services examination in India, simultaneously with that of England.

 As national movement gained momentum, the British Government started holding Civil Services examination in India as well from 1922 onwards. Along with it, it had transferred some service functions to the Provinces and abolished All India services dealing with those service functions. The rulers continued their authority over control functions and services engaged in them – services ICS & IP.  British delegated the authority to Provincial governments to recruit personnel for their respective Provincial civil services, and organize the functioning of those activities.

Balance of power – Another principle, which the Colonial rulers followed was the dictum of ‘balance of power’ in matter of recruitment in government jobs. They were aware of the consequences of this delegation of authority. Therefore, they tried their best to balance the power in such a way, that no section of Indian society could become strong enough to pose a threat to its rule in India.  The dominance of Brahmins in administration, though mainly at lower level, cautioned the ruler. They regarded Brahmins as the main force behind the entire terrorist movements and agitation.

The British thought it necessary to keep a balance of power by propping up other sections of the society in order to stop the preponderance of Brahmins and forward castes in modern callings.  To counter their dominance, the British designed Reservation Policy. They fixed up quota in government jobs for different communities of Indian Society.

Through the Acts of 1909, 1919 and 1932, the British divided the Indian population into different groups, on the basis of caste, community, occupation, religion etc., and gave them separate representation in Legislative Councils, and Assemblies. They bestowed special benefits and preferences in education and Government jobs for different upcoming groups.

Rigorous Foundation training for Indians – The intensification of National movement and increasing demand of Indianization of Civil Services left a dampening effect on the attraction of British youths to join ICS. All the attempts to attract them fell flat. The number of British officials began to decline. More and more Indians joined the ICS. In order to maintain the standard, dignity and honour of the services as earlier, the British Government arranged three years of rigorous foundational training for the Indians selected from Indian center.

For appointees selected from UK center it was two years. They were required to undergo a years training in U.K., at one of the four universities – Oxford, Cambridge, London or Dublin, immediately after joining ICS. This training was for duration of two years for those, selected from the Indian center (Delhi). From 1937, it was reduced from two to one year.

The purpose of longer probation period  in Britain, for Indians was to bring them in close touch with British way of life, broaden their outlook, develop loyalty to Britain and develop the mentality of a foreign ruler.  The Indian officials had to appear in two examinations at the end of their probation in U.K., while their British counterparts, selected from London center, appeared only in one examination.  In all other matters like emolument and privileges, the Indian ICS officials got equal treatment, as was given to their British counterpart.  No doubt, all these efforts have helped ICS developing gradually into one of the most efficient/powerful services in the world.

British imperial rule followed strictly the Principle of Merit – The British Government firmly believed in the ‘concept of Merit’. They thought that if recruitment was done properly, the person would develop the capacity to become a good bureaucrat.[xiii]

    • Soon after consolidating their position in India, the British Government thought of a well-equipped and intellectually brilliant administrative framework.  They felt, If a succession of men of great talent and virtues cannot be found, or if the operation of any influence or party feelings and principles prevents their being chosen, we (the British) must reconcile ourselves to the serious hazards of the early decline, if not the loss of the great power, we have founded in the east.[xiv]
    • In the beginning, when British East India Company consolidated it power in India, there had been different opinions on the matter of selecting the administrators. Some preferred military men and thought them to be best qualified for the job of administration, while others thought that administrative posts should be exclusively filled by civilians.  It was argued that noblemen, carrying with them the impression of high rank and birth, having served the Company for some time and possessing local knowledge and acquaintance with the affairs and people of India, should alone be appointed.
    • At that time, the aim of the Government was to employ the most loyal persons for administrative work.  It gave rise to spoil system/patronage system of recruitment.  But it did not work very well.  Soon the British Government felt that favoritism, patronage or promotion of personal interests in recruitment would deprive the Government of the services of bright youth, who otherwise could have been selected. The realization, that Civil Service was not the conglomeration of individuals or groups, and it should comprise people with talent, integrity, dedication and apolitical and impartial approach, gave rise to the principle of Merit.
    • Any principle, which excluded knowledge, talent and virtue was not acceptable to them.  Qualifications to do a job well appeared to the British, the only worthwhile principle to select administrators. Their aim was to locate the administrators, “Capable of fulfilling duties of a nature, so particularly, delicate and important, both as they respect the peace and happiness of Indian subjects and the rights and privileges of the European Community in our eastern dominion.”[xv]
    • In 1853, Lord Macaulay thought of a recruitment policy based on “Merit principle” for higher Civil Services. It was based on open competitive examination, conducted by an independent body. The procedures were open, transparent and generally trouble free. Till 1922, the entrance competitive examinations for selection of senior officials were conducted only in England.  Since 1922, it included India, as well, as one of the centers.
    • In 1926, the newly formed public service commission was constituted for India and it began to conduct ICS examination on behalf of British Civil Service Commission.  This position continued till 1937, when the Public Service Commission (India) was replaced by federal Service Commission under Government of India Act 1935.  After 1943, the recruitment to ICS was stopped.
  • Until about 25 years ago, graduate degree was the only way to get a white-collared job. It has now been replaced by different specialized occupations which are highly academic and multi-disciplinary. They narrow down a candidate’s option by training one in one specific function.
  • Though the British Government gave preferential treatment to upcoming groups in government jobs, they kept the ICS untouched from the quota system till the last.  They firmly and clearly said to the upcoming groups that they wouldn’t weaken their Steel frame at any cost for anybody, as on it depended efficient governance of the country. It told the upcoming groups in clear terms, With its utmost desire to do so, the best for these classes, the Government will be and is powerless to help them, unless they qualify themselves to the same extent as others of their countrymen for duties of administration and public.[xvi]
  • British policy of communal representation took the shape of Reservation Policy in Independent India. In 1943, the British Government issued orders for 8 1/3% Reservation of posts for SC candidates in Central Government Services, raising the age limit and lowering the examination fee and qualifying standards for them, so that they can be successful in competitive examinations.

System of Recruitment during British rule – Lord Maculae initially shaped the recruitment policy for higher services in 1854.  The direct recruitment by competitive examination was envisaged with the idea that very brilliant person can be shaped into efficient officials suitable for holding senior positions. The basic ingredients of this system were:

    • Selection of really brilliant young people – the caliber of direct recruits was ensured by their success in an open competition.
    • An intensive training either formal or informal for two years; and
  • Actual field work for at least a period of five to seven years, during which they would be fully moulded to suit the needs of the organisation they were serving.
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British-rulers kept the ICS untouched from the quota system till the last – Before Independence, some seats were reserved for Muslims and Anglo-Indians in Central Services (Class I). However, there was no reservation in the ICS. In 1932, the British accepted Reservations for scheduled castes at National level through Communal Award”. But it could not be implemented till 1943, because of the procedural constraints. After 1943, the recruitment to ICS was suspended, earlier due to Second World War and later, because of transfer of power to Indians. The above shows the British design to prepare an atmosphere for the successful implementation of Reservation policy before quitting, knowing well that it would divide Indian society and adversely affect administration. It is unfortunate that the independent India has fallen into the trap.

After Independence

Difference between the Civil Services of British-Imperial-era and of Indian Civil services after Independence in selecting and nurturing ‘Mr. Rights’

    • Nominated by Directors of company – From 1805 to 1885, the higher civil servants were nominated by the individual Directors of the Company.  From 1858 onwards, in order to make the civil services in India efficient and well equipped, the British Civil Service Commission created in 1855, was given the charge to select officials through a competitive examination every year.
    • Intake in higher government services – British Government was very particular about the intake of the material into its elite service.
    • Esprit de’corps – Philip Maser said that there was esprit de’corps amongst the officers. Lines pointed out, It is the Esprit de’corps, which served to enforce a strong moral code. It did not need to be articulated.  Everybody knew it.
    • Smallness of service – “The smallness of service – just over a thousand at any given time – made for a strong sense of service loyalty.
    • No corruption – Clive Dewey said that the historical evidence pointed out to only a minute handful of officers being corrupt. “It was partially their salaries, partly their background, partly their sense of duty and partly ivory tower, in which they lived, which made any rumors extremely uncomfortable.[xvii]
  • Satisfactory work atmosphere – The ICS, whatever its complexion might have been, had developed traditions of independence, integrity, and hard work, though these qualities served the British rulers and not the Indian masses. This was the reason that ICS has often been called the Steel Frame, which reared and sustained British rule in India. Lloyd George, the British Prime Minister in his historic Steel-frame speech, said on Aug.2, 1922 in the House of Commons that British civil servants were the very basis of the Empire in India and so he could not imagine any period, when they could dispense with the guidance and assistance of a small nucleus of the British civil servants. He said, I do not care, what you build on it, If you take that Steel-frame out of the fabric, it will collapse.  There is only one institution, we will not cripple, there is one institution, and we will not deprive of its functions or of its privileges and that is that institution, which build up the British Raj – the British Civil Service in India.
  • Stress on TrainingThe British officials were not only very particular about the appointments in the ICS, but also provided atmosphere conducive to efficient performance, while on job.  They believed that for being a good bureaucrat something had to be learnt by experience. Therefore, immediately after their arrival in India, the new recruits were attached to district for on-the-job training for eighteen months.
  • During one year of district training, the officers had to get thoroughly acquainted with villages, administrative compulsions and a working knowledge of the relationship between various branches of Government at district headquarters like police, agriculture, local bodies etc. Another six months were directed to more intensive revenue work in district under land settlement. It meant harder and more complicated work.
  • Great stress on touring and camping out – Great stress was laid on touring and camping out.   They had to maintain diaries, which were thoroughly scrutinized by their seniors. It was made clear to senior district officers vide G.O. No. 738, published on 18th April, 1916, in ICS Manual, Madras, The great importance of paying attention to the training of young men, who were entrusted to their guidance and whose success in life and influence for good depends so greatly on the assistance, which they received at the outset of their career.
  • Guidance of the seniors – The system was so enforced and watched, that there was no escape, whatsoever, from acquiring knowledge about the basics of administration, and to learn about the problems of each and every area of their jurisdiction.  Guidance of the seniors prepared them to deal with those properly. The Government paid all the attention to see that, the new recruits were shaped into ICS role properly.  Political set-up according to Constitution of India – To govern the country, the Constitution of India has established three arms i.e. the Parliament, the Judiciary and the Executive.  First comes the Parliament, which lays the policy and frames laws of the land for governance. The Executive implements the policies, the laws and the programs. The Judiciary acts as a watchdog. All the three Arms of the State go together in improving the quality of life of public at large. Amongst all the three, the Executive affects the daily life of the people the most, as it implements the policies, the laws and the programs. The Indian higher Civil Services are the important component of the Executive.
  • Role of civil services in governance – The forefathers of the Constitution knew well the importance of civil services in order to ensure good governance to the country and providing the safety of the nation. Mr. MV Kamath said, “With the independence of our country, the responsibilities of the services have become onerous. It may make or mar the efficiency of the machinery of administration, machinery so vital for the peace and progress of the country. A country without any efficient Government service cannot make progress in spite of the earnestness of the people at the helm of affairs of the country. Whatever democratic institutions exist, experience has shown, that it is essential to protect public services as far as possible from political and personal influence and to give it that position of stability and security, which is vital in its successful working, as an impartial and efficient instrument, by which Government of whatever political complexion may give effect to their policies” (Constituent Assembly Debates, Vol. IX, p585).
  • Recruitment in Civil Services in India after Independence
  • Today, in independent India, neither the politicians, nor bureaucrats think on these lines.  The deliberate policy of the Government of India to give patronage to certain castes and communities under reservation policies has aggravated the crisis. It has generated rivalry between different sections of the society and created slackness in recruitment and training, which has ultimately led the nation to ineffective governance.

Mr. Subharajan said during Constituent Assemble debates, “Without an efficient civil service, it would be impossible for the Government to carry on and continuity to be kept. The importance of the Governmental administration has been in the fact that there is continuity and unless this continuity, there is chaos” (Constituent Assembly Debates, Vol. IX, p952).

Formation of Civil services after Independence – After Independence the government of India has formed many civil services, into which it appoints regularly officers professionally recruited and trained in various disciplines – functional, technical and specialist as well as managerial and generalist such as police force to maintain law and order, a diplomatic service for external affairs, technical services for Public Works Department or Electricity Departments, Railways and Customs etc.

Amongst all its civil services at national level, Independent India gives to IAS an elite status. It is meant predominantly to be engaged in the task of day-to-day governance and controlling law and order situation of the nation. The Government offers to IAS best career opportunities, more power, higher responsibilities, higher salaries, better perquisites, and superior status than any other service at the center or in the states and a place of pride in socio-political circle.

IAS officers, like their predecessor ICS, deliberate directly at the highest level of policy formulation and decision making. They exercise state authority from day one and continue to do it till their retirement.  Along with the council of Ministers, they control, virtually, all the levers of the governance of the country. Right from its inception, IAS has attracted the maximum attention of the government and the politicians. Also for an educated youth, it is a matter of pride to be a part of IAS, as it was with the ICS in pre-independence days.

Favouritism and concessions for political reasons – C Rajagopalachari has warned the nation, “Short sighted favoritism and concessions, to produce contentment among classes and castes, will be short lived and will deteriorate into a constant pondering to intrigues and factions, if we do not look to real efficiency.” Justice Gajendra Gadkar had also cautioned the policy-makers, “It must not be forgotten that efficiency in administration is of paramount importance, that it would be unwise and un-permissible to make any Reservation at the cost of efficiency in administration…”

 

But politicians bestowed arbitrarily ‘favoritism and concessions’ (in the recruitment and selection of ‘Mr. Rights’), ‘to produce contentment among classes and castes’. The result was, as Mr. Nani Palkiwala had said “50 years of self-rule gave to India empty coffers, unfulfilled promises, political instability, fractured society and perpetual divide among different groups along caste and community tlines.”

 

Structure of higher civil services at national level – After the independence, The basic task of administration changed from one of attending to routine regulatory function to that of promoting a rapid socio-economic change. Many leaders desired that ICS and similar services must disappear completely. They wanted the Civil Services of independent India to be constituted on a new basis, to fit in with the new system of Welfare State.  However, the circumstances, at the dawn of independence, were such that no drastic change could be made in the then existing system. Immediately after the independence, the number of IAS officers decreased to a great extent. Many British ICS officers took premature retirement after the independence. Also, a large number of Muslim officers opted for Pakistan. In 1951, the number of IAS officers was only 957. The Government of Independent India followed the same pattern of recruitment, as developed by the British Government, with minor changes here and there.

Though it is not officially classified, different types of services in the Government may be classified into three broad services function-wise:

  • Generalist Services;
  • Functional Services; and
  • Technical Services

Services like Indian Administrative Service, Indian Police Service and some Central Services fall in the first category. These are meant for performing the control functions of the government. The second one consists of specialised services, but appointment in these services does not require any professional qualification or experience. Some Central Services like Income tax Service, Indian Excise and Customs Service or Accounts Service comes in this category.  The third category of services is technical services, which require knowledge and experience of a defined field, professional degree, diploma and/or experience for appointment to these services. Engineering services, Health services etc., come in this category.

Need of talents in Civil services Independence – After 1947, independent India needed, more than earlier, energetic officers with drive, initiative, unquestionable integrity and positive outlook to meet the challenges of insurgent India.  Along with the traditional task of the maintenance of law and order, revenue collection, developmental works like integrated planning, implementation of programs, coordinate programs for economic and social regeneration and construction of new modern India, were added to the responsibilities of the administrative service. Now India required more in numbers, “The officers, manning the executive, must not only be good administrators, but should be imbibed with the service, possess leadership of a high order and be able to play the role of a guide and friend of the people.” [xviii]

Recruitment pattern after Independence – After Independence, for smooth, efficient and effective governance and successful operation of its developmental activities, Government of India focused its attention to conduct properly the initial selection of the services. It desired to select those candidates/officials for its civil services, who could implement its policies and programmes in a more positive, systematic and purposeful manner.  In order to provide the nation with a well-equipped and intellectually brilliant administrative frame-work, it decided to follow the earlier practice of the recruitment in higher services with minor changes here and there. It is to be done through open examinations every year, now to be conducted by Union Public Service Commission. UPSC was entrusted with the responsibility to spot out good candidates and nurture them to acquire the skills necessary for performing responsibilities of higher posts.

The basic ingredients of the system are: –

  • Selection of really brilliant youths through an open competitive examination, conducted annually by an independent agency – Union Public Service Commission.
  • Promotion of brilliant officers into IAS from the State Civil Services.
  • Intensive formal and informal training.  There has been arrangement for two years foundation training for new recruits and many in-service training programs, refresher courses, seminars, workshops etc., at frequent intervals.
  • Like British rulers, Independent India also acknowledges the value of actual field experience for initial four-five years, “What constitutes of being a good bureaucrat is something, he has still to learn and it can only be learnt by experience, for it is a lot of things, which one never can get into books.”[xix]

In 1975, under Dr. D.S. Kothari, a Committee was set up to review the system of recruitment to the higher services.  It recommended unified competitive examination consisting of a preliminary screening examination to test skill, speed and accuracy for non-technical civil services. It is an objective type to facilitate quick identification of those, who have the requisite range of knowledge. The main examination consists of four compulsory and four optional papers to test the depth of knowledge. Finally there is an interview to examine communication skills, public speaking skills, leadership qualities, ability to exchange meaningful ideas and attitude. This scheme came into practice from 1979.

Qualifications for entering competitive examination – Any Indian citizen, between the age of 21 to 28, holding a graduate degree from a recognized university, can appear in the entrance examination.  Candidates are permitted to take three attempts for each of the three categories comprising.

A candidate has to appear in the entrance competitive examination, which consists of three components:

    • Compulsory papers – to test the general mental culture and interests of the candidates;
    • Optional papers – to judge intellectual ability and scholastic attainment, and
    • Personality test – to see personal qualities including some intellectual qualities, which a written examination cannot discover.Immediately after their selection into various services, the successful candidates are sent to various training Institutions for their foundation training so that they may get the picture of the political, social and economic aspect of the administrative set-up and they may get acquainted with the basic concepts and requirements of their jobs.The pattern of examination is slightly different for technical services.  No preliminary screening has been considered necessary as technical graduates have already undergone a rigorous curriculum in their respective fields of study.  For joining various organised group `A’ services as technical side, the candidates have to appear in various competitive examinations conducted annually by UPSC itself.
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Before 1979, the written examination consisted of three compulsory subjects of 450 marks – Essay, General English and General Knowledge.  These were required to be taken by all the candidates. There were three optional papers, of 200 marks each, for candidates trying for IAS and IFS and Central Services Class I and II. For Police Services of Union Territories, candidates had to take only two optional papers of 200 marks each. Candidates appearing for category – I had to take two more optional subjects (Higher papers) carrying 200 marks each, additionally. This position is summarized in the table below: –

The standard of the lower papers (Optional papers) was approximately of an honors degree examination of an Indian University.  The standard of two additional subjects (higher papers) for category I was higher than that of an honors degree examination, that, too, were examined, only if a certain minimum marks, as fixed by the Commission, in three compulsory and three optional papers had been secured by the candidates. Interview for personality test carried 400 marks for IFS, 300 for IAS and 200 for all other services.  From 1969 onwards, candidates had the choice to answer the compulsory papers in English or in any one of the languages included in the Eighth Schedule of the Constitution.

In mid-seventies, the Kothari Commission was appointed to suggest improvement in the recruitment of higher civil servants. The Commission observed, that in order to meet the challenges and to achieve rapid socio-economic and political development, the administrators must have not only relevant knowledge and skills, but also Socio-emotional and moral qualities for working with the community.  Therefore, some changes in the recruitment policy and selection method were suggested.  On the basis of Kothari Commission’s recommendations a common Civil Service Examination, having equal number of papers, for all the three categories, which is conducted by UPSC, has been introduced since 1979.

The allocation of services – the IAS, IFS, IPS, or the Central Services – is on the basis of merit and choice. Normally, the top rankers opt for either the IAS or the IFS. The upper age limit varied between 26 to 28 years for general category candidates, from time to time. It was raised from 26 to 28 years in 1979, which continued up to 1987, after which it was again reduced to 26 years.  At present, it is again 28 years.

System of Competitive Examination – The examination is held in three stages by UPSC.

  • The first stage is a preliminary examination in General Studies of 150 marks and an optional subject of 300 marks.  This examination is of objective type with multiple choice questions. Through preliminary examination, about 85,000 to 10,000 candidates are short listed in order of merit, who are allowed to appear in the second stage of examination known as Main Examination.
  • The Main examination consists of conventional essay type paper in any Indian language, as per the Eighth Schedule, consisting of 300 marks, a paper of 300 marks in English, General studies I of 300 marks, General Studies II also of 300 marks, and two papers in each of the two optional subjects, each carrying 300 marks.  Indian language and English papers are part of the qualifying examination. These two papers are of matriculation standard.  Marks secured in these papers are not added to the total score.
  • Those, who succeed in main examination, appear for an Interview/Personality test, which is held to find out leadership qualities, depth of knowledge, attitude and willingness to understand all sides of a problem, communication skill and command over language. The merit list of successful candidates is prepared on the basis of their performance in the main examination (1800 marks) and interview (250 marks). Provision for reservation in IAS – After the First World War, a wave of socialism and emancipation of submerged people through governmental measures had swept all over the world.  The leaders of independent India, too, thought to do something more for the down- trodden. They felt, if the nation allowed the weak to stand and compete on equal footing with the strong, it would be throwing the dice in favour of the strong. Already after the departure of British, the administration fell into the hands of affluent people.  If nothing special were done for the Backward-class, the affluent class would keep the poor suppressed. At the time of independence, the backward class was alarmingly under-represented in Administration. The majority of the masses did not have access to education, gainful employment, land ownership and other facilities. Social justice and commitment to welfare ideologies demanded Governments intervention to give the disadvantaged preferential treatment in matter of education, jobs and other civic facilities.Pt Hriday Narayan Kunjru feared, The regulations, made in this regard, may be unnecessarily wide or they may even be changed in such a way, from time to time, as to enable the executive to exercise a considerable amount of undesirable patronage. Many constituent Assembly members apprehended the fall of efficiency and administrative standard. Thus, with Art. 15 guaranteeing equality to all irrespective of caste, creed or gender,  Clause (4), was included through First Amendment Act, on the pressures of leaders from South like Kamraj etc. It authorizes the state to take special care for the advancement of any socially, educationally and economically backward class of citizens or Scheduled caste and Scheduled Tribes.  Art. 16 (4) permitted the state to make a provision for the Reservation of appointment, in posts, in favour of any backward class of citizens, which in the opinion of state were not adequately represented in the services under the state. Simultaneously, the emphasis was laid that the claims of scheduled castes and scheduled tribes shall be taken into consideration, consistent with the maintenance of efficiency in the administration, while making appointments to services and posts in connection with the affairs of Union or of a State (Article 335).  Reservation for SC and ST – In pursuance of the constitutional provisions contained in Art. 16(4) and 335, various instructions were issued, from time to time, providing Reservation for SC/ST and OBC. The Government of India made provision for Reservation for SC/ST in Government jobs. By a resolution in 1950, the Government reserved 12.5% (for SC) and 5% (for ST) of the total available vacancies in all the Civil Services of Government of India, on the basis of their numerical strength in total population. It was raised to 15% for SCs and 7.5% for STs in 1970.  As for as women were concerned, on 17th July 1948, the Government of India announced that woman, too, were eligible for any public service including IAS and IFS.[xxi]  However, till 1965, there were some restrictions on married woman on joining IAS or appearing in the competitive examination.  If they got married after the selection, their retention depended on the performance of their work.[xxii]
  • In order to increase the number of SC/ST in IAS, in addition to Reservation of posts, many other benefits have been given to them in direct recruitment. These are: –
  • The Central Government issued orders for 27% Reservation for OBC on 13.8.90. This was challenged in the court of law.  The judgement was delivered on 16.11.92. Based on the judgement, revised orders were issued on 8.9.93. Reservation for OBC started at national level from 1994.  The Reservations for minorities was terminated by the Constitution.
  • The Constitution framers neither fixed up any quota, nor designated the people, who could be put in SC/ST or backward class list, nor did they fix any period. However the debates of the constituent Assembly clearly indicated that Reservation were meant only for a limited period.
  • However looking at the pathetic condition of down-trodden and their near absence in the administration, the forefathers thought, that if something more was not done for this vast segment of society, it would remain backward, exploited and deprived forever. Eventually, one day the society itself would get fragmented. With his unparalleled skill of speech Dr. Ambedkar calmed down all the voices raised against protective measures at that time, and with his legal acumen shaped the Constitutional provision about Reservation.
  • It was in this context that some national leaders, during Constitutional Assembly Debates, urged consideration for efficient administration and fair play to be kept in mind, so that the protective measures do not negate merit, competitiveness and development, either in the administration, or among the individuals. They warned the nation that the Reservation might create greed or abuse of power, increase communalism, or hamper the growth of national unity and solidarity.[xx]
  • However, it is felt that the changes, brought in after the Kothari Commission, have not improved the position. The caliber, character and leadership capabilities of the present administrative service officials are not as good as that of the previous one. Improvement is required to be made in the system. However, Mr. Appu says, “No reforms would work without improving the political atmosphere of the country. “
    • Age relaxation. The maximum age of direct recruitment for SC/ST increased by 5 years.
    • SC/ST allowed taking as many attempts, to appear in the competitive examination, as they could avail.  This works out to as many as 9 attempts.
    • SCT candidates qualifying by general standard not to be adjusted against quota.
    • SC/ST candidates exempted from payment of examination fees.
    • Separate interviews for SC/ST.
    • Pre-entry coaching classes organised by the Government for them.
    • Relaxation in standard to further improve their representation in the service.
    • If, in any particular year, the number of suitable candidates available is less than the number of reserved posts, the posts, so in excess, are to be treated as unreserved for that particular year. However, in the next year, the number of posts unreserved would be added to the reserved posts of that year.  This carrying over process is to operate for a period of two years, at a time.
    • Reservation in Promotions, not given effect to, in a particular year is carried forward to three subsequent recruitment years. SC/ST candidates to be given Reservation leading to their accelerated promotions. As per the Supreme Court judgement, in Indira Sawney case, delivered on 16.11.92, Reservations in promotion could not continue beyond 15.11.97. Hence 77th Amendment Act, 1995, notified on 19.6.95 (issued on 13.8.97), enabled the State, vide Art 16(4A), to continue it indefinitely.
    • De-reservation in a group A services permissible only in exceptional cases having: –
        • The approval of the Minister in charge of Department of Personnel,
        • On the basis of recommendations of a committee, comprising the secretaries in the Ministries of Personnel, Welfare and the administrative Ministry concerned.
        • Only after receiving the comments of the national Commission on SCT.

Concessions given to OBCs – The concessions to OBC’s are less than SC/ST in following respect:

    • They get relaxation in upper age limit up to 3 years only,
    • Number of chances available within the relaxed age limit for appearing in competitive examination limited to seven as against 9 in the case of SC/ST.
    • Relaxation in standard of suitability has been prescribed to further improve the representation of OBCs

Steps taken to implement Governments decision for appointment of OBCs are as follows-[xxiii]

    • A list of caste/communities, to whom the orders of Reservation are applicable are notified.
    • The persons/sections (Creamy layer), to whom the Reservation shall not apply, are specified.
    • A model format of an application form for claiming the benefit of Reservation, as well as, their not belonging to the creamy layer have been prepared and sent to State Government authorities, competent to issue certificate in respect of OBC status.
    • The Chief Secretaries of the state Governments are advised to issue necessary instructions to their district authorities for providing certificates required by the OBCs.
    • The existing 40-point roster for recruitment by open competition on an All India basis has been revised to a 200-point roster.

Impact of Reservation – No doubt, immediately after the independence Reservation has provided opportunities to some of the most neglected sections of the society to join the administration at senior level. The inclusion of those sections has made the composition of the service broad based, It compensated and helped to off-set the accumulated deprivation of lower castes to some extent. It made the empowerment of Backwards in political sphere a reality.  As a result of the Reservation, there has been a considerable increase in the representation of SCT in terms of absolute member and percentage of the total number of employees in IAS and other group A” services.  In 1953, there were only 0.35% (absolute numbers of 20) of SCs and 0.10% (absolute number 6) of STs in Civil Services group A. Their numbers rose to 96 SC and 34 ST in 1966, 227 (8.56%) for SCs and 132 (4.8%) for STs in 1976.  Non-adjustment of the meritorious SCT candidates against reserved vacancies, in direct Civil Services-recruitment has increased their number to more than 15% and 7 1/2%, respectively, every year. OM No.1/1/70 Estt. (SCT) dated 25.7.70, issued by the Ministry of Home Affairs, stipulates that in direct recruitment, whether by examination or otherwise, if sufficient numbers of SCT candidates are not available, on the basis of the general standard, to fill all the vacancies reserved for them, the SCT candidates should be selected on relaxed standards provided they are not unfit for such posts.  The UPSC continues, till now, the practice of relaxing standards, to the extent possible, while recruiting candidates belonging to SCT, to make up the short fall in reserved quota provided, they were otherwise considered fit for appointment.

It was hoped, that the candidates selected on relaxed standards would come up to the standard of other recruits selected along with them after receiving additional instructions, foundational training, in-service training and on- the jobs experience cum training arranged by the Government.  But, so far, neither there is any arrangement for giving formal additional training to the candidates selected on relaxed standards, nor for scrutinizing strictly or taking stern steps to improve their standard, apparently because of political reasons.

Conclusion

It is quite evident that the British design to prepare an atmosphere for the successful implementation of Reservation policy before quitting, knowing well that it would divide Indian society and adversely affect administration. It is unfortunate that the independent India has fallen into the trap. It has to come out of that trap. Any laxity in the qualifications of officials leads to inefficient or mal-administration and sub-standard services to general public. C Rajagopalachari was absolutely right in commenting, Short sighted favoritism and concessions, to produce contentment among classes and castes, will be short lived and will deteriorate into a constant pondering to intrigues and factions, if we do not look to real efficiency.

[i]    Report of Inquiry on Public Service Personnel appointed by Social  Science Research Council of  USA (1935 P.37)

[ii]   Gladden N, Civil Service – its problems and future, p64.

[iii]1 Quoted from The Tribune, dated 21.6.92, p21.

[iv]   Palikawala, We the People – The Lost Decade, p3.

[v]      Finer. Theory and Practice of Modern Government, p709, 1950.

[vi]     Paipandikar VA, Bureaucracy in India – An Empirical Study, IJPA, pp187, Vol. xvii, no.2,  April-June, 1971.

[vii]    Banerjea AC.  Indian Constitution documents, Volume II, p28, 1948.

[viii]    Annie Besant, How India wrought for freedom, p420.

[ix]    Bipin Chandra, Modern India, p158.

[x]    Tara Chand, History of Freedom Movement in India,  p497.

[xi]    Supplement to Gazette of India, June 4, 1904, p937.

[xii]    Dr. Clive Dewey, Anglo Indian attitudes, 1993.

[xiii]   Zinkin M,  Development for free Asia,  p83, 1963.

[xiv]   Major General Sir John Malcolm, Political History of India from 1784 to 1823.

[xv]   Malcolm, ibid,  p79.

[xvi]    Times of India Archives, May3, 1918.

[xvii]    Times of India, August 10, 1997, p2.

[xviii]   Administrative Decentralization Report, Chairman Flotcher AL, 1956.

[xix]   Zinkim M,  Development for free Asia, p83, 1963.

[xx]   Speeches of Raj Bahadur, pp622-24,  Avanta Sayanam Ayyangar,  pp 626-628,  Constituent Assembly Debates.

[xxi]   Hindustan Times,  Milestone P8, August 15, 1997.

[xxii]   All India Service (Recruitment) Rules 1954, introduced vide MHA Notification NO.13/7/56 (AIS) (III dt. 25.4.1957).

[xxiii]   Report of Ministry of Personnel, 1995-96.

 

 

“Authority without wisdom is like a heavy axe without an edge.”

Anne Bradstreet

The saddest part of life right now is that science gather knowledge faster than society gains wisdom.

Isaac Asmov

 

Introduction

No element more important for good governance, than the recruitment policy – The report of Inquiry on Public Service Personnel appointed by Social Science Research Council of USA in 1935 says, “No element of career service is more important than the recruitment policy.” [i] Gladden also points out that on recruitment rests, “The nature and degree of the usefulness of administrative machinery, to the service of which the human elements are dedicated” [ii]

Nothing damages the administration more than faulty recruitment.  A solid permanent structure cannot be built on weak foundation.  Any system can be strong, only when its foundations are laid strong. Any laxity in the recruitment and performance of this Service jeopardizes the objective and pushes the developmental goals behind. The quality, the tools and the style of governance depend on variables like the characteristic of the nation, the social structure, and nature of its people, their behavior and their value system.  

 

Diversities in India poses problems – The diversity made the divide easy in India, comprising of people belonging to different ethnic, religious, castes, linguistic and regional identities. It presents a fascinating picture of unity amidst diversity, cultural richness, largeness of area and huge population. While, different identities lived together for centuries and presented a mosaic culture, there have been periods of discord.

Way back on December 9, 1946, Mr. V.N. Narayan had said, At best of times, India is ungovernable country of diversities, conflicts and problems.[iii] Mr. Nani Palkiwala, a leading lawyer also expressed the same feeling after 50 years of self-rule, which gave to India empty coffers, unfulfilled promises, political instability, fractured society and perpetual divide among different groups along caste and community lines.  He said, Our legal systems have made life too easy for criminals and too difficult for law abiding citizens.[iv] A touch here, a push there may make India ungovernable.

However, the forces of unity have always been stronger than the divisive forces. It is for this reason that India occupies a special place in the global society. Indian civilization is one of the oldest alive civilizations of the world.

Governance in India, a difficult task – Governance of a pluralistic democratic country, like India, is a sensitive and challenging exercise. The governance is not done in vacuum. For running the administration of any democratic country, amongst all, two variables are most important. One who governs, and two who are to be governed. Any deficiency on part of any of these two variables makes a democratic nation corrupt.

Henry George says about who are to be governed “When democracy becomes corrupt, the best gravitates to the bottom, the worst to the top.” And then its government becomes “the Government of the poorest, the most ignorant and the most incapable, who are necessarily the most numerous.” (Lackey)

Role of civil services in governance – In a democratic country, for the governance and delivering goods to public at large, the Government roughly depends on the following two general processes: –

       Process of politics, which consists of activities of the elected representatives of the people, and

       Process of administration which consists of the activities of permanent civil servants.

Role of permanent civil servants/Administrative machinery – The administrative machinery or Civil Service is a Professional body of officials, permanent, paid and skilled.[v]  The main characteristics of any administrative services are its efficiency, predictability, impersonal nature, and its impartial and speedy working.  It is always associated with exercise of authority.  Theoretically, the administrative machinery is subordinate to the elective body i.e. the Council of Ministers. But in practice, it plays a different role. The responsibility of political chiefs becomes formal, as they are forced to listen to the advice of the civil servants, which can dig and present data in a matter as they consider fit. The service role in relation to the minister is that of influence and not of power.[vi] It is this administrative apparatus that runs the government.

Recruitment Policy in Civil Services of a nation

Future lies not in jobs but on job-holdersThe future of any country lies not in jobs, but on jobholders.  Entry of sub-standard persons into administrative cadre, inflicts a permanent, cascading and damaging effect on the system.   No amount of training or coaching, pre or post, can convert the inherent weaknesses into strength within a short period. Today’s wrong selection could be tomorrow’s organizational problem.

Job requirements a must, while recruiting – Before recruitment, a thorough study needs to be done on job requirements, in the context of present and future roles.  The candidates should be selected on the basis of their capabilities, attitudes, aptitude and adaptability to meet the position profile.  The focus should not be only on job skills, but on attitude and behavior as well.

How to find out and recruit ‘Mr. Rights’ – It is one of the prime functions of any national Government to recruit, retain, train and retrain the best talent of the nation for its administrative work.  These Mr. Rights could either be recruited directly and be trained or could be selected from amongst already trained, experienced and skilled persons. New entrants should be told clearly about their role in administration, their responsibilities, key result areas and impact of their working on the whole system and the general public.

‘Merit concept’ for recruitment in career services -The need for a sound recruitment policy was first realized by China, centuries ago, which started the adoption of merit principle based on competitive examination.  Prussia was the first country, in modern times, to evolve a sound recruitment system.  Later on, the principle of merit was adopted by India in 1853, Britain in 1857 and U.S.A. in 1883 (through Civil Service Act of 1883).  Now all the nations accept that a good initial selection in positive term provide the Government with the right type of officials to implement its plans, policies and programs in a systematic and purposeful manner.

In India, the present recruitment policy has been evolved after a long experience.

Recruitment/selection of Mr. Rights during British rule in India

In India, the present recruitment policy has been evolved after a long experience. During British Imperial rule, the policy of the government for manning its crucial positions depended on following dictums –

White-man’s superiority during British Rule – The British, according to their aims and objectives, pursued the policy of ‘racial discrimination’ for recruiting officers in administration. They followed the dictum of White-man’s superiority” for the appointments of higher civil services in Government of India.  Though Queen Victoria’s Proclamation of 1858 clearly stated, “It is our further will that so far as may be, our subjects of whatever race or creed, be freely impartially admitted to the offices in our service, the duties of which they may be qualified by their education, ability and integrity, duly to discharge.[vii] But it was not meant to be followed. The rulers virtually prohibited Indians to join higher civil services intentionally for a long time. They did not want to give Indian any control over the governance of the country.

Lord Lytton, in his confidential document, confirmed that the pledge of the Royal proclamation of 1858 was never intended to be carried out.  He said, We all know that these claims, expectations never can or will be fulfilled. We have had choose between prohibiting them (Indians) and cheating them, we have chosen the least straightforward course.[viii]

Lord Kimberley, the Secretary of State, laid down in 1893; It is indispensable, that an adequate number of members of the Civil Service shall always be European. Viceroy Lord Landsdown stressed Absolute necessity of keeping the Government of this wide-spread empire into European hands, if that empire is to be maintained.[ix] In 1867, Lawrence said very clearly, We have conquered India by force of arms, though the policy and good Government have already aided us. In the like manner, we must hold it. The Englishmen must always be in the forefront holding the post of honor and power, as the condition of our retaining of our rule.[x]

In Home Department Resolution of May 1904, Lord Curzon’s Government justified the policy, they were pursuing with regard to White-man’s superiority in Civil Service. The highest ranks of the civil employees in India, those in the Imperial Civil Service, the members of which are entrusted with the responsible task of carrying on the general administration of the country, though open to such Indians, who proceed to England and pass the requisite tests, must nevertheless, as a general rule be held by the Englishmen, for the reason that they possess partly by heredity, partly by upbringing and partly by education that knowledge of the principles of Government, the habits of the mind and vigour of character, which are essential for the task and the rule of India, being a British rule  and any other rule being  in the circumstances of the case impossible.  The tone and the standard should be set by those, who have created it and are responsible for it.[xi]

Illbert Bill controversy also proves that White bureaucrats were not at all prepared to share administrative powers with Indians, in spite of all the official declarations of 1833, 1858, 1861, 1892 and 1909.

Graduates from Oxford or Cambridge in higher civil services – Initially the British youth, who joined ICS, were mainly from the ranks of British professional middle classes. They had made smooth progression from school to Oxford or Cambridge.  The main attractions for them, to join the Indian Civil Services, were extremely generous salaries, opportunity to do something worthwhile, quick promotions, and responsibilities with full freedom to work.

These officers thought it their duty and took it as a challenge to provide, Care, protection and guidance ultimately liberty to the people, they ruled.[xii] Mr. Lines, an ex- ICS officer, said, I suppose, we thought of a simple Indian villager… Here are simple people, who need leadership. Mr. Arthur, another ex ICS officer, said, Their attitude, certainly was pateralistic, which was necessary in a colonial administration.

Restrictions on Indians to join higher services – The British deliberately kept Indians at bay by creating conditions, which prohibited Indians’ recruitment in higher administrative jobs.  They held the entrance competitive examination for Civil Services in England up to 1922. Only a very few Indians could bear the hazards and expenses of going abroad. There were extremely remote chances of succeeding in that examination.

With the birth of Indian National Congress Party in 1885, and intensification of the nationalist movement, the demand for greater Indian participation at higher levels in Government and its administration grew. Gandhiji, Gokhale, Tilak, Patel and other devoted leaders put great pressure on the British for holding Civil Services examination in India, simultaneously with that of England.

As national movement gained momentum, the British Government started holding Civil Services examination in India as well from 1922 onwards. Along with it, it had transferred some service functions to the Provinces and abolished All India services dealing with those service functions. The rulers continued their authority over control functions and services engaged in them – services ICS & IP.  British delegated the authority to Provincial governments to recruit personnel for their respective Provincial civil services, and organize the functioning of those activities.

Balance of power – Another principle, which the Colonial rulers followed was the dictum of ‘balance of power’ in matter of recruitment in government jobs. They were aware of the consequences of this delegation of authority. Therefore, they tried their best to balance the power in such a way, that no section of Indian society could become strong enough to pose a threat to its rule in India.  The dominance of Brahmins in administration, though mainly at lower level, cautioned the ruler. They regarded Brahmins as the main force behind the entire terrorist movements and agitation.

The British thought it necessary to keep a balance of power by propping up other sections of the society in order to stop the preponderance of Brahmins and forward castes in modern callings.  To counter their dominance, the British designed Reservation Policy. They fixed up quota in government jobs for different communities of Indian Society.

Through the Acts of 1909, 1919 and 1932, the British divided the Indian population into different groups, on the basis of caste, community, occupation, religion etc., and gave them separate representation in Legislative Councils, and Assemblies. They bestowed special benefits and preferences in education and Government jobs for different upcoming groups.

Rigorous Foundation training for Indians – The intensification of National movement and increasing demand of Indianization of Civil Services left a dampening effect on the attraction of British youths to join ICS. All the attempts to attract them fell flat. The number of British officials began to decline. More and more Indians joined the ICS. In order to maintain the standard, dignity and honour of the services as earlier, the British Government arranged three years of rigorous foundational training for the Indians selected from Indian center.

For appointees selected from UK center it was two years. They were required to undergo a years training in U.K., at one of the four universities – Oxford, Cambridge, London or Dublin, immediately after joining ICS. This training was for duration of two years for those, selected from the Indian center (Delhi). From 1937, it was reduced from two to one year.

The purpose of longer probation period  in Britain, for Indians was to bring them in close touch with British way of life, broaden their outlook, develop loyalty to Britain and develop the mentality of a foreign ruler.  The Indian officials had to appear in two examinations at the end of their probation in U.K., while their British counterparts, selected from London center, appeared only in one examination.  In all other matters like emolument and privileges, the Indian ICS officials got equal treatment, as was given to their British counterpart.  No doubt, all these efforts have helped ICS developing gradually into one of the most efficient/powerful services in the world.

British imperial rule followed strictly the Principle of Merit – The British Government firmly believed in the ‘concept of Merit’. They thought that if recruitment was done properly, the person would develop the capacity to become a good bureaucrat.[xiii]

    • Soon after consolidating their position in India, the British Government thought of a well-equipped and intellectually brilliant administrative framework.  They felt, If a succession of men of great talent and virtues cannot be found, or if the operation of any influence or party feelings and principles prevents their being chosen, we (the British) must reconcile ourselves to the serious hazards of the early decline, if not the loss of the great power, we have founded in the east.[xiv]
    • In the beginning, when British East India Company consolidated it power in India, there had been different opinions on the matter of selecting the administrators. Some preferred military men and thought them to be best qualified for the job of administration, while others thought that administrative posts should be exclusively filled by civilians.  It was argued that noblemen, carrying with them the impression of high rank and birth, having served the Company for some time and possessing local knowledge and acquaintance with the affairs and people of India, should alone be appointed.
    • At that time, the aim of the Government was to employ the most loyal persons for administrative work.  It gave rise to spoil system/patronage system of recruitment.  But it did not work very well.  Soon the British Government felt that favoritism, patronage or promotion of personal interests in recruitment would deprive the Government of the services of bright youth, who otherwise could have been selected. The realization, that Civil Service was not the conglomeration of individuals or groups, and it should comprise people with talent, integrity, dedication and apolitical and impartial approach, gave rise to the principle of Merit.
    • Any principle, which excluded knowledge, talent and virtue was not acceptable to them.  Qualifications to do a job well appeared to the British, the only worthwhile principle to select administrators. Their aim was to locate the administrators, “Capable of fulfilling duties of a nature, so particularly, delicate and important, both as they respect the peace and happiness of Indian subjects and the rights and privileges of the European Community in our eastern dominion.”[xv]
    • In 1853, Lord Macaulay thought of a recruitment policy based on “Merit principle” for higher Civil Services. It was based on open competitive examination, conducted by an independent body. The procedures were open, transparent and generally trouble free. Till 1922, the entrance competitive examinations for selection of senior officials were conducted only in England.  Since 1922, it included India, as well, as one of the centers.
    • In 1926, the newly formed public service commission was constituted for India and it began to conduct ICS examination on behalf of British Civil Service Commission.  This position continued till 1937, when the Public Service Commission (India) was replaced by federal Service Commission under Government of India Act 1935.  After 1943, the recruitment to ICS was stopped.
  • Until about 25 years ago, graduate degree was the only way to get a white-collared job. It has now been replaced by different specialized occupations which are highly academic and multi-disciplinary. They narrow down a candidate’s option by training one in one specific function.
  • Though the British Government gave preferential treatment to upcoming groups in government jobs, they kept the ICS untouched from the quota system till the last.  They firmly and clearly said to the upcoming groups that they wouldn’t weaken their Steel frame at any cost for anybody, as on it depended efficient governance of the country. It told the upcoming groups in clear terms, With its utmost desire to do so, the best for these classes, the Government will be and is powerless to help them, unless they qualify themselves to the same extent as others of their countrymen for duties of administration and public.[xvi]
  • British policy of communal representation took the shape of Reservation Policy in Independent India. In 1943, the British Government issued orders for 8 1/3% Reservation of posts for SC candidates in Central Government Services, raising the age limit and lowering the examination fee and qualifying standards for them, so that they can be successful in competitive examinations.

System of Recruitment during British rule – Lord Maculae initially shaped the recruitment policy for higher services in 1854.  The direct recruitment by competitive examination was envisaged with the idea that very brilliant person can be shaped into efficient officials suitable for holding senior positions. The basic ingredients of this system were:

    • Selection of really brilliant young people – the caliber of direct recruits was ensured by their success in an open competition.
    • An intensive training either formal or informal for two years; and
  • Actual field work for at least a period of five to seven years, during which they would be fully moulded to suit the needs of the organisation they were serving.
  •  

British-rulers kept the ICS untouched from the quota system till the last – Before Independence, some seats were reserved for Muslims and Anglo-Indians in Central Services (Class I). However, there was no reservation in the ICS. In 1932, the British accepted Reservations for scheduled castes at National level through Communal Award”. But it could not be implemented till 1943, because of the procedural constraints. After 1943, the recruitment to ICS was suspended, earlier due to Second World War and later, because of transfer of power to Indians. The above shows the British design to prepare an atmosphere for the successful implementation of Reservation policy before quitting, knowing well that it would divide Indian society and adversely affect administration. It is unfortunate that the independent India has fallen into the trap.

After Independence

Difference between the Civil Services of British-Imperial-era and of Indian Civil services after Independence in selecting and nurturing ‘Mr. Rights’

    • Nominated by Directors of company – From 1805 to 1885, the higher civil servants were nominated by the individual Directors of the Company.  From 1858 onwards, in order to make the civil services in India efficient and well equipped, the British Civil Service Commission created in 1855, was given the charge to select officials through a competitive examination every year.
    • Intake in higher government services – British Government was very particular about the intake of the material into its elite service.
    • Esprit de’corps – Philip Maser said that there was esprit de’corps amongst the officers. Lines pointed out, It is the Esprit de’corps, which served to enforce a strong moral code. It did not need to be articulated.  Everybody knew it.
    • Smallness of service – “The smallness of service – just over a thousand at any given time – made for a strong sense of service loyalty.
    • No corruption – Clive Dewey said that the historical evidence pointed out to only a minute handful of officers being corrupt. “It was partially their salaries, partly their background, partly their sense of duty and partly ivory tower, in which they lived, which made any rumors extremely uncomfortable.[xvii]
  • Satisfactory work atmosphere – The ICS, whatever its complexion might have been, had developed traditions of independence, integrity, and hard work, though these qualities served the British rulers and not the Indian masses. This was the reason that ICS has often been called the Steel Frame, which reared and sustained British rule in India. Lloyd George, the British Prime Minister in his historic Steel-frame speech, said on Aug.2, 1922 in the House of Commons that British civil servants were the very basis of the Empire in India and so he could not imagine any period, when they could dispense with the guidance and assistance of a small nucleus of the British civil servants. He said, I do not care, what you build on it, If you take that Steel-frame out of the fabric, it will collapse.  There is only one institution, we will not cripple, there is one institution, and we will not deprive of its functions or of its privileges and that is that institution, which build up the British Raj – the British Civil Service in India.
  • Stress on TrainingThe British officials were not only very particular about the appointments in the ICS, but also provided atmosphere conducive to efficient performance, while on job.  They believed that for being a good bureaucrat something had to be learnt by experience. Therefore, immediately after their arrival in India, the new recruits were attached to district for on-the-job training for eighteen months.
  • During one year of district training, the officers had to get thoroughly acquainted with villages, administrative compulsions and a working knowledge of the relationship between various branches of Government at district headquarters like police, agriculture, local bodies etc. Another six months were directed to more intensive revenue work in district under land settlement. It meant harder and more complicated work.
  • Great stress on touring and camping out – Great stress was laid on touring and camping out.   They had to maintain diaries, which were thoroughly scrutinized by their seniors. It was made clear to senior district officers vide G.O. No. 738, published on 18th April, 1916, in ICS Manual, Madras, The great importance of paying attention to the training of young men, who were entrusted to their guidance and whose success in life and influence for good depends so greatly on the assistance, which they received at the outset of their career.
  • Guidance of the seniors – The system was so enforced and watched, that there was no escape, whatsoever, from acquiring knowledge about the basics of administration, and to learn about the problems of each and every area of their jurisdiction.  Guidance of the seniors prepared them to deal with those properly. The Government paid all the attention to see that, the new recruits were shaped into ICS role properly.  Political set-up according to Constitution of India – To govern the country, the Constitution of India has established three arms i.e. the Parliament, the Judiciary and the Executive.  First comes the Parliament, which lays the policy and frames laws of the land for governance. The Executive implements the policies, the laws and the programs. The Judiciary acts as a watchdog. All the three Arms of the State go together in improving the quality of life of public at large. Amongst all the three, the Executive affects the daily life of the people the most, as it implements the policies, the laws and the programs. The Indian higher Civil Services are the important component of the Executive.
  • Role of civil services in governance – The forefathers of the Constitution knew well the importance of civil services in order to ensure good governance to the country and providing the safety of the nation. Mr. MV Kamath said, “With the independence of our country, the responsibilities of the services have become onerous. It may make or mar the efficiency of the machinery of administration, machinery so vital for the peace and progress of the country. A country without any efficient Government service cannot make progress in spite of the earnestness of the people at the helm of affairs of the country. Whatever democratic institutions exist, experience has shown, that it is essential to protect public services as far as possible from political and personal influence and to give it that position of stability and security, which is vital in its successful working, as an impartial and efficient instrument, by which Government of whatever political complexion may give effect to their policies” (Constituent Assembly Debates, Vol. IX, p585).
  • Recruitment in Civil Services in India after Independence
  • Today, in independent India, neither the politicians, nor bureaucrats think on these lines.  The deliberate policy of the Government of India to give patronage to certain castes and communities under reservation policies has aggravated the crisis. It has generated rivalry between different sections of the society and created slackness in recruitment and training, which has ultimately led the nation to ineffective governance.

Mr. Subharajan said during Constituent Assemble debates, “Without an efficient civil service, it would be impossible for the Government to carry on and continuity to be kept. The importance of the Governmental administration has been in the fact that there is continuity and unless this continuity, there is chaos” (Constituent Assembly Debates, Vol. IX, p952).

Formation of Civil services after Independence – After Independence the government of India has formed many civil services, into which it appoints regularly officers professionally recruited and trained in various disciplines – functional, technical and specialist as well as managerial and generalist such as police force to maintain law and order, a diplomatic service for external affairs, technical services for Public Works Department or Electricity Departments, Railways and Customs etc.

Amongst all its civil services at national level, Independent India gives to IAS an elite status. It is meant predominantly to be engaged in the task of day-to-day governance and controlling law and order situation of the nation. The Government offers to IAS best career opportunities, more power, higher responsibilities, higher salaries, better perquisites, and superior status than any other service at the center or in the states and a place of pride in socio-political circle.

IAS officers, like their predecessor ICS, deliberate directly at the highest level of policy formulation and decision making. They exercise state authority from day one and continue to do it till their retirement.  Along with the council of Ministers, they control, virtually, all the levers of the governance of the country. Right from its inception, IAS has attracted the maximum attention of the government and the politicians. Also for an educated youth, it is a matter of pride to be a part of IAS, as it was with the ICS in pre-independence days.

Favouritism and concessions for political reasons – C Rajagopalachari has warned the nation, “Short sighted favoritism and concessions, to produce contentment among classes and castes, will be short lived and will deteriorate into a constant pondering to intrigues and factions, if we do not look to real efficiency.” Justice Gajendra Gadkar had also cautioned the policy-makers, “It must not be forgotten that efficiency in administration is of paramount importance, that it would be unwise and un-permissible to make any Reservation at the cost of efficiency in administration…”

 

But politicians bestowed arbitrarily ‘favoritism and concessions’ (in the recruitment and selection of ‘Mr. Rights’), ‘to produce contentment among classes and castes’. The result was, as Mr. Nani Palkiwala had said “50 years of self-rule gave to India empty coffers, unfulfilled promises, political instability, fractured society and perpetual divide among different groups along caste and community tlines.”

 

Structure of higher civil services at national level – After the independence, The basic task of administration changed from one of attending to routine regulatory function to that of promoting a rapid socio-economic change. Many leaders desired that ICS and similar services must disappear completely. They wanted the Civil Services of independent India to be constituted on a new basis, to fit in with the new system of Welfare State.  However, the circumstances, at the dawn of independence, were such that no drastic change could be made in the then existing system. Immediately after the independence, the number of IAS officers decreased to a great extent. Many British ICS officers took premature retirement after the independence. Also, a large number of Muslim officers opted for Pakistan. In 1951, the number of IAS officers was only 957. The Government of Independent India followed the same pattern of recruitment, as developed by the British Government, with minor changes here and there.

Though it is not officially classified, different types of services in the Government may be classified into three broad services function-wise:

  • Generalist Services;
  • Functional Services; and
  • Technical Services

Services like Indian Administrative Service, Indian Police Service and some Central Services fall in the first category. These are meant for performing the control functions of the government. The second one consists of specialised services, but appointment in these services does not require any professional qualification or experience. Some Central Services like Income tax Service, Indian Excise and Customs Service or Accounts Service comes in this category.  The third category of services is technical services, which require knowledge and experience of a defined field, professional degree, diploma and/or experience for appointment to these services. Engineering services, Health services etc., come in this category.

Need of talents in Civil services Independence – After 1947, independent India needed, more than earlier, energetic officers with drive, initiative, unquestionable integrity and positive outlook to meet the challenges of insurgent India.  Along with the traditional task of the maintenance of law and order, revenue collection, developmental works like integrated planning, implementation of programs, coordinate programs for economic and social regeneration and construction of new modern India, were added to the responsibilities of the administrative service. Now India required more in numbers, “The officers, manning the executive, must not only be good administrators, but should be imbibed with the service, possess leadership of a high order and be able to play the role of a guide and friend of the people.” [xviii]

Recruitment pattern after Independence – After Independence, for smooth, efficient and effective governance and successful operation of its developmental activities, Government of India focused its attention to conduct properly the initial selection of the services. It desired to select those candidates/officials for its civil services, who could implement its policies and programmes in a more positive, systematic and purposeful manner.  In order to provide the nation with a well-equipped and intellectually brilliant administrative frame-work, it decided to follow the earlier practice of the recruitment in higher services with minor changes here and there. It is to be done through open examinations every year, now to be conducted by Union Public Service Commission. UPSC was entrusted with the responsibility to spot out good candidates and nurture them to acquire the skills necessary for performing responsibilities of higher posts.

The basic ingredients of the system are: –

  • Selection of really brilliant youths through an open competitive examination, conducted annually by an independent agency – Union Public Service Commission.
  • Promotion of brilliant officers into IAS from the State Civil Services.
  • Intensive formal and informal training.  There has been arrangement for two years foundation training for new recruits and many in-service training programs, refresher courses, seminars, workshops etc., at frequent intervals.
  • Like British rulers, Independent India also acknowledges the value of actual field experience for initial four-five years, “What constitutes of being a good bureaucrat is something, he has still to learn and it can only be learnt by experience, for it is a lot of things, which one never can get into books.”[xix]

In 1975, under Dr. D.S. Kothari, a Committee was set up to review the system of recruitment to the higher services.  It recommended unified competitive examination consisting of a preliminary screening examination to test skill, speed and accuracy for non-technical civil services. It is an objective type to facilitate quick identification of those, who have the requisite range of knowledge. The main examination consists of four compulsory and four optional papers to test the depth of knowledge. Finally there is an interview to examine communication skills, public speaking skills, leadership qualities, ability to exchange meaningful ideas and attitude. This scheme came into practice from 1979.

Qualifications for entering competitive examination – Any Indian citizen, between the age of 21 to 28, holding a graduate degree from a recognized university, can appear in the entrance examination.  Candidates are permitted to take three attempts for each of the three categories comprising.

A candidate has to appear in the entrance competitive examination, which consists of three components:

    • Compulsory papers – to test the general mental culture and interests of the candidates;
    • Optional papers – to judge intellectual ability and scholastic attainment, and
    • Personality test – to see personal qualities including some intellectual qualities, which a written examination cannot discover.Immediately after their selection into various services, the successful candidates are sent to various training Institutions for their foundation training so that they may get the picture of the political, social and economic aspect of the administrative set-up and they may get acquainted with the basic concepts and requirements of their jobs.The pattern of examination is slightly different for technical services.  No preliminary screening has been considered necessary as technical graduates have already undergone a rigorous curriculum in their respective fields of study.  For joining various organised group `A’ services as technical side, the candidates have to appear in various competitive examinations conducted annually by UPSC itself.
  •  

Before 1979, the written examination consisted of three compulsory subjects of 450 marks – Essay, General English and General Knowledge.  These were required to be taken by all the candidates. There were three optional papers, of 200 marks each, for candidates trying for IAS and IFS and Central Services Class I and II. For Police Services of Union Territories, candidates had to take only two optional papers of 200 marks each. Candidates appearing for category – I had to take two more optional subjects (Higher papers) carrying 200 marks each, additionally. This position is summarized in the table below: –

The standard of the lower papers (Optional papers) was approximately of an honors degree examination of an Indian University.  The standard of two additional subjects (higher papers) for category I was higher than that of an honors degree examination, that, too, were examined, only if a certain minimum marks, as fixed by the Commission, in three compulsory and three optional papers had been secured by the candidates. Interview for personality test carried 400 marks for IFS, 300 for IAS and 200 for all other services.  From 1969 onwards, candidates had the choice to answer the compulsory papers in English or in any one of the languages included in the Eighth Schedule of the Constitution.

In mid-seventies, the Kothari Commission was appointed to suggest improvement in the recruitment of higher civil servants. The Commission observed, that in order to meet the challenges and to achieve rapid socio-economic and political development, the administrators must have not only relevant knowledge and skills, but also Socio-emotional and moral qualities for working with the community.  Therefore, some changes in the recruitment policy and selection method were suggested.  On the basis of Kothari Commission’s recommendations a common Civil Service Examination, having equal number of papers, for all the three categories, which is conducted by UPSC, has been introduced since 1979.

The allocation of services – the IAS, IFS, IPS, or the Central Services – is on the basis of merit and choice. Normally, the top rankers opt for either the IAS or the IFS. The upper age limit varied between 26 to 28 years for general category candidates, from time to time. It was raised from 26 to 28 years in 1979, which continued up to 1987, after which it was again reduced to 26 years.  At present, it is again 28 years.

System of Competitive Examination – The examination is held in three stages by UPSC.

  • The first stage is a preliminary examination in General Studies of 150 marks and an optional subject of 300 marks.  This examination is of objective type with multiple choice questions. Through preliminary examination, about 85,000 to 10,000 candidates are short listed in order of merit, who are allowed to appear in the second stage of examination known as Main Examination.
  • The Main examination consists of conventional essay type paper in any Indian language, as per the Eighth Schedule, consisting of 300 marks, a paper of 300 marks in English, General studies I of 300 marks, General Studies II also of 300 marks, and two papers in each of the two optional subjects, each carrying 300 marks.  Indian language and English papers are part of the qualifying examination. These two papers are of matriculation standard.  Marks secured in these papers are not added to the total score.
  • Those, who succeed in main examination, appear for an Interview/Personality test, which is held to find out leadership qualities, depth of knowledge, attitude and willingness to understand all sides of a problem, communication skill and command over language. The merit list of successful candidates is prepared on the basis of their performance in the main examination (1800 marks) and interview (250 marks). Provision for reservation in IAS – After the First World War, a wave of socialism and emancipation of submerged people through governmental measures had swept all over the world.  The leaders of independent India, too, thought to do something more for the down- trodden. They felt, if the nation allowed the weak to stand and compete on equal footing with the strong, it would be throwing the dice in favour of the strong. Already after the departure of British, the administration fell into the hands of affluent people.  If nothing special were done for the Backward-class, the affluent class would keep the poor suppressed. At the time of independence, the backward class was alarmingly under-represented in Administration. The majority of the masses did not have access to education, gainful employment, land ownership and other facilities. Social justice and commitment to welfare ideologies demanded Governments intervention to give the disadvantaged preferential treatment in matter of education, jobs and other civic facilities.Pt Hriday Narayan Kunjru feared, The regulations, made in this regard, may be unnecessarily wide or they may even be changed in such a way, from time to time, as to enable the executive to exercise a considerable amount of undesirable patronage. Many constituent Assembly members apprehended the fall of efficiency and administrative standard. Thus, with Art. 15 guaranteeing equality to all irrespective of caste, creed or gender,  Clause (4), was included through First Amendment Act, on the pressures of leaders from South like Kamraj etc. It authorizes the state to take special care for the advancement of any socially, educationally and economically backward class of citizens or Scheduled caste and Scheduled Tribes.  Art. 16 (4) permitted the state to make a provision for the Reservation of appointment, in posts, in favour of any backward class of citizens, which in the opinion of state were not adequately represented in the services under the state. Simultaneously, the emphasis was laid that the claims of scheduled castes and scheduled tribes shall be taken into consideration, consistent with the maintenance of efficiency in the administration, while making appointments to services and posts in connection with the affairs of Union or of a State (Article 335).  Reservation for SC and ST – In pursuance of the constitutional provisions contained in Art. 16(4) and 335, various instructions were issued, from time to time, providing Reservation for SC/ST and OBC. The Government of India made provision for Reservation for SC/ST in Government jobs. By a resolution in 1950, the Government reserved 12.5% (for SC) and 5% (for ST) of the total available vacancies in all the Civil Services of Government of India, on the basis of their numerical strength in total population. It was raised to 15% for SCs and 7.5% for STs in 1970.  As for as women were concerned, on 17th July 1948, the Government of India announced that woman, too, were eligible for any public service including IAS and IFS.[xxi]  However, till 1965, there were some restrictions on married woman on joining IAS or appearing in the competitive examination.  If they got married after the selection, their retention depended on the performance of their work.[xxii]
  • In order to increase the number of SC/ST in IAS, in addition to Reservation of posts, many other benefits have been given to them in direct recruitment. These are: –
  • The Central Government issued orders for 27% Reservation for OBC on 13.8.90. This was challenged in the court of law.  The judgement was delivered on 16.11.92. Based on the judgement, revised orders were issued on 8.9.93. Reservation for OBC started at national level from 1994.  The Reservations for minorities was terminated by the Constitution.
  • The Constitution framers neither fixed up any quota, nor designated the people, who could be put in SC/ST or backward class list, nor did they fix any period. However the debates of the constituent Assembly clearly indicated that Reservation were meant only for a limited period.
  • However looking at the pathetic condition of down-trodden and their near absence in the administration, the forefathers thought, that if something more was not done for this vast segment of society, it would remain backward, exploited and deprived forever. Eventually, one day the society itself would get fragmented. With his unparalleled skill of speech Dr. Ambedkar calmed down all the voices raised against protective measures at that time, and with his legal acumen shaped the Constitutional provision about Reservation.
  • It was in this context that some national leaders, during Constitutional Assembly Debates, urged consideration for efficient administration and fair play to be kept in mind, so that the protective measures do not negate merit, competitiveness and development, either in the administration, or among the individuals. They warned the nation that the Reservation might create greed or abuse of power, increase communalism, or hamper the growth of national unity and solidarity.[xx]
  • However, it is felt that the changes, brought in after the Kothari Commission, have not improved the position. The caliber, character and leadership capabilities of the present administrative service officials are not as good as that of the previous one. Improvement is required to be made in the system. However, Mr. Appu says, “No reforms would work without improving the political atmosphere of the country. “
    • Age relaxation. The maximum age of direct recruitment for SC/ST increased by 5 years.
    • SC/ST allowed taking as many attempts, to appear in the competitive examination, as they could avail.  This works out to as many as 9 attempts.
    • SCT candidates qualifying by general standard not to be adjusted against quota.
    • SC/ST candidates exempted from payment of examination fees.
    • Separate interviews for SC/ST.
    • Pre-entry coaching classes organised by the Government for them.
    • Relaxation in standard to further improve their representation in the service.
    • If, in any particular year, the number of suitable candidates available is less than the number of reserved posts, the posts, so in excess, are to be treated as unreserved for that particular year. However, in the next year, the number of posts unreserved would be added to the reserved posts of that year.  This carrying over process is to operate for a period of two years, at a time.
    • Reservation in Promotions, not given effect to, in a particular year is carried forward to three subsequent recruitment years. SC/ST candidates to be given Reservation leading to their accelerated promotions. As per the Supreme Court judgement, in Indira Sawney case, delivered on 16.11.92, Reservations in promotion could not continue beyond 15.11.97. Hence 77th Amendment Act, 1995, notified on 19.6.95 (issued on 13.8.97), enabled the State, vide Art 16(4A), to continue it indefinitely.
    • De-reservation in a group A services permissible only in exceptional cases having: –
        • The approval of the Minister in charge of Department of Personnel,
        • On the basis of recommendations of a committee, comprising the secretaries in the Ministries of Personnel, Welfare and the administrative Ministry concerned.
        • Only after receiving the comments of the national Commission on SCT.

Concessions given to OBCs – The concessions to OBC’s are less than SC/ST in following respect:

    • They get relaxation in upper age limit up to 3 years only,
    • Number of chances available within the relaxed age limit for appearing in competitive examination limited to seven as against 9 in the case of SC/ST.
    • Relaxation in standard of suitability has been prescribed to further improve the representation of OBCs

Steps taken to implement Governments decision for appointment of OBCs are as follows-[xxiii]

    • A list of caste/communities, to whom the orders of Reservation are applicable are notified.
    • The persons/sections (Creamy layer), to whom the Reservation shall not apply, are specified.
    • A model format of an application form for claiming the benefit of Reservation, as well as, their not belonging to the creamy layer have been prepared and sent to State Government authorities, competent to issue certificate in respect of OBC status.
    • The Chief Secretaries of the state Governments are advised to issue necessary instructions to their district authorities for providing certificates required by the OBCs.
    • The existing 40-point roster for recruitment by open competition on an All India basis has been revised to a 200-point roster.

Impact of Reservation – No doubt, immediately after the independence Reservation has provided opportunities to some of the most neglected sections of the society to join the administration at senior level. The inclusion of those sections has made the composition of the service broad based, It compensated and helped to off-set the accumulated deprivation of lower castes to some extent. It made the empowerment of Backwards in political sphere a reality.  As a result of the Reservation, there has been a considerable increase in the representation of SCT in terms of absolute member and percentage of the total number of employees in IAS and other group A” services.  In 1953, there were only 0.35% (absolute numbers of 20) of SCs and 0.10% (absolute number 6) of STs in Civil Services group A. Their numbers rose to 96 SC and 34 ST in 1966, 227 (8.56%) for SCs and 132 (4.8%) for STs in 1976.  Non-adjustment of the meritorious SCT candidates against reserved vacancies, in direct Civil Services-recruitment has increased their number to more than 15% and 7 1/2%, respectively, every year. OM No.1/1/70 Estt. (SCT) dated 25.7.70, issued by the Ministry of Home Affairs, stipulates that in direct recruitment, whether by examination or otherwise, if sufficient numbers of SCT candidates are not available, on the basis of the general standard, to fill all the vacancies reserved for them, the SCT candidates should be selected on relaxed standards provided they are not unfit for such posts.  The UPSC continues, till now, the practice of relaxing standards, to the extent possible, while recruiting candidates belonging to SCT, to make up the short fall in reserved quota provided, they were otherwise considered fit for appointment.

It was hoped, that the candidates selected on relaxed standards would come up to the standard of other recruits selected along with them after receiving additional instructions, foundational training, in-service training and on- the jobs experience cum training arranged by the Government.  But, so far, neither there is any arrangement for giving formal additional training to the candidates selected on relaxed standards, nor for scrutinizing strictly or taking stern steps to improve their standard, apparently because of political reasons.

Conclusion

It is quite evident that the British design to prepare an atmosphere for the successful implementation of Reservation policy before quitting, knowing well that it would divide Indian society and adversely affect administration. It is unfortunate that the independent India has fallen into the trap. It has to come out of that trap. Any laxity in the qualifications of officials leads to inefficient or mal-administration and sub-standard services to general public. C Rajagopalachari was absolutely right in commenting, Short sighted favoritism and concessions, to produce contentment among classes and castes, will be short lived and will deteriorate into a constant pondering to intrigues and factions, if we do not look to real efficiency.

[i]    Report of Inquiry on Public Service Personnel appointed by Social  Science Research Council of  USA (1935 P.37)

[ii]   Gladden N, Civil Service – its problems and future, p64.

[iii]1 Quoted from The Tribune, dated 21.6.92, p21.

[iv]   Palikawala, We the People – The Lost Decade, p3.

[v]      Finer. Theory and Practice of Modern Government, p709, 1950.

[vi]     Paipandikar VA, Bureaucracy in India – An Empirical Study, IJPA, pp187, Vol. xvii, no.2,  April-June, 1971.

[vii]    Banerjea AC.  Indian Constitution documents, Volume II, p28, 1948.

[viii]    Annie Besant, How India wrought for freedom, p420.

[ix]    Bipin Chandra, Modern India, p158.

[x]    Tara Chand, History of Freedom Movement in India,  p497.

[xi]    Supplement to Gazette of India, June 4, 1904, p937.

[xii]    Dr. Clive Dewey, Anglo Indian attitudes, 1993.

[xiii]   Zinkin M,  Development for free Asia,  p83, 1963.

[xiv]   Major General Sir John Malcolm, Political History of India from 1784 to 1823.

[xv]   Malcolm, ibid,  p79.

[xvi]    Times of India Archives, May3, 1918.

[xvii]    Times of India, August 10, 1997, p2.

[xviii]   Administrative Decentralization Report, Chairman Flotcher AL, 1956.

[xix]   Zinkim M,  Development for free Asia, p83, 1963.

[xx]   Speeches of Raj Bahadur, pp622-24,  Avanta Sayanam Ayyangar,  pp 626-628,  Constituent Assembly Debates.

[xxi]   Hindustan Times,  Milestone P8, August 15, 1997.

[xxii]   All India Service (Recruitment) Rules 1954, introduced vide MHA Notification NO.13/7/56 (AIS) (III dt. 25.4.1957).

[xxiii]   Report of Ministry of Personnel, 1995-96.

June 30, 2015 Posted by | Bureaucracy/Civil Services | | Leave a comment

Role of education in 21st century

“The illiterate of twenty-first century will not be those who can not read or write, but those who cannot learn, unlearn and relearn.” Toffler

“knowledge, the object of knowledge and application of the knowledge – all the three are equally important for motivating to take a wise action”. Khalil Gibran

Introduction – Long, long ago, Newton had said that he was ‘like a child, who is picking pebbles at sea-shore while the great ocean of knowledge lies before me’. Since then, knowledge has grown enormously and at a much faster speed than human ability to cope with it.

Technological advancements of twentieth century, especially during post 1970’s due to revolution in the field of information technology, have changed the whole scenario. Entering into world of knowledge is like going into a dense forest. Only way out is to develop clarity of thought/mind, as to what one wants to know and make sincere efforts to pursue relevant knowledge in that specific area

Also it is equally important to upgrade knowledge continuously. As Alvin Toffler, renowned writer has said, “The illiterate of twenty-first century will not be those who can not read or write, but those who cannot learn, unlearn and relearn.”

Purpose of education – Unfortunately, meaning and purpose of literacy and education is misunderstood. Literacy does not merely mean the knowledge of three ‘R’s, nor does it mean only academic or theoretical studies/knowledge leading to award of degrees. Increasing knowledge-base through available information is also not the purpose of learning. Bookish-knowledge and award of degrees through formal education without effective training-systems neither serve any purpose nor lead the people to get employed gainfully.

As Khalil Gibran has said – “knowledge, the object of knowledge and application of the knowledge – all the three are equally important for motivating to take a wise action”. A little knowledge that acts is worth more than much knowledge that is inactive. One, whose knowledge is confined to books, can not use his wealth of knowledge, whenever required.

The scope of education – The scope of education is much broader. It is a continuous process. It means complete up-bringing of the individual starting from the childhood till end. In its wider sense, literacy and education embraces within itself reading, observation, thought and its application in real life situations. Within its jurisdiction, also comes formation of habits, manners, character, attitude and aptitude along with imparting knowledge. Learning at each and every stage of life increases knowledge-base, understanding and attitudes of a person.

A well-planned and sound system of education inspires human beings to control their senses, mind and intellect, so that they could be adjusted better in real life’s environment. It guides people to achieve their goals within time and cost parameters and to channelize their efforts towards desired direction. In short, a sound education system imparts knowledge, shapes attitudes, cultivates skills and builds work habits of the people.

Distinction between action, forbidden action, and in-action – Knowledge has been considered essential for the purpose of giving activities, their due meaning and value. According to Hindu philosophy even a wise man may get puzzled without knowledge about do’s and don’ts. It is only after the acquisition of knowledge, that a person understands the real nature of work and could distinguish correctly between action, forbidden action and in-action.

India and its Education system

High regard for knowledge – India has always given importance to and showed a high regards for knowledge, wisdom, virtues, characters and will power. According to Indian philosophy, ‘Wealth of knowledge is supreme among all forms of wealth’. (Vidya dhanam sarvadhana pradhanam). Therefore, knowledge is the greatest thing to be sought after. A human being is human because he has the organic capacity to think and seek knowledge.

More importance to knowledge than wealthUnlike India, in Western countries, more importance is being given to creation of wealth. Wealth is the ultimate aim of the people, yardstick of success and a status symbol. Traditional India was not so materialistic. Its systems had separated pursuit and achievement in knowledge from temptations of worldly comforts, wealth or power-politics. According to Indian philosophy, when a person runs blindly after money and forgets about the real purpose of knowledge, both wealth and knowledge vanishes from their lives. The only judicious way to generate wealth and gain power goes via the path of true knowledge.

Knowledge as the base of rankingEarlier the greatness of a person, institution or a state was judged on the basis of the degree of righteousness and justice. Greatness of a nation was judged with which its administration governed lives of the common men or their character. It was not on the basis of the size of a state, its military power or its treasury/bank-balance. Similarly, in the society, a person or a caste was ranked on the basis of knowledge, discipline and moral standards, and not on the basis of material success, muscle or money power or of having controlling power over the destiny of common man.

Respect for knowledgeable personsIn ancient India, apart from Brahmins, others were also paid respect by the society for their learning, character, spirituality and ability to guide general masses. The system was quite liberal in this matter. It gracefully accepted the right and opportunity to get to the top from the humblest origin and earn the respect of the whole society. For example, Vashishtha, the principal of the conservative school of Brahmanism, was the son of Uravshi, a prostitute. Vishwamitra, the maker of the very Gayatri Mantra, the quintessence of the Vedic Brahmanism, was a Kshatriya. Aitreya, after whom the sacramental part of Rig-Veda is named as Aitreya Brahamana, was the son from a non-Aryan wife of a Brahman sage. Vyasa of Mahabharata fame was the son of a fish-woman (belonging to Mahr community – Dalit according to present standards and to which Dr Ambedkar, the messiah of Dalits belonged).  Balmiki, an untouchable according to present standards, the original author of Ramayana, is highly respected all over India. None of them were not ashamed of their origin. They still hold a very high position in general public minds.

Close connection between Knowledge and hard work – For acquiring knowledge, training mind in a scientific manner and concentrating energies of mind, one has to struggle, work hard, make sincere efforts and face many challenges in life. Now-a-days, courage to struggle or work hard is missing except in a few students, who still keep the fire of seeking knowledge burning all the time. Without hard-work, search for knowledge remains incomplete and superficial.

In ancient India sages (Rishi-Munies) had worked day and night to acquire true knowledge. The love for knowledge inspired many students to walk from different parts of the country to centers of learning at that time like Taxila or Nalanda. A powerful Emperor, like Ashoka the great, thought it his duty, to bow before the monks as a mark of my deep respect for their learning, wisdom and sacrifice. What matters in life, are not a person’s status or position, but his virtues and wisdom. Only when you have raised yourself up from ignorance, can you recognize the greatness of a few in a sea of humanity.

For creating modern civilization, sincere knowledge seekers in Western world also did not care for inconveniences or challenges. They had sacrificed their time (for about two centuries), energies and comforts in search of knowledge. Then only they could develop great modern scientific knowledge, technique and wealth.

Education in modern India

Sixty four years after independence and self-rule, literacy-rate has gone up to 74% from 65%. For males it has risen to 82% from 75%, for females to 65% from 54%.  In absolute number, the figure is alarming. No nation can afford to have a large number of its population to remain illiterate, ignorant and unskilled.

Constraints

All is not well in the education system in India – has been noted by distinguished academicians, policy-makers, political leaders, other eminent persons, commissions and committees. Now and then, they have pointed out its failures in one area or another. It has always been felt that Modern education has become increasingly unrelated to national needs and aspirations, insufficient, wasteful and dysfunctional.

In addition to what constraints that have already been existing in the education system, many more external and internal problems, paradoxes and constraints have cropped up.  Some defects in modern education based on colonised British Grammer School type education, were pointed out by  Gandhiji like –

  • It is based upon foreign culture to the almost entire exclusion of the indigenous culture.
  • It ignores the culture of heart and hand and confines itself simply to head
  • Real education is impossible through foreign medium.

External Constraints – Externally, socio-economic and political pressures have violated its identity and autonomy. Some changes have taken place in the recent past in the character, role and inter-relationship of these main constituent of the national elites – the political executive, the legislators, the businessmen, the media persons, the organized workers, the surplus farmers and the bureaucrats. It brought into the forefront some undesirable social changes and political turmoil. It has affected adversely the whole atmosphere in the field of education as well.

Heavy pressure on education system due to population explosion – Population explosion has put a heavy pressure on present education system and its available infrastructure. Narrow loyalties, sectional interests and sub-cultures like – favoritism, nepotism and corruption have fast become an accepted way of life. Result is that communal, regional and caste conflicts and unhealthy competition between different powerful lobbies are increasing every day to have their exclusive hold on scarce resources available in the field of education or for power and pelf.

Control in the hands of a few – Few persons and groups, who have the power in their hands, control almost every walk of national life including the education system. They are working continuously to deny justice to common men.

The reflection of all these social evils is found in the educational system as well.

Internal ConstraintsInternally the system has been fractured along the lines of discipline deteriorating standard of education in general and student sub-culture. Slowly but steadily, the education system lost its capacity to equip the younger generation with relevant knowledge and skills for enabling them to get gainfully employed and to perform their jobs with a sense of responsibility. It has failed to produce much-needed dynamism in youth as well. Now people have started questioning the legitimacy of a modern education system itself.

 Disintegrates society – Instead of being an instrument of social integration, education system divides people into two groups – ‘haves’ and ‘have-nots’. There is government or government aided schools that give education to poor masses. It is economical, but do not maintain good standard. On the other hand there are private schools, which gives quality education, caters mainly the needs of ‘Haves’, because it is very costly.

Deteriorating standards After independence, India is facing a rapid deterioration in standards of education. In the past, though education was thinly spread, it had maintained some standard. Now in an attempt to do quantitative expansion of education, quality of education suffered a lot. The examination and evaluation system tests only a narrow range of skills, especially those of memory. Standard of general education has deteriorated considerably and suffers from grave errors.  In addition to it, there is lot of interference and control of the government at every stage of the educational process.

Unfit for original work Education system in advanced countries makes student a lively, inquisitive and original thinking person. There, it has been able to develop certain special qualities like regards for laws of the nation, awareness, contempt for hypocrisy, sympathy for underdog and courage to resist cruelty or misuse of power and authority. An educated youth in India generally fails to display genuine social conscience.

Store-house of information – Importance of information in knowledge, which provides the basis of all the thinking, cannot be denied. However, present education system at all stages of education, from preliminary through secondary right up-to the college stage makes mind a store-house of information/knowledge and discourages original thinking. It lays emphasis on giving students ready-made knowledge, systematically and neatly organized in the form of lessons, units and text book.

Medium of education – It is easier for all to learn lessons in their mother-tongue. English medium puts extra strain upon the nerves of students and makes them crammers, imitators and unfit for original work and thought. Masses remains deprived. System is producing mostly the youth, who are unable to express clearly in any language, including their own and lack woefully the competence and confidence to assume responsibilities.

Early childhood Teaching –  Early childhood learning plays a vital in improving the quality and quantity of learning. Latest brain researches tell that first 2000 days are the most important in a child’s life, when children develop learning strategies, learn how to think and problem-solve. Children are born with billions of brain cells. Unless these are interacted with properly, they actually die off. Such programs needs to be developed that encourage the synaptic connections between those cells.

Early childhood Teaching, instruction and methodology is necessary for developing lifelong qualities in children. It is necessary to understand the importance to encourage Children to think, ask questions and develop problem-solving ability in them. There  should be more interaction between adults and the children.

Higher secondary, the weakest link in Indian education system – Higher secondary education is considered to be insufficient and a weakest link in Indian education system. It needs sincere efforts to improve the Academic standards, curricula and methods of teaching at higher secondary level. In western countries the standard of higher secondary education is sufficiently high to ensure recruits of higher intellectual attainment to join various jobs at this stage.

More stress on Degree/Diploma/certificates – The whole system of education and employment is degree, diploma or certificate-oriented. Degree is the master-key to a nice and respectable career and giving  high social status, authority and final reprieve from manual work. Such a narrow mind-set has put tremendous pressure on higher education system.  A large number of new substandard and superfluous institutions are being created every day to meet the demand.  Government also encourages mass entry into universities and colleges. Rush in institutions are of such students as well, who want degree as a passport and are not interested in studies. Such students seize every opportunity to spoil the academic atmosphere and breed indiscipline.

Indiscipline – There is a growing unrest in the student community. Youth of the day want to be absolutely free from all compulsions. For them, discipline and observance of rules are supposed to be unnecessary and irrational. They have no respect for rules/discipline/morality or for elders, teachers or authority. Their interests lie in all that is sensuous, in material gains and in enjoying pleasures in life. Indiscipline in student’s world leads to chaos and violence. It makes people slaves of their weaknesses.

Employability One of the major aims of education is to make youth employable. At present it is difficult to find out and recruit well qualified persons for various jobs in government, public or private sectors. At pre-employment stage, education needs to be comprehensive in scope and sound in nature for making youth acceptable in job-market. It needs to be supplemented by rigorous foundation training telling the fundamentals of their specific jobs and inculcating in them relevant knowledge and skills, otherwise effectiveness, efficiency and quality of work gets a setback. At present, all the basics about their jobs are told to employees after their join work-force, which requires a much more massive effort in order to make employees do their jobs well.

Unrealistic Manpower AssessmentAssessment of manpower requirement for economic growth is not done rationally according to national needs. After Independence, the need for technical people was felt and in recent past for management experts. The Government created large number of professional institutions in these areas without assessing the needs of the nation. It resulted in educated unemployment. A large number of scientists, doctors, engineer’s technicians and management graduates have to go abroad in search of suitable jobs.

Therefore, for streamlining the performance of people at work after employment, most essential and fundamental requirement is that the character and scope of pre-employment educational system should be redesigned in such a way, that it could continuously provide men and women of vitality, vigor, initiative and imagination with intellectual accomplishments, qualifications and soundness of character needed in different disciplines and at different levels at job market.

Where the fault lies? – For all these lacunas, students blame teachers, teachers blame students. Both together try to blame educationists. They, in turn, attack social system. The present system of education can not be changed or improved overnight. It needs concentrated efforts of all – students, teachers and the society. Then only a larger base of skilled and trained manpower could be created.

Conclusion

Rational thinking needs to be done about the real problems and the role of education in modern life after understanding its basics, fundamentals and aims correctly.

The requirement of a university degree as a Passport for starting nice and respectable career (white collard jobs) has made a mockery of higher education. Such an attitude has by-passed the need to “educate all”, resulted in negligence of primary and higher secondary education and in over-crowding the institutions of learning. The stress on quantitative increase has subverted all the attempts to improve the quality of teaching and learning. It has led to continuous fall in the academic standards and students’ discipline, regional imbalances in the growth of educational institutions and politics in the temples of learning.

In the present times of neck to neck competition, one should continuously upgrade knowledge. It is the best way to create a larger base of skilled and trained manpower. Education should instill in students problem-solving attitude and develop the courage to meet the challenges of real life bravely. Instead of offering excuses or blaming others for one’s failures and dissatisfaction, it should inculcate in students the spirit to face the difficult situations in life and make efforts to change their destiny themselves. Education must teach people always try to have control over ones life’s situations and to stand up on his own feet rather than depending on others for moving forward. Success in life depends on developing capacity and courage to take right decisions at right time.

Only sound system of education and training can provide a lasting solution for various problems, people are facing today. It can lead the youth towards rational, positive and creative thinking. It would make youth capable to make right decision at right time, plan rationally about their career that would suit to their attitude and aptitude and to shoulder their responsibilities properly. It would enable them to act judiciously and promptly, give them courage to avoid out-dated traditions and dogmatic ways of doing things, courage to face realities and challenges.

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June 17, 2015 Posted by | Education and training of civil services | Leave a comment

EDUCATION AND TRAINING OF HIGHER CIVIL SERVANTS – Government of India

Introduction

Very few nations in the world had to start with greater initial difficulties of political, social, economic and administrative character as India had to. Industrial backwardness, rapid population growth, illiteracy etc., were some of the handicaps which the Independent India had to handle. The position was further worsened by the partition.

Civil servants had to face these problems full blast. Side by side, continuous modernization, higher productivity, rapid advance in social justice and desire to improve the quality of service demanded the services to be effective, efficient and goal-oriented. The higher civil servants, are the most important component of the total set of civil services. It is they, who are deeply involved in formulation and execution of national policies and priorities.

In a system where the pre-entry Education is degree-oriented and not job-oriented, gaps between learning and practical requirement remain unfilled. This is where the Education and Training of Civil Servants becomes relevant. There has been a growing realization, in the recent years, all over the world that Education and Training was necessary for imparting knowledge, shaping attitudes, cultivating skills and building work-habits, for making the civil servants capable of meeting the challenges of modern times.

 The system of civil services – It is important here to trace the meaning of Civil Services and the places of higher Civil Services, its role in a Welfare State and Development Administration, classification of Civil Services before and after Independence and other allied issues, to establish the role of Civil Services and the expectations of the Society from the Civil Services.

 Role of civil service in a welfare and development state – After French and Industrial Revolutions, the values of mankind changed considerably. Misery and poverty, once regarded inevitable, were no longer acceptable and thus came into being the concepts like `Welfare State’ and `Developmental Administration’ – the former being the objective and the later the machinery to achieve these objectives.   While a welfare state takes care of its people from `womb to tomb’ and aims at improving the quality of life of its masses, the instruments deployed for achieving welfare goals – national reconstruction and development – is that of the Developmental Administration through the institution of Civil Service.

What is Civil Service – The term Civil Services could be said to be a body engaged in state’s administrative work, professionally recruited, permanent, paid and properly trained in various disciplines of administration. It assists the elected representatives of the people in matters of administration. Civil Services may be considered to be all the Government services – Financial, Technical and specialists as well as managerial and generalist. Since the Civil Services are the only permanent link between successive elected governments, they play a vital role in guiding the social changes and development in desired direction, specially in the case of less developed or developing countries, where society is in a state of transition.

  The constitution of India is based upon the concept of `Welfare State’. It follows the principle of `Justice: Social, Economic and Political’. The responsibility of implementing welfare plans and developmental policies is assigned to Higher Civil Service. Higher Civil Services under Government of India, may be grouped into two categories viz., (1) All India Service and (2) Central Services – technical as well as non-technical. Appointment into these services is made either through open competitive examinations comprising of written examination and interview conducted by the Union Public Service Commission or through promotions.

  “Education and Training – Theoretical Aspects” – Next step is to explore the    meaning of Education and training, objectives of training, types of training, training approach and strategies, training techniques etc. The term `Education’ connotes the process of increasing knowledge, understanding and attitudes of the candidates, so that they are better adjusted to their working environment.

`Training’ is an approach to improve the administrative output – quantitatively and qualitatively. It is a function of helping trainees to acquire and apply knowledge and skills, which they do not possess, but are needed by the organizations, of which they are a part.

The task of Education is to develop mental and moral faculties, which have a material bearing on the formation of character. In its wider sense it embraces reading, observation and thought. It is not a fixed period of theoretical or academic pursuit of knowledge leading towards award of degrees but a continuous process for complete upbringing of the individual right from his birth to death. Within its jurisdiction, it embraces the formation of habits, manners and character. As against this the training is primarily concerned with preparing the trainees for certain lines of action, which are delineated by technology and by the organization, in which he works.

While Education is only formal and can be provided at three levels – School, University and Job, the training could be both, formal and informal. Formal training may further be divided into four categories – pre-entry, foundation, in-service and post entry training – each for a different purpose. The pre-entry training prepares candidates for all sorts of jobs including civil service. This concept, however is not prevalent in India. Foundation training equips new recruits to Civil Services with understanding of political, social and economic infrastructure of the country as well as familiarizes them with the atmosphere, in which they have to work. In-service training takes over the training tasks initiated by foundation training and fills in the gaps inherent in informal training. Post-entry training is not directly related to the work of a trainee, but helps him in a long run. Informal training is to train the officials on the job, so that they could acquire administrative skills through practice.

Training strategies developed, so far, are that of academic strategy, laboratory strategy, activity, action-program strategy, person-development strategy and organization development strategy. The selection of appropriate strategy depends on factors such as training goals, resources available for training.

The methods or techniques deployed for giving training are field training, lectures and talks, study-tours, delegations, syndicate method, conferences, seminars and group discussions, case-study, role play exercise, management games, simulations, sensitivity training etc. Choosing a training method for any program depends on the training objectives, training needs, available time, skills and facilities. Right diagnosis of training needs through job-evaluation and research, clear objectives, right selection of training method, top level support, selection of right type of personnel for right type of program and proper evaluation help in making a training program successful.

“Indian System of Education and training of Higher Civil Services” – The Indian Civil Service has a long historical background and is a product of centuries, and so is the case of its Education and Training. It is important to know here the pattern of Education and Training in pre-independent India, legacy of the colonial past, the requirements of Independent India and existing system of Education and Training etc.

The system of Indian Civil Services has progressed slowly but steadily under three regimes – the East India Company, the Crown and the Indian Republic. Lord Cornballs (1786-1793) was the first to realise the importance of training the higher civil servants, and drew the attention of the Directors of the Company towards this issue. As a result, thereof, an East India College was established on May 12, 1805, at Halleybury, England. It had to, however, close in June 1855, due to opposition and criticism in responsible quarters. With the closure of Haileybury College, a system of competitive examination was introduced, in 1855, for recruitment to various Higher Civil Services, under the Crown.

 While the emphasis was given to the foundation training of ICS & IP Officials, the recruits to central services were trained on the job during their probationary period. The ICS recruits were given formal education and training for one year in one of the four universities – Oxford, Cambridge, London or Dublin. They were, then, sent to India to have field training for a year or so. IP recruits were sent to provincial training institutes for their formal education, after which they were also given field training. The probation period for all the services was two years. The higher civil services during British-India were exclusively trained to retain the Imperial Power. They were made the `Steel-frame of the whole structure’.

 The post-Independence era brought about fundamental changes. The Government now became the Government of a Welfare State bent upon socio-economic development of the masses rather than attending routine regulatory functions. The leaders of free India were suspicious of the capacity of the civil services of British India to carry out the welfare plans. They wanted to re-organize the administrative structure. But the events such as partition, migration of civil servants to Britain and Pakistan, unification of states etc., made it imperative not to disturb the ten existing administrative structure.   But the events such as partition, migration of civil servants to Britain and Pakistan, unification of states etc., made it imperative not to disturb the then existing administrative structure.

Consequently, save minor changes here and there, the administrative machinery set up during the Raj moved into the post-Independent era with many traditions of Imperial past. General framework of the Civil services, recruitment system, training system, generalist supremacy, anonymous character procedure oriented system, generalist supremacy, anonymous character procedure oriented system, salary-structure, centralization of power, caste considerations in recruitment to higher services and apathy towards masses were some of the legacies of the British India.

The independent India recognised the role and importance of Education and Training for inculcating the qualities of leadership, supervision, efficiency in communication, decision making etc. in its higher officials and also for changing their attitudes. Such a recognition is evident from the successive Five Year plan documents, reports of Administrative Reforms Commission and other Committees – all stressing the need for planned and systematic programmes of training for officials at various levels. As a result, there has been a quantitative expansion of training institutes and courses, as well as qualitative improvements in the schemes of Education and Training.

 A bold step, in this direction, was taken by creating a cell, in 1968, known as ‘Training Division’ in the Ministry of Home Affairs for general coordination and for stimulating in-service and refresher training courses run by various Training Institutions, which can be grouped in three categories – (1) Institutes run by the Government of India, (2) Institutes run by the State Governments, (3) Autonomous/Private Institutes. These institutions impart foundation as well as in-service through plan and non-plan program to senior officers of different departments at various stages and in various disciplines. Training in those areas, where adequate facilities are not available within the country, is given abroad under bilateral agreements and aid-program.

In order to promote deeper and wider understanding of the functioning of Education and Training pattern for higher officials in Government of India, the system prevailing in IAS and various functional services of Indian Railways has been examined here. The main reasons for taking up training system in IAS as case-study are the practically all the strategic and top-level posts at the center and states are held by IAS personnel and Government of India has been paying maximum attention to its training.

The system of education and training in Indian Railways has been examined because it comprises of almost fifty percent of the cadre strength of government employees. It is the only department in the government of India, where there are eleven services under one umbrella, each serving to different functional areas like finance, operation, health engineering, security etc. Besides, Indian Railways is a training conscious ministry, which has made many efforts to improve the health and wealth – mental as well as material – of its employees.

 Training of IAS personnel – Immediately after selection, the successful candidates of IAS are sent to the National Academy of Administration, Mussoorie, for induction training. The probationary period for them get professional training, which is divided into Phase I, field, and phase II training. The Academy portion of the phase I training gives them theoretical understanding of their job. The focus of this course is on the organization and functioning of the district administration, both, in its developmental and regulatory aspects. Special emphasis is given to the role of administrator in rural development. Winter study tour of two months is a part of the seven months phase I training, during which they are attached to Public Sector Undertakings, Agricultural Universities, Bureau of Parliamentary Studies and National Development Board. They also spend a week amongst tribals to understand their problems.

  Then comes the field training for a year or so, which is the most important part of their training. The components of field training are – Institutional training in provincial staff colleges (two weeks), training at district headquarters (treasury training and collectorate training for 15 weeks), village attachment (2 weeks), block attachment (2 weeks), revenue attachment (1 week), sub-divisional attachment (1 week) independent development charge (16 weeks), survey and settlement training (4 weeks), agriculture training (1 week) and secretariat training (2 weeks). The Academy as well as state governments are supposed to watch the performance of the trainees during various facets of field training.

            After the field training, the professional training phase II starts, which is designed to bring together their theoretical understanding and practical field observation. It also prepares them to hold posts in real life. The duration of the course is two months, after which they are sent for army attachment for about fifteen days. The performance and involvement of the trainees in different training program, their participation in co-curricular activities and their general bearing, behaviour and attitudes is taken into account for the purpose of assessment.

             The Government pays equal amount of attention to their in-service training, so that they could be exposed to latest theories, methodologies, concepts etc. developed either within the country or abroad. It is ensured that each and every IAS officer gets in-service training at appropriate time.

 Training system in Indian Railways’ services – Indian Railways have set up their own specialized training institutions for higher supervisory cadres. These are Railway Staff College Baroda, Indian Railway Institute of Advanced Track Technology, Jamalpur, Indian Railway Institute of Signal Engineering and Telecommunications Secunderabad and RPF training college at Lucknow. There are some services, where only a graduation is required. These are Indian Railway Service, Indian Railway Accounts Service, Indian Railway Personnel Service, Indian Railway Protection Force and Railway Board Secretariat Service.

For Technical Service, graduation in that particular discipline is required. These are Indian Railway Service of Engineers (Civil Engineers) Indian Railway Service of Electrical Engineers, Indian Railway of Service of Mechanical Engineers, Indian Railway Services of Signal and Tele-communication Engineers, Indian Railway Service of Stores, Indian Railway Medical Service. After their selection into various service through competitive examinations, the recruits are given intensive training – initial as well as in-service – to equip them with necessary knowledge of their specialized discipline in particular and of others in general. The probation period for all the services is of two years except IRTS, where it is three years, and Railway Medical Service, where it is three months. Foundation training is given to the recruits of all the services at National Academy of Administration, Mussoorie. After that they are given professional training – theoretical as well as practical – for their respective disciplines in various institutions of Indian Railways. There are adequate arrangements for in-service training also.

Other reasons for ineffective governance-  Although considerable attention has been paid to the Education and Training of IAS and Railway officers, yet it has not been able to bring out the desired results. – an inference based on opinion poll and interviews. It has been pointed out by different levels of officers that training time of initial training was insufficient. Recruitment system should be job-oriented instead of its being degree oriented. There was lack of interest among senior officers towards training. Officers were not trained to lead a simple life. The training system for IAS was too general. Generalist services were hampering technological advancement, because they tended to acquire almost all the higher posts even in departments of technical nature to promote their career prospects. Good trainers should be selected, instead of shunting unsuccessful officers to the institutes. These issues are not exclusive to the IAS or Indian Railways training system but can be generalized for all the services.

 Critical Review – The short-comings of the present Education and training system, which have been mentioned above, the question arises as to how to make the system effective.

 Building-up of responsible and efficient civil servant does not start from the day, he joins the civil services, but right from the day he starts his education. The pre-entry education has a vital impact on the personality building, outlook and maturity of the prospective citizens, whether or not they join the civil services. The pre-entry education should be comprehensive in scope and sound in nature, so that it could provide firm foundation for the continuing education of higher civil servants. If the education and training after their recruitment is correctional in nature, its effectiveness and efficiency would receive a set-back and a much more massive effort for training would be called for.

  As of today, the general pre-entry education system especially the higher education in India is increasingly becoming unrelated to national needs and aspirations, in-efficient, wasteful and dis-functional. Besides, the recruitment system – because any defect in recruitment system is likely to have an adverse effect on the system of civil service itself, frustrating the effort of national reconstruction – is also suffering from grave weaknesses. It is degree-oriented instead of job-oriented. It is also academic and favours the examination minded candidates. Just assessment of different subjects poses difficult problems in evaluation of comparative merits.

  Seeing the inherent weaknesses in Indian education system and recruitment system, it is suggested that the recruitment to various Higher Civil Services should be made immediately after higher secondary education at a raw age, when the minds of candidates are in a formative stage. It could be done through an open competitive examination as is being done for Defence Services or some mechanical engineers of Indian Railways. It would facilitate the Government to arrange properly for their continuing education and intensive and comprehensive training at various administrative colleges and training institutions. It would not only make it possible to have the intellectual knowledge and qualities required for performing their specific jobs, but would also inculcate in them emotional qualities and capacities required for doing their jobs such as social purposefulness, ability to understand the administrative and political implications of a problem and resourcefulness in solving them, capacity for team work and flair for leadership, which are basic requirements of any welfare administrators. The idea of such an Education and Training is not new to India and has proved to be successful in Defence and Railways.

  Some other organizational changes, through not directly related to training, could, to a great extent, help in increasing the effectiveness of the education and training of Higher Civil Servants –

  • The independent Indian needs smooth relationship between politicians and civil servants. There should not be any undue political interference on administrator.
  • There should be working partnership between generalist and specialist.
  • The salary structure should be reasonable and just otherwise the situation would lead to inefficiency and corruption.
  • There appears to be no scientific and sound rationale for keeping a substantial differential in the pay scales and career prospects of IAS and non-IAS, because in no way IAS personnel are superior to others either in intelligence, or in quality or recruitment, or in degree of responsibility or in nature of job or inequality of work-load.
  • There should be unified civil service with integrated pay structure, so that government could bring a sense of equity amongst various disciplines of civil service of their choice and would enable the candidates to go in for the service of their choice and aptitude and the government would be able to gain the full contribution of scientists, engineers, doctors, economists and officers of other disciplines.

“Conclusion” –  Following

  • foundation training should be made compulsory for all higher services – whether technical or non-technical;
  • the government and training institutions should be strict, so that trainees could take their training seriously;
  • training should be service oriented;
  • since 70% of the Indian population lives in villages, the officials should be familiarized soundly and intimately with the conditions, organizations, needs and aspirations of village people;
  • the higher civil servants should be trained to lead a simple life;
  • the super structure of skill, knowledge and efficiency should be raised on the foundation of discipline;
  • Senior officers should pay adequate attention and time to the training task;
  • The government should create a working atmosphere in the offices so that qualities like receptivity, originality, initiative, courage and sympathetic attitude towards masses, could be developed fully, while working;
  • The three partners in training – the organization, the training institute and the participant – should interact out of knowledge and understanding;
  • The training needs should be assessed properly by conducting job-evaluation and research and onward studies;
  • Instead of depending upon foreign material, adequate training material should be prepared and developed locally;
  • right methods and techniques should be chosen for various training programs;
  • selection of trainees should be done with great care;
  • enough motivation should be there for trainees, so that they can take their training seriously;
  • top-level officers should give full cooperation to training activities;
  • every training program should be evaluated properly;
  • there should be regular program review sessions;
  • the selection of the trainers should also be done with great care.

May 5, 2015 Posted by | Education and training of civil services | | Leave a comment

Education, the key for sustainable development

“Education is a fundamental right and the basis for progress in every country. … Prosperous countries depend on skilled and educated workers. The challenges of conquering poverty, combating climate change and achieving truly sustainable development in the coming decades compel us to work together. With partnership, leadership and wise investments in education, we can transform individual lives, national economies and our world.”  Ban Ki-moon, Secretary General, United Nations.

“Literacy not only changes life, it saves and transforms lives. It is the bedrock of sustainability.”                Irina Bokowa, Director General,UNESCO.

” Science is organized knowledge. Wisdom is organized life.” Immanuel Kant

“Learning without thought is labour lost; thought without learning is perilous.”  Confucius

‘Introduction

International Literacy day is celebrated all over the world every year on September 8. The theme for year 1914 is ‘Literacy and Sustainable Development’. This day is “an opportunity to remember a simple truth: literacy not only changes life, it saves them”, says Irina Bokowa, the Director general of UNESCO, in her message for the day. Acknowledge that quality education is key to sustainable development, a new set of goals for post-Millennium Development Goals (MDG) has been proposed at the 69th Session of United Nations General Assembly on 18th of September 2014. Started in 2000, the MDG period expires in 2015. The previous United Nations Educational, Scientific and Cultural Organization’s (UNESCO) Education for All Global Monitoring Report says that almost 1 billion people are still likely to be extremely poor in2015 and 57.8 million children still out of school.

Therefore UNESCO had set up new goals to be effective from 2015 to 2030. It has set-up 16 goals like   –

  • Poverty reduction,
  • Nutrition improvement,
  • Health gains’
  • Gender equality and empowerment,
  • Economic empowerment etc.

In context of India

India with 1.4 million children ranks among top five nations with kids aged 6 to 11 out of school. It will take atleast another 56 years to achieve female youth literacy. As far as quality of education in India is concerned, even after completing four years of school, 90% children from poorer households remain illiterate.

Start of modern formal education in India

During British rule in India, in 1834, new modern education system was launched in India, which was based on colonized British Grammar School type education. The traditional Indian system of education had withered away for the lack of official support.

The modern education, since its inception, has influenced the Indian society and its culture in a big way. It has both of constructive and destructive effects on its culture. On one hand, it offered to Indian intelligentsia the key to the treasures of scientific and democratic thoughts of Modern ‘West’, on the other hand, it had disassociated Indian people from their culture, classical roots, knowledge and traditional way of living. Along with it, faded Indian values, philosophies and traditions.

Issues

The issues that arise here are – what ‘Culture’ is? What is the culture of India? When and why the system of education was changed? How has it been affecting the indigenous culture of India? How can Indians remain rooted to their own Culture? How can its culture be further enriched by taking advantages of the wide horizon of knowledge, modern education offers and of the technologies developed in the Western world? And how people in general could be prevented from being swayed away by the glamour and materialism of alien way of life and its culture?

Animal instincts within human being – History of evolution points out that in the beginning, animal instincts within a human were quite prominent. Thomas Hobbes has described that at that time the life of man was “nasty, brutish and short”. Degree of selfishness was at its peak. Only fittest could manage to survive in that hostile environment.

Formation of civilized society – At some point of time, people joined hands and started living together. Human beings made conscientious effort to overcome the animal instincts hidden within them. They developed empathy and the spirit to cooperate and help each other. It was through socializing and development of norms that people learnt, how to live together or how to treat others and others him. That was the beginning of culture/mannerism, which inspired human to form a cultured civil society.

Dictionary meaning of the term ‘culture’– According to dictionary, meaning of the term ‘culture’, it is –
  • an integrated pattern of human knowledge, belief, and behavior of a group that depends upon the capacity for learning and transmitting knowledge to succeeding generations,
  • the customary beliefs, social norms, and material traits of a racial, religious, or social group;
  • The characteristic features of everyday existence (a way of life}.
  • The set of attitudes, values, goals, and practices shared by people in a place or time.

Features that reflect Culture – Culture includes within itself all the following features collectively like

  • Sophisticated language as medium of expression; arts and sciences as forms of human expression;
  • Thinking process as the way, people perceive, interpret, and understand the world around them;
  • social activities;
  • Smooth interaction with others fellow-beings; and
  • Spirituality as a path to salvation of soul,

All these qualities together and way of life transmitted through generations for the welfare of people, expressed through language and actions are included in culture.

United Nation on ‘culture’ – According to United Nation, a culture is a set of values, attitudes, language and ways of life. Whenever layers of culture and civilization are overshadowed, man’s real nature with all its animal instinct is exposed. Everything works well, when people are humane and familiar with the basics of their culture.

Culture leading to refinement – For keeping humans disciplined, every society enforces its own social, ethical, or legal rules. Culture leads to betterment or refinement, whether it is an individual, society or a nation. The more one follows those norms, the more cultured one is.

In short, culture of a society includes within itself knowledge, belief and behavior as well as attitudes values, goals and practices of that society. Culture is the full range of refined human behavior patterns. It constantly changes. Across different nations all cultures are concerned about values that are humane and universal.

Culture of India

Cultural richness – India presents a fascinating picture of cultural richness, which is mainly based on Vedic literature and philosophy. Civilization of India is one of the oldest alive civilizations of the world. Because of its tolerance and capacity of internalizing alien influences, its culture has been able to be one of the oldest, continuous and uninterrupted living culture of the world.( The other three being Egypt, Mesopotamia and Greece)

Many principles and cultures developed in the past, within India as well as elsewhere in the world, had created such a wave that swept over the entire world for some time. An anti-wave, replacing such waves, emerged soon. It wiped off the previous influence. The Vedic culture and its basic tenets, however, have been proved to be an exception in this regard. It happened due to basic tenets of Vedic culture, which have always been very close to every Indian.

Vedic culture

The word ‘Vedic’ is derived from the word ‘Vid’ meaning ‘Knowledge’ and signifies’ ‘knowledge par excellence’. The Vedic culture came into being due to intermixing of the culture of Aryan invaders, who came to India in waves, with the culture of indigenous tribal people of India during 2nd century BC to 650 AD.

The Indian culture is identified with the whole of India. To foreigners, it represents the ancient culture in its eternity. It mainly originated and flourished in northern parts of India and later on spread throughout India.

Origin of Vedic culture

The origin of the Vedic knowledge and its culture can not be traced in any single founder; neither can it be confined in one single authoritative text. Its sacred knowledge has been handed down from time immemorial, earlier by verbal transmission and later on, in written form by the ancestor to succeeding generations.

Never ending process (‘Neti’, ‘Neti’) – Vedas teach that creation and quest for knowledge is a constant process, without any beginning or an end. It is a never ending process (‘Neti’, ‘Neti’). The Sages (Rishis and Munies) were believed that even Vedas were not the end for quest for knowledge or prescribes any final absolutes.

Strength of Vedic culture

The strength of Vedic culture is proved by the facts: –

  • Despite centuries of foreign rule over 75% of Indian population remains Hindu.
  • Had it become obsolete, it would have given place to other religions and cultures.
  • It influenced almost all other religions found in India.

Basic tenets of Indian culture

The basic tenets of Indian culture, which kept its continuity intact, despite numerous foreign invasions, migrations and assimilation of various groups, are as following:

Principles of ‘Varna’ ‘Dharma’, ‘Karma’ The foundation pillars of systems of Indian culture were the principles of ‘Varna, karma and Dharma’. Principles of Varna, Dharma and Karma together provided the whole society a quality of life and contributed to its growth.

‘Principle of Varna’ – Doctrine of Varna has given the Indian Society a stable, sustainable social structure. In the past, it had assigned duties to different groups according to their natural endowments, instincts and qualities.

Principle of ‘Karma’ – Knowledge is supposed to be necessary for giving Karma”, its due meaning, direction and value. Ignorance is considered to be leading to futile efforts destroying direction. Doctrine of Karma teaches people to accept their surroundings, as they are and extract as much happiness as possible. Principles of Karma make the inequalities, prevalent a society, tolerable.

Principle of Dharma – Principle of Dharma defines the duties and inspires people to do their jobs well, as all worldly honor and spiritual happiness were vested there. It assures the people that proper performance of one’s work, whether high or humble, whether of a priest, warrior, Shudra or yogi are equally important for the society and were, therefore, right, respectable and worth pursuing.

Sanatan Dharma (Concept of Eternal Values)- Sanatan Dharma (Concept of Eternal Values) nurtured the basic instincts of human beings over nature, after a deep study of natural instincts, inherent attributes and natural behavioral pattern and taking care of the basic physical, mental and spiritual needs of the human beings at different stages of life.

Spirit of Tolerance

Amongst all factors, which contributed to enrich and continuity of India’s culture has been the spirit of tolerance of Indian people.

  • Concedes validity to all the religions -Tolerance is most evident in the field of religion. Hinduism concedes validity to all the religions and does not lay down strictures against any faith or reject any religion or its god as false. That is why, all the twelve major religions of the world are present and flourishing in India without much hindrance. Hindu faith in an all pervading omnipresent god, multiplicity of god and goddesses as representing some portion of the infinite aspect of the Supreme Being, inspires it to accommodate people of all faiths.
  • No conversions – India has adopted the path of assimilation. Its main religion Hinduism does not believe in conversion or imposing its beliefs, practices and customs on others. It has neither repulsed any trend vehemently, nor allowed others to sweep its own established culture off the roots.
  • Truth, Ahimsa, peace and non-aggression – Tolerance is not confined to religion alone. It is seen everywhere in the Indian way of life. Firm belief in the principles, ‘Live and let live’, ‘to each according to his needs and from each according to his capacity’, ‘simple living and high thinking’ and faith in Truth, Ahimsa, peace and non-aggression have always been the part of Indian ethos.
  • Whole world is one family – ‘Vasudhaiva Kutumbakam’, the whole world is one family Indians is the hallmark of Indian culture. In the past, people endure injustice and unfairness until they are pushed right to the wall. John Fischer mentions, Even during Bengal famine, an extreme situation – when necessity knows no laws, people did not take law in their own hands, nor was there any violence. No grocery stall, no rice warehouse, none of the wealthy clubs or restaurants was ever threatened by a hungry mob… They just died with docility, which to most Americans is the most shocking thing about India.’(John Fischer, India’s insoluble Hunger – 1947)

Positive effect of tolerance

Many times in the past, Indians had accepted oppression and exploitation without much protest, while such situations would have led to bloody revolutions elsewhere in the world.

Negative effects of tolerance

Even today, the people are tolerating the corruption, scams, scandals and criminal activities developed in political sphere, as well as inefficiency seeped deeply in administration without much protest. Administration is one such area, where tolerance is harmful, as it not only hinders the development, but also pushes the nation backwards.

Effect of these principles on society of ancient India

All these principles together had organized orderly performance of various functions needed to provide a quality of life to its people in the past. It gave them a distinct character, defined roles and organized inter-relationship of various sections of society. It prepared an atmosphere for co-existence of different sections of the society – be it ruler or ruled, be it rich or poor. It served to give Indian society coherence, stability and continuity; and held together different castes and communities having diverse languages and practices for generations – thus making unity in diversity a reality.

Composite Culture of India

The composite culture of India has absorbed the good points of other cultures enriching it further. More than anywhere else in the world, it holds a multitude of thoughts, processes them and practices them. There has been co-existence of varied belief, pattern and thought due to inter-mixing and cultural mingling.

The composite culture of India grew out of: –

  • Growth, influence and refinement of values of different religions generated within land of India.
  • Creative interaction between values of indigenous religions and religions of diverse migrating or foreign communities like Islam, Christianity, Zoroastrianism etc.

All the sects present in India, whether foreign or indigenous, have been influenced greatly by Vedic culture – its thinking, practices and systems. For a few centuries after the downfall of Hindu’s rule (around 5th-6th centuries), first under the rule of Turks or Muslim, the culture of Islam and their style of living, practices, traditions influenced the Indian society and afterwards Christianity under British rule flourished and dominated the scene allover in India.

Fusion of different cultures

The wonderful process of assimilation and fusion of different cultures has been a continuous process of the India civilization. It contributed to the cultural richness of India. Such flexibility is not seen in the West. When Christianity broke away from Judaism, it departed totally from the common cultural traditions. Therefore, it is very difficult for the Western world to understand and appreciate Indian culture fully.

  • Composite culture of ancient times – Before 6th century, a cultural synthesis took place. In ancient India, the assimilation of various racial, immigrants, locals, tribal, professionals or other groups under its mainstream was done through caste system by assigning each new group a separate caste identity. Assimilation of different social groups was done without imposing on them Hindu value system or annihilating the originality, internal order, customs or language of new groups joining the mainstream. India provided the atmosphere and opportunity the culture of each identity, coming into its fold, to flourish in its own way. A major cultural synthesis took place during 6th and 10th century between Vedic Hindu culture, Buddhism and Dravidian culture between Vedic Hindu culture, Buddhism and Dravidian culture.
  • Composite culture during medieval period – After the downfall of Hindu’s rule, under Turks, Muslim and British rule, Islam and Christianity received substantial state patronage for sufficiently long period. Their cultures flourished and dominated the scene allover in India. It led to another major cultural synthesis. After the 10th century, the thinking of Arabs, Turks and Afghan, mainly guided by reason, influenced Indian thought. As a result, Sufi and Bhakti movements emerged into the scene. These two sects taught the people to love and respect all human beings irrespective of caste or creed. These two sects taught the people to love and respect all human beings irrespective of caste or creed. These also brought changes in the nature of mutual understanding, communal amity and accommodation.
  • Modern times – Once again, during the period of 18th to 20th century, major cultural synthesis took place with modernization and industrialization ushered in by the British.

Survived vicissitudes of time

Culture of India has survived the vicissitudes of time, saved itself by erosion from within and assault from outside only because of the adaptability.

Maintained continuity

The composite culture of India managed to continue despite numerous castes and communities living here for time immemorial; despite numerous foreign invasions, migrations and assimilation of new groups; and despite cultures of Hindus, Islam and Christians receiving substantial state patronage for sufficiently long period at different points of time.

Every time Vedic culture re-emerged

There were periods during its long period of evolution, when its main Vedic culture had weakened and shaken the confidence of people in Vedic literature and its philosophies, especially under foreign rules. However, every time, it re-emerged and whenever it re-emerged; it did not destroy the culture of other sects, but assimilated their good points within itself.

Major force retain the cultural identity

The composite culture of India acted as a major force for the failure of Islam, Christianity and other religions to make headway in India even after mass conversion. Through it, Hindus could retain their cultural identity, while living under an alien political order, whether it was Turks, Mughal, Portuguese or British.

Vedic literature not only religious books

‘Vedic literature’ is a gold mine of Indian philosophy. The ancient Vedic philosophy and literature are found in Indian scriptures known as ‘Vedas’, ‘Smritis’ ‘Sutras’, and ‘Upanishad’. These scriptures are not only revered scriptures of Hinduism or religious books, but hold in itself a vast reservoir of knowledge and experiences of great Indian scholars called Rishies, who had devoted their life in search of knowledge. It is a perfect guide to the art of living.

  • “Ocean of knowledge in a jar”- According to Basham, these Epics contains “an ocean of knowledge in a jar.” (Wonder, That Was India). Vedic literature is a vast reservoir of knowledge. It presents a magnificent example of scientific division and orderly arrangement of rules, in a few words, in different branches of human knowledge, covering almost all the aspects of life, be it phonetics, arts, literature, medicine, polity, metrics, law, philosophy, astrology or astronomy.
  • Perfect guide to art of livingVedic literature is a perfect guide to art of living. It speaks of everything- on staying healthy, social values, improving concentration and tenets of behavior, which are relevant till today. Its rituals are techniques for leading a harmonious life.
  • Self-restraint and self-discipline – In the past, culture of India had encouraged Indians to adopt a self-restraint and self-disciplined life-style; be in tune with the forces of nature; live harmoniously and peacefully with their fellow beings; practice non-violence in thought, action and speech and not cause pain to anyone including oneself. It advised people to lead a self-disciplined life, to do one’s own work sincerely, not to interfere in other’s work and escape from apathy or indifference. It taught people to be self-observant and try to mend one’s own mannerism rather than telling others behave.
  • Stress on contentment – It has advised to be contented, to be self sufficient and to be satisfied with what one can earn honestly, but not to be greedy, jealous or too competitive; not to hoard or accumulate beyond one’s need; not to steal, beg, borrow or snatch belongings of others with or without their knowledge. According to Hindu philosophy, nature has provided enough for everybody’s need, but not enough for even one person’s greed.
  • No destructive activity – It has advised people not to waste energy or over-indulge oneself in wasteful and destructive activity. People should be honest and willing to help others; observe austerity, simplicity and discipline in life; maintain cleanliness of diet, body and mind. In short, it advised people always to try to rise above the animal instincts hidden inside human-beings.
  • Work is worship – Principle of Karma teaches people that Work is Worship. In modern world, when people are so conscious about ‘blue colored or white colored jobs’ and asserts their rights, pay scant attention to their duties, the faith in ‘Principle of Karma’ can inspires common man to do their duties sincerely. It teaches that any kind of work is worth pursuing and respectable. Any work done in its true spirit could never be derogatory or a waste. They should try for action par excellence. A work should not be valued so much for its external reward, as for the intrinsic satisfaction towards realization of Swadharma.
  • No Revenge or putting blame on others – No human has any control over taking birth in a family of one’s choice. Very few are born with silver spoon in their mouth. Everybody else has to make efforts for a better future. Principle of Karma also offers a convincing explanation for inequality, affluence, poverty and happiness. It prevents people from being revengeful or putting blame on others for their own failures, miseries. Everybody has to face the inexorable consequences of one’s doings. It teaches people that they are not the slaves of circumstances/environment, over which they do not have any control. Principle of Karma teaches common man to keep on making efforts for better future. None of their effort goes waste.
  • Hopes for better tomorrow – Nobody knows ‘when one is going to hook a fish’. Principle of Karma gives hope to people not to get disappointed by their present unfavorable circumstances. One should constantly make efforts to improve situation by performing one’s own duties well. By channelizing efforts, energies and capacities in proper direction and working hard, one can specialize in his specific area of work, strengthen character, improve economic status and contribute in social/national reconstruction.

Education restricted to those, who can keep its sanctity

In ancient India, education was confined to a very small section of Indian society. It was not so much that common people were debarred or denied access to education because of discrimination, as it was because of the method of education. In absence of any written material, priestly schools in India had devised a most remarkable and effective system of transferring knowledge to succeeding generations in form of hymns. They restricted it only to those, who possessed brilliant feats of memory and capability to keep its extreme sanctity. Opening verse of Chapter (IV) says, “I gave this philosophy of (life and action called) Yoga to men of responsibility, so that, through this philosophy, they will become strong to serve and protect the people, to nourish the people.”

Rituals guidelines to lead a harmonious, disciplined and healthy life

The rituals were the techniques to help and guide the masses of all sects of India to lead a harmonious, disciplined and healthy life. Some rules were prescribed to be observed in day to day life to stay healthy, others to live in a hygienically clean atmosphere, live a self-restraint and self- disciplined life and to develop human relationship including the give-and-take of socialization especially during a variety of festivities and life-celebrating events.

Essence of the knowledge and experiences of Intelligentsia – The knowledge and experiences of Intelligentsia of ancient India (Yogis, sages and Munies) benefitted the whole community from top to bottom. The sages of ancient India prescribed certain rules, customs and rituals to be observed by the common men. Through these rituals, masses benefitted by the deep thinking and experiences of sages of many generations; and the vast treasures of Indian philosophy, rational. These rituals gave a sense of direction to the masses. Masses were disciplined through infinite variety of rituals, prayers, practices, customs and meditation envisaged/prescribed by the learned sages.

Wrong practices developed deformities – Most of rituals, customs and traditions have lost their sanctity and developed many distortions because people started following them blindly and in a wrong way. People are losing the spirit of these rituals and festivals. It is necessary to understand correctly what for they actually meant, or what the messages behind it are. For example –

  • Festival of Holi in India was traditionally played by making colors from the flowers and herbs. Gulal was popular for its soothing qualities. But over the years, natural colors have been replaced by synthetic colors. Synthetic colors spoil the fun. They can cause serious skin problems, eye irritation and from skin allergies can lead to cancer.
  • The purpose of Holi festival is to inspire people to meet and greet each other with love and affection, forgetting old rivalries and enmity. Now many a times, people get beserk. They think holi is meant for fun. In the name of fun (mauj and masti), they play Holi in rowdy manner, misbehave and take advantage thinking it a good time to settle old scores. They use everything available to give others a really tough time, – pucca paints, dyes, grease, mud, throw each other in a pit of mud, throw balloons filled with water/coloured water and drink bhaang and get intoxicated and sometimes violent.
  • The ill-effect of this change is that people dread to move out their houses almost a week before Holi. There are many fatal/serious accidents due to drunken driving, dangerous driving, over-speeding, triple riding, driving without helmets or seat-belts is common sight during Holi

Wrong practices, quite often develops a widespread misunderstanding and give birth to social evils, caste-conflicts, feudal oppressions and mass poverty.

Impact of Vedic philosophy and literature on Indian society

The impact of Vedic philosophy and literature on Indian society was as following –

  • No confusion in matter of work – All the functions needed for the maintenance and growth of the society were divided amongst different groups. Each group was assigned a distinct function to perform. There was no confusion or frustration on matter of work, because every body had his traditional occupation.
  • Dignity and honor for everyone –One of the unique features was that it provided work and employment to all. It avoided rivalry or bitterness for pelf, power or position amongst different sections of society. Each and every group served the community. All the groups lived with dignity and honor with the feeling that they, too, were contributing something to the society.
  • Clear vision of responsibilities – Clear-cut definition of rights and duties for each group, based on its traditional occupation, developed clear vision of its responsibilities.
  • Checks and balances – Orderly division of labor based on certain principles and its combination with the principle of inter dependence developed its own systems of checks and balances over arbitrary use of its authority.
  • Decentralization of authority – There was an automatic decentralization of authority.
  • Inculcated discipline in masses – Discipline was inculcated amongst ignorant masses through infinite variety of rituals, prayers, practices, customs and meditation envisaged/prescribed by the learned sages.

Contribution of some saints

Tulsi, a Follower of Bhakti (Devotion) MargTulsidas took Rama out of Temples (Mandirs) or massive structures, freed Him from the clutches of Brahmins and placed Him in the hearts of common man. Importance of Ramayana, according to Sri Satya Sai Baba, is that principles of Ramayana teach peace, love humanity and unity. It teaches value of detachment from objective pursuits and realization the presence of Divine in every being. Renunciation leads to joy and attainment brings worries. The characters of Ramayana represents – Dasaratha is the representative of physical senses, three queens queens of three qualities (gunas) – serenity (satwa), passion (Rajas), sloth (tamas). The four goals of life are to get over ‘Kaam, Kroth, Lobh, Moh’. Rama represents righteousness in deed, word and thought, ever pure and totally free from blemish. Lakshmana symbolizes intellect, sugriva wisdom (viveka), Baali despair, Hanuman embodiment of courage. The three demon chiefs are personification of Passion (Rajasic), slothness (taamasic) and serenity (satwic). Sita is awareness of Universal Absolute (Brahma-jnana)

Kabir (15th century Sufi ‘Nirgun’ Sant) and other Sufi Sants – They did not believe in idol worship and criticized communalists and fanatics. Their followers interpreted the life and message of the saint poets. All their life they fought against orthodoxy, the ritualistic interpretation of religion and advocated spiritual uplift of a person. But after their death, most of them were caged in the same circle of rituals.

Vivekanand (a 19th century scholar saint) – To Vivekanand, Dharma meant fulfilling duties, not performing mere rituals. Religions are the ways to reach the divine and not to confront any other faith. He did not believe in conversion and advised people to stick to their own religion. In his famous 1893 Chicago speech at World Parliament of Religions said, “I am proud of my Hinduism, which is tolerant and inclusive.” However, some fanatics did great disservice when they use this message not to spread Hinduism’s message of tolerance, but to express a supremacist mentality.

II

Modern education

Modern education in India (Before Independence)

In 1835, Lord Macauley successfully laid the foundation of modern education in India. In 1844 through a Declaration knowledge of English was made compulsory for Government employment. It made English medium schools very popular. The traditional Indian system of education gradually withered away for the lack of official support.

The universities at Calcutta, Bombay and Madras were started in 1837 and higher education spread rapidly thereafter. Since the British were not much interested in scientific and technical education, only three Medical Colleges one each at Calcutta, Bombay and Madras was established by 1857. There was only one good engineering college at Roorkee.

Purpose of introducing Modern Education system

Finding it too costly and perhaps practically impossible to import enough Englishmen to man the large and increasing number of subordinate or lower posts in administration, British rulers planned of educating Indians in such a way that they “should through western education get Anglicized in terms of both cultural and intellectual attainments”. Lord Macauley clearly said that, “we must at present do our best to form a class, who may be interpreters between us and the millions whom we govern; a class of persons, Indians in blood and color, but English in taste, in opinions, in morals and in intellect.”

Served Double purpose

Introduction of modern education had served a double purpose for the British rulers- they got the credit for the amelioration of the Indian society. But at the same time, through it, they devised a unique method of distribution of power, kept balance of power and prolonged their rule in India by keeping the natives busy in their in-fights.

Welcomed by all

The atmosphere was completely ready, when Lord Macauley to lay the foundation of modern education in India by 1835. Missionaries as well as National leaders, intellectuals and Reformers not only welcomed but exerted pressure on the company to encourage and promote western education in India.

For Missionaries

For Missionaries, modern education was a good recipe to brainwash Indians and to attract many Indians especially belonging to lower strata towards Christianity. Modern education and preaching of religious minded Westerners like William Webberforce or Charles Grant etc. had made their job easy. Formal education in educational institutions under British government led to mass conversion into Christianity. It had succeeded in leaving a deep influence in the minds of both educated and uneducated.

  • Brainwashing educated Indians – In educational institutions under British government or in Missionary schools, an ideological attack was launched purposely on Indian value systems. Indian social structure and its values and systems were described as “discriminatory,” “iniquitous,” “exploitative,” “oppressive” “barbarous,” “uncivilized” and “highly stratified”. Indian social-structure, based on caste system, was held responsible for all evil social practices, feudalistic attitude, backward thinking, belief in dogmas and superstitions sustained by a unique set of rituals, and whimsical concept of purity and pollution.

Formal education in missionary or government aided schools and colleges developed a complex in the minds of educated Indians about primitiveness of Indian society and its value system. Many educated Indians were influenced greatly by the alien culture. Some of them got converted into Christianity.

  • Education and employment an attraction for poor – Missionaries had attracted the attention of poor ignorant masses by preaching and by providing for submerged sections of Indian society opportunities to get free modern education in missionary schools and permanent jobs. Liberal grants were given by the British government to missionaries and their schools for this purpose. It helped missionaries to lure the downtrodden/people, belonging to lower strata, towards Christianity.

Hopes, national leaders and Reformists had from ‘Modern Education’

Humanitarians, intellectuals, leaders and leaders and social reformers welcomed rationality and other good features of Modern English education. They hoped that modern education would –

  • Enlighten Indians by giving them the key to open the treasures of scientific discoveries and democratic, liberal and humanitarian thoughts of the modern ‘West’through Western literature and philosophy.
  • Make people aware of the real issues hampering the progress of Indian society, remery the social, political and economic ills of the country and improve the life of common men by enabling them to conquer ignorance, hunger, poverty and disease.
  • Spread of the Principles of Democracy across the nation to bring to an end imperialism and tyranny of British rule.

Impact of the efforts of National leaders

Modern education did produce much-needed manpower for lower levels of administration, as desired by the rulers. But it also generated groups of visionary national leaders, intellectuals and reformers during second half of the nineteenth century and beginning of twentieth century like Raja Ram Mohan Roy, Dadabhai Naoroji, Ferozeshah Mehta, Gokhale, Gandhi, Jinnah, Ambedkar, Tilak, Lala Lajpat Rai, Moti Lal Nehru, Jawahar Lal Nehru, Neta Subhash Chandra Bose, Patel etc.

Aim, Economic and social uplift – The thrust of Indian leaders and intelligentsia was purely an economic and social. They put emphasis on education and science. They took upon themselves the responsibility to build a modern, open, plural, culturally rich, prosperous and powerful India out of a fragmented, poverty stricken, superstitious, weak, indifferent, backward and inward looking society.

Constructive Influence of modern education on Indian society

Eighteenth century onwards, modern education led to social awakening, gave impetus to social progress and brought many reforms. It had influenced substantially the working style and thinking of missionaries, reformers, educationists and many Indians, especially those belonging to elite and intellectual sections of society. Some of the positive effects of modern education on Indian society were as follows –

  • Opened up the doors of the knowledge – Modern education opened up the doors of the knowledge flourished in Europe after Renaissance movement of Middle Ages. It had widened the mental horizons of Indian intelligentsia.
  • Highlighted evil practices – Modern education had highlighted the weaknesses and real issues, which had developed in the system like rigidity and harshness of social customs and practices prevalent at that time for the weaker sections of the society i.e. women and lower strata of society.
  • Attracted attention of social reformers – Modern education had attracted the attention of social reformers towards social evils caused by ignorance, superstitions or irrationality like mumbo-jumbo of rituals and superstitions created by some selfish people to entangle the ignorant and poor masses, un-touch-ability and inhuman treatment to women, Sati, Polygamy, child marriage etc. etc. prevalent at that time.
  • Realization of the worth of liberty and freedom – Indians realised the worth of liberty and freedom. They got exposure to the philosophies of thinkers like Locke, Mill, Roussseau, Voltaire, Spencer and Burke etc. They came to know about the reasons and impact of English, French, American revolutions. It equipped national leaders with the intellectual tools, with which they fought the oppressive British Raj.

The destructive effects of modern education on Indian society

Some of the adverse effects of modern education system on Indian society were –

  • Disintegration of Indian society – Divisive policies of British rulers divided the whole of Indian society into many uncompromising groups. The primary aim of British rulers was to ‘divide and rule’ and keep the natives busy in their in-fights. They adopted racial discrimination and many repressive policies in order to disintegrate Indian society. On surface, everything appeared fine, but in reality it compartmentalized the Indian society into uncompromising groups by taking the path of discrimination. National leaders, Reformers and a section of intelligentsia could feel the damage, British racial discrimination and their repressive policies were doing.
  • Rise to unhealthy competition – Modernization of the pattern of education and occupations (making knowledge of English as basic qualification for white collared jobs especially in government) along with industrialization increased role of formal education and training for furthering future prospects of people.

In near absence of industrial, commercial or social service activity, people had to depend entirely on modern education and Government jobs for earning respectfully. Stiff competition for getting enough space in modern callings divided the Indian society. Opportunities in modern education and government jobs became the bone of contention between different sections of the society. The monopoly of Brahmins in these areas cautioned the British and generated anger amongst the non-Brahmin communities and Muslims. In the Southern states, there emerged two rival groups – Brahmins and Non-Brahmins and in the North – Hindu and Muslims.

  • Biased census operation – British rulers redefined the structure of Indian society through Census operations according to their administrative convenience. Census operations divided Indian society into different political groups – Upper castes, Lower castes, Backward castes, minorities Tribals and untouchables – on basis of race, religion, caste, creed, or place. The government recognized all these groups officially. It divided Indian population into different un-bridgeable groups. It politicized caste and community, which were made tools for Indians to fight amongst them from now onwards.

The government allowed forming their own pressure groups. It gave encouragement to all of them to pursue their sectional interests or to insist for their claims in the areas of education, white collared jobs and power- structure of the country.

  • Racial discrimination giving birth to National movement – During 1858 to 1905, the British Government adopted a racist attitude under the garb of the policy of apparent association. British, philosophers and writers started propagating theories of racial superiority and thereby, justified the domination of white races over dark races of the globe. Historians like Mill, Wilson, Ward vehemently denounced the culture, character and social structure of the native people.

The discriminatory and repressive policies and practices of British rulers alarmed the national leaders. Racial discrimination in the areas of education and jobs and their repressive policies elsewhere; Economic loot; political subjugation; assertion of lordly superiority over the subject on the ground of race; assumption of a haughty exclusiveness; persistent insulting and supercilious behavior towards all Indians; exclusion of Indians from all places of honor, authority and responsibility; and denial of their capacity for self-governance united Indians against British rule. The destructive character of repressive policies of British rulers lit the fire and gave birth to national movement.

  • Masses remained illiterate – Though during second half of the nineteenth century, British government in India opened the doors of education to all sections of Indian society, irrespective of caste or creed, very few amongst the general public could avail the advantages of formal modern education. Education remained confined within a small section of societyIt was only impoverished group of Brahmin and caste Hindus in search of respectful livelihood, who opted for modern education. Educating general public was not the aim of British rulers. Relentless efforts of missionaries, with an aim to convert poor people into Christianity, could educate a very small number of people from amongst them. Reasons being:
    • Modern education was very costly and, therefore, unaffordable by the masses.
    • Masses did not see any immediate use of education. It was more important for them to work and arrange two square meals day.
    • English as a medium of instructions in education and as Official language. It alienated the masses from the educated Indians. English gradually became the language of elite section of Indian society.
  • White collared jobs- Introduction of modern education in 1835 and introduction of Wood’s dispatch of 1854, known as Magna Carta, which declared English as an official language, changed the scenario. It gave importance and popularity to ‘White collared jobs’ in organized sector. Declaration of English as Official language pushed the masses away from new employment opportunities. More a person withdraws from physical labor, more honored; civilized and qualified he/she is considered by modern society. The trend of easy and quick money started.
  • Discredited traditional occupations – Emergence of white-collared jobs based on formal education tended to make many traditional occupations obsolete, as they were considered less paying, more hazardous or time consuming. It scattered the efforts, sense of direction and manufacturing skills of millions of artisans, craftsman, weavers etc. There had been casualty of workers first, afterwards their work style, commitment, motivation and culture. They lost their creativity, sense of achievement and pride. Work culture has changed tremendously since then.
  • Unemployment increased – Very few of them could join modern occupations. Majority of people could neither enter into modern sector, nor could stick to their traditional occupations considering the menial work derogatory. In the near absence of industrial, commercial or social service activity, most of them had no option, but either to join band of agricultural labors, industrial workers and marginal labor for their survival or increase number of unemployed or under employed.
  • Traditional jobs hijacked by educated entrepreneurs – Some young entrepreneurs, having education, money and awareness, did market survey and hijacked many discarded traditional occupations. They modernized such disdained and contemptuous jobs like mechanization of fishing or leather industry and made them profit oriented. Even less capital-intensive occupations like that of barber or washer-men have been hijacked by educated middle class. They re-christened them as saloon, laundry etc and employed those poor traditional workers, who were earlier practicing such occupations independently.

Modern education and Reform movements

Social reforms of 19th and early 20th century – The thrust of reformers was purely social. They got alarmed at the erosion of rich ancient Culture of India. Modern education was steadily disassociating Indians from their traditional way of learning, classical roots and knowledge. They undertook the path of internal reforms. They tried to revive it through Sanskritization.

  • Formation of Social reform organizations in 19th and early 20th century – The thrust of reformers was purely social. Many organizations were formed allover India, like Brahma Samaj founded by Raja Ram Mohan Roy (1828) in Bengal or Prarthana Samaj in Maharashtra (1867). Arya Samaj (1875) was founded by Swami Dayanand in Northern India, and Rama Krishna Mission, Theosophical Society of India (1879), Dev Samaj in Lahore and Servants of India society. They suggested people to form similar organizations allover India spread awareness amongst common man.
  • Efforts to awaken the masses and interpret religion rationally – Social reformers took upon themselves the job to revive their own rich ancient culture and prevent the masses from being swayed away by the glamour and materialism of alien culture.

They organized people, held conferences and published articles to inspire and spread awareness amongst the people allover India. They interpreted religion rationally. They familiarized the masses with the greatness of Hindu Vedic culture and about Vedas as the source of all knowledge and truth. The intellectual ferment was strongest in West Bengal, Maharashtra and Tamil Nadu as there was more rigidity than other parts of India in observances of various rituals and rules. Illiterate and ignorant masses followed them blindly.

Advice of social reformers to Indians

Social reformers drew attention of the public towards the real issues hampering the progress of Indian society and guided people to remain firmly rooted to Indian Culture.

  • Advice to eradicate social evils – Social reformers told people to stop all forms of exploitation, inequality and injustice and then move forward. Emphasis was laid on education and science. They asked people to fight against all inhuman practices or treatment given to women and lower strata of society at that time. Women were victimized because of evil practices like Sati, Polygamy, child marriage etc. And practice of untouchablity, which developed into the system made millions of people from lowest strata of society to suffer because of arrogance, ego and irresponsible behavior of some persons. Such persons were responsible for creating the mumbo-jumbo of rituals and superstitions to serve their own vested interests and entangle/exploit the ignorant and poor masses.
  • Free Hinduism from all degenerate featuresSocial reformers advised people to set free Hinduism from all degenerate features without foreign intervention. They asked the submerged sections of society to fight with “Abhava” (Scarcity), “Agyan” (Ignorance), “Annyaya” (Injustice), and “Alasya” (Laziness), as these were the causes of all evils.
  • Not the principles, but practices went wrong – Reformers believed that it was not the Hindu principles, but the practices, which went wrong. Vivekanand who founded the Rama Krishna Mission said, It is we, who are responsible for our degradation. … He said, “Each nation like each individual has a theme in this life, which is its center, the principle note, around which every other note comes to form the harmony. If any nation attempts to throw off its national vitality, the direction, which has become its own through the transmission of centuries, that nation dies.” i
  • Call to ’Return to Vedas’ – Swami Vivekanand and many other reformers asserted the superiority of Hindu Vedic culture. They gave a call to “Return to Vedas”, as Vedas were to them source of all knowledge and truth. They advised Indians to interpret religion rationally and remain firmly rooted to their own Culture.

Familiarizing the masses of India and the Western World

Awareness about its greatness confined within a small group – For a long time, the greatness of Indian culture and its philosophy was known only in India, that too, not to the whole of India, but only to a few Sanskrit scholars. For the first time in the 8th century Sankaracharya placed it before the people. Even then, its worth was realized within the world of few scholars and saints.

Later on, during 19th and 20 centuries, Saint Jnanesvar, Vivekanand, Rama Krishna Mission), Lokmanya Tilak, Theosophical Society of India and others tried to reveal to the common man and Western world the greatness of Indian Philosophy and culture as well as the charm and graciousness of Vedic literature. They contributed in making Vedic culture popular all over India.

Inspiration not only Indians, but foreigners as well – From now onwards, this gold mine of knowledge and vast treasures of Hindu philosophy with all its rational thinking, social and religious experiences contained in Indian Scriptures and Epics have inspired not only Indians, but foreigners also, not only in the past, but at present as well. Indian philosophy and its value system gave to people, a purpose to live for and ideals to be achieved. It commanded the respect and attention of an average Indian once more. German scholars, in the early Nineteenth Century and English scholars in the late Nineteenth Century and early Twentieth Century were deeply fascinated by Hindu philosophy and its rich spiritual and traditional treasures, accumulated through centuries.

Scholars reinterpreted it for a rational mind – Intellectuals from India as well as various countries have translated it in their own languages and reinterpreted it for a rational mind with an aim to spread it throughout the world.

. After Independence

With minor changes here and there, the education system basically remained the same. Karl Marx remarked that British, had a double mission in India, one destructive, the other regenerating; the annihilation of the old Asiatic Society and laying the material foundation of Western Society in Asia.I (Dutt RP, India Today, p476) The regenerating character can be seen in the social transformation in India through modern education. British rulers made English language as a medium of learning and official language. There was modernization in economic sphere. It led to political unification of the country and laid foundations for many democratic institutions.

The reactionary and destructive character was seen in the economic and social sphere. The growth of casteism had a close connection with these developments. Its result on Indian society was –

Complex in the minds of many educated Indians about their social values –Modern education has developed a complex in the minds of many educated Indians about the primitiveness of Indian society and about efficacy of its value systems. Many educated Indians have lost faith in social customs and practices altogether. Some Indians consider Hindu philosophies and its way of life impractical, or its social practices indefensible.

Apathy towards their values and systems – Apathy towards their value systems has made a large number of intelligentsia alien in their own country. It has disassociated them from their own way of living, classical roots and traditional knowledge. With it; are fading steadily Indian value-system, philosophies and traditions. Usually a person becomes miserable, when he is cut off from his source of life – his own roots. A large number of educated Indians have lost faith in the traditional values, principles and way of life. They have lost faith not only in their fellow-beings, but also in themselves.

Wide gulf between common man and educated – Quality of education, especially in government or government-aided educational institutions has also deteriorated to a great extent. The costly nature of quality education especially in private institutions has further alienated uneducated masses from educated ones. Quality education has become a monopoly of the richer classes and city dwellers. Their youth have become quite insensitive, arrogant and does not hesitate speaking their minds bluntly.

Culture of Neo-rich – A drastic change is visible in the values, behavior and etiquette of a new educated neo- rich youth of elitist class, which has emerged especially in urban areas and Metros. Their life style and value system have been gradually replaced by the Western ones. They want to enjoy pleasures of modern life at any cost. They are more conscious of their rights.

Undisciplined behavior – Present-day youth want to enjoy life fully in any possible way without any bondage/restriction/comment on their behavior or way of life. Loosening grip of social bondage and observances has made many of them selfish, self-willed and arrogant. Some of them have become so intolerant and aggressive, that they out-rightly discard all social norms and etiquette. Their thinking and value systems are quite different from the older ones.

Failure of Present Education System – Education is supposed to develop positive thinking in learners, so that they can channelize their efforts, make their thinking-base broader and flexible, increase openness to information and enhance spirit to work hard, sincerely in a responsible manner in order to attain desired goals. Present system of education has miserably failed to inculcate in youth these qualities. They do not have a clear vision about their aims and ambitions, courage to own responsibilities, face bravely the challenges in life and a balanced approach towards one’s rights and duties, which are the basic ingredients of any cultured/matured/civil society.

Large population of Illiterates and unskilled work-force – ‘Education for all’ and ‘employment for all’ is still a dream. Lack of proper education and training systems combined with illiteracy and lack of skills amongst a large number of people has turned the visions of national development into empty dreams. Only 64.84 people are literate according to 2001 census, (Males – 75.26% and Females – 53.67%). In absolute number, the figure is alarming. No nation can afford to have a large number of its population to remain illiterate, ignorant and unskilled. Not only the number of illiterates and unskilled is a matter of concern, but also quality and insufficient resources of education and training are the matter of great concern. Population explosion has put a heavy pressure on available infrastructure of education and training.

All powerful Government making common man a pigmy – Being a ‘socialist’ and ‘Welfare state’, government has assumed absolute power and taken over itself the responsibility of improving the quality of life of its people from `womb to tomb’. Instead of being a facilitator, it has become the provider. Instead of teaching people ‘how to fish’, it obliges different sections of society by ‘giving a fish’. It has led to centralization of all control systems and made common man a pigmy.

Populist policies to catch vote-banks – In order to create vote banks discriminatory populist policies are being pursued in the name of ‘equality’ or ‘social justice’. More emphasis is being given in pursuing abstract and emotional issues rather than solving the real problems of people. Attempts for social changes make a virtue of narrow loyalties of caste and religion, generating sub-cultures like favoritism, lure for easy money, nepotism and, in-discipline in the society. Caste and communal conflicts are increasing. There are sectarian and regional imbalances generating social and psychological tensions.

Unhealthy competition – There is neck to neck competition for a few places in educational institutions of repute or in employment, especially in organized sector. Rivalry and bitterness for pelf, power or position is continuously increasing. Total aversion of youth from their traditional occupations and stiff competition elsewhere for employment pushed millions to poverty. It has rendered millions of people unemployed or underemployed, who are now wasting all their efforts and most energetic and creative time of their lives, while hunting for a job.

Effect of Political turmoils on Indian society – Recent political turmoils have adversely affected the whole atmosphere. A few Individuals and groups, with political, money or muscle power control the destiny of millions and have say in almost every walk of national life. They are working day and night to deny justice to common men and upright citizens. Favouritism, in-discipline, violence, corruption, lure for easy money, nepotism and chase of materialism based on ruthless competition have weakened the social fabric beyond repair. The erosion of basic moral and human values has turned the life of men, “nasty, brutish and short”.

Standard of Administration – Standard of governance has declined. Work culture in government offices whether at Centre, state or local level, has been degenerated. Under-currents of caste politics have made the task of governance difficult, making the governance difficult and ineffective. It has given birth to sectarian and regional imbalances generating social and psychological tensions. People are disgusted with the non-performance of government. The administration has become incompetent to solve the burning national issues.

Technological advancement – Scientific and technological developments has endowed human with tremendous power both to preserve and destroy. At slightest provocation, people do not hesitate to unleash destructive powers accessible to them. That is one of the reasons for increase in the incidents of violence and crimes.

Conclusion

There is no denial to the fact that Modern education has brought social awakening and awareness amongst people all over India. Recent revolutionary developments in the areas Science and technology, information technology and mass media have brought tremendous changes in the life style and working of people. Thanks to it, now any kind of information in any area of human knowledge or about any aspects of life is easily accessible, that too at the door-step of each and every individual. It has made the present generation much more informed about the developments happening anywhere in the whole world and knowledgeable than previous generations. But only gaining knowledge is not enough.

Khalil Gibran has pointed out that a little knowledge that acts is worth more than much knowledge that remains inactive. A person, whose knowledge is confined to books, is unable to use his wealth of knowledge, when the need arises. Knowledge, the object of knowledge and application of the knowledge – all the three are equally important for motivating to take a wise action.

According to Hindu philosophy, human beings possess three shakties (Powers) – knowledge, will and action. A human mind consists of right knowledge, wrong knowledge, fancy imagination (illusion), sleep, memory. It is only the right kind of knowledge, which gives essence and which is the source of spiritual light and remover of all ignorance. Knowledge brings in understanding and consciousness that vibrates with different types of learning. Right kind of knowledge, like a rock, is a solid support to human beings, which stays with them all the time. Spiritually it brings harmony and peace of mind and materially happiness, relaxation and celebration in life.

There is a difference between knowledge gained through information (intelligence) and its application to real day today life (intellect or wisdom). Intelligence leads to the world of information and knowledge. And intellect enables one to analyze, reason, judge the thinking process and distinguish between facts/realities and opinion. Intellect guides how to apply knowledge. It is lack of intellect that leads a person to vices like egoism, superiority complex etc and creates problems in people’s life and in the world. Only intellect can control human mind and lead it mind to right direction. When intellect becomes weak, negative reasoning takes over mind.

Intellect shows the path to come in touch with ones own inner truth, becoming truly aware of oneself. Self realization/self introspection changes the attitude of a person. After knowing ones strengths and weaknesses, rise above ‘I, me and myself’. It makes a person to put stress on life principles, understand better oneself and other people around without bias, make more intelligent choices and stay calm in the face of crisis and chaos.

Modern education led to ‘Intelligence’, but not to ‘intellect’ – Modern education has made people intelligent and knowledgeable, but could not develop the ‘intellect’ of people properly. Revolutionary developments in the areas Science and technology, information technology and mass media made all kind of knowledge accessible and organized knowledge, but could not guide people to organized life.

Deficiencies of modern education system – Modern education, which has been inherited from the British, has brought social awakening and awareness all over India amongst Indian people. But there are also certain deficiencies in it. Internally, as Mahatma Gandhi had pointed out long ago, modern education based on colonized British Grammar School type education has deprived masses. English medium has put undue strain upon the nerves of the Indian students, made them crammers, imitators and unfit them for original work and thought. India’s massive human resource needs to be cultivated through sound system of education and training to get out of the rut of mediocrity.

Ignored the culture of heart – Modern education has ignored the culture of heart and hand and confined itself simply to head. It has made people aware of their rights, but unfortunately not about their duties. It has pushed modern youth away from their roots and their own culture, which advised them to adopt a self-restrained and self- disciplined life style, to learn to be contented, honest and willing to help others; to observe austerity, simplicity; to maintain cleanliness of diet, body and mind and; not to waste energy or over-indulge oneself in wasteful and destructive activity. In short, it advised people to rise above the animal instincts hidden inside human-beings.

Pushed people away from their indigenous culture – It has not taught youth of the day to have pride in their surroundings. More modern and advanced they become, the farther they are removed from their surroundings and at the end, becoming estranged from their surroundings. People basically become miserable when they are cut off from his source of life- one’s roots.

Today, people are loosing their natural character, because they are getting away from roots, from their traditional aspirations and values in preference to the western materialism. The traditional culture in its true form can still give to the people, a purpose to live for and ideals to be achieved. Modern educated intelligentsia needs to stop imitating the ‘West’ blindly.

Suggestions

Common men in India still have faith in good intentions and wisdom of their ancestors, who have contributed in developing the culture of India. Rajgopalachari has said, “If there is honesty in India today, any hospitality, any charity— any aversion to evil, any love to be good, it is due to whatever remains of the old faith and the old culture”.

Today, when Indians are getting away from their roots, it is important to keep their feet firmly on the ground and to instill right values in them. In recent past, traditional values have lost their sanctity and developed many distortions because people started following them blindly and in a wrong way. It developed a widespread misunderstanding. Apathy of people towards the value system of Indian society has generated caste-conflicts, feudal oppressions, exploitation of vulnerable sections of society and mass poverty. Only after understanding the rationale behind them, people should follow them systematically.

Traditional value system still gives to the people, a purpose to live for and ideals to be achieved. Blind following quite often leads to practice social customs and practices incorrectly or in a wrong way. Later on, with the passage of time, there develops many deformities into the system and harms the whole of the society. All the principles, rituals or customs of ancient India should not be followed blindly without understanding the logic behind it.

But there are some values and systems, which are still relevant and inspire common men to lead a disciplined life style. After evaluating its worth in the light of present circumstances, people should follow them systematically. Modern times and circumstances have changed completely especially after 1970 with information technology revolution. There were many things which the ancestors did not know like World Wars, nuclear weapons, technological advancements in the areas of media, transport, and communications or in the world of computers.

Education should guide youth to have a clear-cut vision of one’s responsibilities and a balanced approach towards one rights and duties, which is a must for any matured/civilized society. It should lead to positive thinking, which could channelize human efforts in proper direction, make vision broader, thinking flexible, increase openness to information and enhance spirit to work hard. Discipline and productivity are also necessary for a sound system of education.

Modern intelligentsia, who have some faith in traditional values and system welcome the rationality and other good features of Modern education, but wish to remain firmly rooted to Indian Culture.

Reformers and intellectuals have shown their anguish at the declining moral and ethical standards and discipline of the modern society. They try to combat negative forces like deceit, treachery, violence, crimes and degradation of values and make the society a better place to live in. There is enough goodness inside and around every human being. Only people need to channelize their ambitions, desires and energies towards right direction through sound education system.

In the recant past, it is not the principles, but the practices, which went wrong. Today, when Indians are getting away from their roots, nothing is more needed than the constant interpretation of past experiences and present circumstances. Present should be a constant challenge to the opinions of past. A value or a system, which in the light of modern times appears more effective and beneficial, should be replaced by a better one. At the same time, it would be suicidal to sacrifice ancient value systems to an increasing passion for change.

After raising oneself from ignorance, and with a rational and open mind, a person can understand the greatness of the Indian culture and its value system. A knowledgeable and civilized person like a jeweler should spot out gems from amongst worthless pebbles from this ocean of knowledge; pick them up and leave the undesired obsolete elements developed into it with passage of time. In a changing world, nothing can be more disabling than its idolization of past.

As a conclusion it can be said that “education is only a ladder to gather fruits from the tree of knowledge, not the fruit itself.”

September 20, 2014 Posted by | Education and training of civil services | 1 Comment

Role of ‘Education and Training’ in skill development

Introduction

For the sustainable development of nation, “education for all” and employment generating “skill development” are the fundamental requirements. India has all the basic resources – men (nearly 35% are the youth having some talent or the other), money and material. The only problem is to utilize the three by providing ‘education to all’ and honing their natural talents/skills through proper training.

Need for sound system of education and training – There has been a growing realization, in the recent years, all over the world that both ‘Education and Training’ play a very important role in skill development of youth, which together impart knowledge, shape attitudes, cultivate skills, build work-habits, and thus enable people to meet the challenges of modern times.

Present scenario in 21st century – World-over, almost all the national governments are facing in full blast many problems, especially after the ‘great economic depression’ of 2008. It is the time to make full efforts to improve economic situation, continuous modernization, higher productivity, improvement in the quality of service. In turn, it demands more trained people in all the spheres to increase productivity, and effectiveness and efficiency in service.

Necessity to impart new knowledge and new skills – The more the problems, better equipped should be the people to face the challenges and meet new demands. Not only that new challenges are being faced by the modern governments, knowledge in this space age, is growing faster than ability of individuals to handle it, especially after the info-tech revolution. Therefore, there is a necessity to impart new knowledge and new skills and to inculcate new attitudes in the people through a well-planned and systematic arrangement of education and training. A well-planned sound system of education and training could enable people to contribute to and guide the social changes and development into desired direction and help them to achieve the goals within time and cost parameters.

Issue – Generally people do not understand the distinction between education and training and its impact on work-culture. Education has unfortunately been misunderstood as something formal going to educational institutions schools/colleges for academic or theoretical studies, and acquiring degrees/diplomas/certificates. They expect that it would get them a respectable place in the world of modern callings. In a mindset, where Education is degree-oriented, there are always certain gaps between learning and practical requirement. Without Training these gaps remain unfilled. It is here that training becomes relevant. Therefore it becomes necessary to understand what education and training means?

Education and training, intertwined – Both education and training are intertwined in such a way that without one or the other, it is practically impossible/very difficult to cope with the challenges of modern world. Whereas education helps students to choose and decide their activity, training helps them to improve their performance in it. Education deals mostly with knowledge and understanding, training with understanding and skill. Training prepares to deal with the complexities of real work-life – pressures, limited resources, choices uncertainties and conflicting motives etc.


Role of education and training in skill development –
Thus, education covers the necessity of modifying behaviour, attitudes and beliefs. It develops an understanding about social and economic position and about public affairs in general. Training cultivates skills and build work-habits. It confines itself to the study of job-skills and knowledge related to a person’s immediate functions.

Education

Meaning of education – (‘Neti, Neti’ meaning unending process) Education is a continuous process and is identified with the complete up-bringing of the individual from the childhood. Education/learning never ends. It is a life-long/continuous process for complete upbringing of the individual right from his birth to death. At each and every, an individual learns something. Education is neither for a fixed period nor look only for theoretical or academic pursuits leading towards award of degrees/diplomas and certificates.

A relentless process – It is, indeed, difficult to define education. Education is a relentless process of becoming. It is growth and consciousness. A sound system of education develops the power of concentration, the capacity of attention and observation. It ensures physical, intellectual, emotional and ethical integration of an individual. It can be said that the ultimate aim of education is to establish a just and equitable social order, where every individual shall have opportunities to grow to one’s fullest stature, so that he may be able to contribute his utmost to the social well-being.

Develops mental and moral faculties – The development of the mental and moral faculties, which has a material bearing on the formation of character is the task of education. In its wider sense, it embraces reading, observation, thought and its proper application in real life. `Education’ helps a person to increase knowledge, under-standing and attitude, so they are better adjusted to their surroundings.

Education generates confidence – An educated person is sure of his knowledge and is keen to know more. He/she is able to create new knowledge and transmit it to others; to discriminate between right and wrong, to be honest in his dealings with others. He/she can resist evil and exploitation and work for the establishment of a peaceful, just, healthy and happy social order. He/she has a rational outlook and is able to resolve personal conflicts realistically. He owns responsibility and faces consequences; is bold and upright in the presentation of his views; appreciates other people’s point of views, qualities and virtues; and is fully conscious of his real self and his place in cosmos.

Purpose of education – The purpose of education, is human excellence, improvement in the form of thought and action and full control over one’s objective self. Human excellence needs to be conditioned by the prevailing norms of human behaviour in a particular society and is, therefore, a relative concept. As it is, the term `Education’ aims at increasing knowledge, understanding and attitudes of the candidates, so that they are better adjusted to their environment. It develops mental and moral faculties, which have a material bearing on the formation of character. In its wider sense it embraces reading, observation and thought.

Scope of education – Within its jurisdiction, it embraces the formation of habits, manners and character, and mental and physical aptitude. Education also opens out the world of job-market to students, so that they can choose their occupation/career and mode of living according to their interests, attitude and aptitude. The scope of education is much broader than of training.

Levels of formal education – Formal education is usually imparted –

1. Before entering into job-market and

2.After employment

Before entering into job-market – Before entering into job-market, the main aim of formal education is learning on the basis of study of facts, principles and data. A regular contact between ‘Teachers’ and ‘Students’ is primary, everything else gives way to it. It follows a set pattern and is generally conducted at three levels:

I. Primary education at School Level – School level education gives more importance to character forming. Its main task is of implanting in the minds of young children those values and attitudes that will influence their entire perception of life.

ii. Higher education at Secondary level and at University level – Higher level education at College or University level promotes innovative attitudes and depth of perception. It prepares workers/personnel for different occupations be general, technical or professional or medical. The lacunae in formal higher education is that it is academic in nature and teaches students about events, which are remote. The curriculum still remains purely theoretical and away from real life-situation.

Education after entering into a job – Understanding of various aspects of a specific occupation/profession is the chief objective of education after entering into a job. It is based more on “common-sense” approach. It is based on experiences gained, while dealing with the immediate, real, practical and specific needs/problems of different kinds of occupations/professions. Its programs are seldom definite and do not follow any routine. What is learned is usually applied immediately. It moulds and refines the attitudes of students to deal properly with challenges and hazards of real occupational life.

After completing the formal education, people generally enters into the world of work. At this stage, one realizes the value of training –formal or on the job.

Training

Role of training – Training is one of the primary means of building up competence and effectiveness of workers/employees all over the world. It provides participants with broad understanding of various facets of their respective work. Whether it is a developed nation or an underdeveloped or developing nation, training becomes necessary for action required for achieving desired goals.

Meaning of training – Training is job-specific. It enables people to apply knowledge in their real work life. It is primarily concerned with preparing the people for certain lines of action, which are delineated by technology and by the occupation, in which he engaged. It is an approach to improve the output – quantitatively and qualitatively. It is a process, by which the attitudes, skills and abilities of trainees to perform specific jobs are increased. It hones natural talents of the people and prepares them to skills, which they do not possess, but are necessary for doing their jobs efficiently, of which they are a part.

Training, a self-generating action – There was a time when force was used for getting a job done or for a change, but effect of ‘force’ is short-lived. It is only training, which can lead to sustained, self-generating action. Capacity-building through training promises inculcating that expertise which is essential for using modern technologies properly. It is essential for economic development as well. It inculcates flexibility in action through understanding and confidence, inventiveness, initiative and ability to make decisions and also respect for the contributions of others and readiness for collaboration with others.

Objectives of training – There are different and specific objectives for different occupations and organizations at different levels. In any profession, training at initial level cultivates skills for specific jobs. At middle and senior levels stress is on human development. Obviously, development of the human resources at this level would require cultivation of the mind; cultivation of the heart to enable trainees to acquire adequate social sensitivities and appropriate patriotic zeal and public spiritedness; and the cultivation of right attitudes and behaviour patterns towards the job, toward the seniors, towards the juniors and ultimately towards the people at large. At higher level personnel need to be trained in the art of rational and quick decision making.

There is a general consensus on the following aims of training –

  • To produce employees, whose precision and clarity in the transaction of business can be taken for granted.
  • To attune employees for the tasks, they are called upon to perform in this fast-changing modern world. It constantly and boldly adjusts their outlook and methods to the new needs of the new times.
  • Not to allow workers to fall into the trap of becoming mechanized. A new entrant, from the start, is made aware of the relation of his work to the service rendered by profession/occupation to the community. The capacity to see what he is doing is a wider setting makes the work not only valuable to his organization but more stimulating to himself.
  • To direct, not only for enabling an individual to perform the current work more efficiently, but also equipping him for other duties and appropriately develop his capacity for higher work and greater responsibility.
  • To develop and maintain morale of workers to offset the dull monotony of routine work.
  • To inculcate right attitude towards others occupations.
    Training at higher level needs to focused, additionally, on:
    • Improving the capacity of making correct judgements and take timely decisions;
    • Increasing the willingness and ability to accept responsibility, to delegate authority and to develop subordinates;
    • Developing an appreciation of the value of time and efforts of others;
    • Developing a concept of personal integrity and public responsibility.
    Informal training – Informal training (on the job) is learning on the job. It has been the traditional method of training for the workers engaged in different occupations. Earlier it was considered that any worker in any occupation, having common-sense, judgement and attitude and aptitude could understand easily the essentials and responsibility of his profession well and could do his job well. It was, therefore, considered to be the only way to train most of the workers/professionals.
    • Learn from their mistakes – Informal training as has been said earlier, is training individuals on-job so that they could learn from one’s own mistakes, and acquires required skill through practice. It is a continuing process running through the entire career span of an individual. There are no set procedures for informal training. It automatically comes out of day today relationships between an employee and his colleagues in horizontal formation, between an employee and his juniors in downward vertical formation and between an employee and his seniors in upward vertical formation at meetings of professional associates or reading and study that a person does on his own initiative or at his superior’s suggestion.
    • Responsibility of seniors – Since such a training is not backed by compulsion, but is more or less self-inspired, motivation is necessary. Besides, the ultimate success of informal or on-the-job training depends upon the interest, experience, sincerity, knowledge, skills and attitudes of the co-workers, especially seniors.
    • Seniors to spare time to train new-comers – It is necessary in the interest of a profession/occupation that its seniors find out some time to devote on youth working under them, so that the later can achieve something from the experiences of their seniors. If seniors are not able to guide and train their juniors properly, due to one reason or the other, very little positive results can be achieved. It, however, should not lead to the situation of “spoon-feeding”. It should be a judicious mixture of self-observation and guidance by seniors.
    In modern times, complete reliance on on-job training not desirable – Complete reliance on on-the-job training – a training by trial and error, alone is neither possible nor desirable. In the present space age, when knowledge is growing faster than one’s ability to handle it, it can perpetuate outmoded methods of work, generate resistance to change and reform. Therefore, a well organized system of formal training becomes necessary.
    Formal Training – Formal training aims at inculcating skills by well-defined courses at proper stages in one’s career as also updating the stock of initial skills or knowledge. Formal training can be divided into following groups –
    a. Pre-entry training- :- The purpose of pre-entry training is to prepare trainees for different kinds of work in general, as requirement of various organizations dealing with same profession vary widely. Education given in vocational/professional institutions may be called as pre-entry training. Pre-entry training is available for professionals as Engineers doctors, managers, accountants, lawyers, etc.
    b. Orientation or foundation training: Foundation training program equips a new recruit with conceptual, technical and human relation skills as applied to the organization, he joins. In any occupation, where pre-entry training facility is not available, foundation training program becomes necessary to orient and model the new recruits. Foundation training also brings the professionals, drawn from heterogeneous segments of society with divergent educational and cultural backgrounds, together in present scenario. Foundational training program may range in duration from a few weeks to a couple of years. Some of the main objectives of foundation training could be:
    – To acquaint the new recruit with the people, with whom he has to work, and the atmosphere, in which he has to work. It helps him to know the rules, regulations, privileges, hour of work, leave, pay-days etc., within a short period;
    – To familiarize him quickly with some of the history and general objectives of his organization and its relation to the rest of the departments/Ministry;
    – To prepare and make available to the new recruits list of materials and references that he needs to become familiar with the job;
    – To explain the new employee the organizational set-up of his work-place, with its lines of authority, so that he may know to whom he is to report, from whom he is to take directions and the limits of his responsibilities;
    – To help the new entrant to analyze his position, the analysis should include a list of various duties of the position, why each is important, how to do it and some measure to know how well it has been done;
    – To develop in the employee the habit of taking his requests for information, his problems and difficulties to his seniors/more experienced persons for solutions.
    In-service Training or training while on job:- To take over the training tasks initiated by foundational training and to fill in the gaps inherent in the informal process of on-the-job training, in-service training comes into the picture. In-service training is a development of a very recent origin as against foundation training, which has been around for a longer time. In government, training has come to be greatly valued in recent years because of the growing awareness that developing countries need to improve their administrative capability in order to achieve their national developmental objectives.
    Difference between foundation and in-service training – Though both kinds of training aim, broadly, to achieve improvements in the quality of working, the difference between them are striking. Foundation training aims to introduce the new entrant in the profession about the working environment of their occupation and prepares them for responsibilities, they are to shoulder in the coming years. The aim of in-service training is to give to the persons already in world of jobs exposure to new developments in relevant fields, so that they are able to cope with the changes in the world of work. Basic subjects and fundamentals of work are the main course content of the foundation training, whereas it becomes more specialized in in-service training, as participants have acquired work experience.
    In today’s environment, the pace of change has accelerated tremendously. Knowledge acquired through training at the starting point in career would be inadequate to deal with the present situation, which is constantly in a state of flux. Also, Foundation training occurs only once at the beginning of the career. In-service training may occur at several points during one’s career. It may not even occur at all in one’s career. It has been felt that training can-not remain a one shot affair. One need exposure to training at several points during one’s career.
    In-service training to fill the `gap’ between the “required” – In=service training programs are essentially designed to fill the `gap’ between the “required” and the “available” performance levels in terms of knowledge, skills, attitudes and habits. It either enables the civil servants to perform their “existing” duties and functions effectively or prepares them to assure responsibilities on promotions to higher positions competently. It becomes necessary for the new job responsibilities to be created in response to the organizational functional or technological changes.
    Role of in-service training – In-service training provides one way, in which the organization can assist the individual employee to develop his abilities. The need for training after entering into job-market service is particularly apparent in the present scenario. New skills and orientations needs to be constantly acquired by the employees for the rapid introduction of new programs, the utilization of new technology and changing the environment, where they work for better future. The importance of training programs goes even beyond the need for specialized skills or information on new policies. Through training employees develop awareness about the expectations of the people, government or their respective organization from them.
    Difference between the methods of foundation and in-service training – The teaching methods of foundation training are same as those in use in universities, colleges with minor modifications (attachments, visits etc.). Methods used for in-service training are participative, inviting more involvement of the trainees in the learning process through discussions etc. Participation is obligatory in the case of foundation training, whereas in the case of in-service training participants have a choice. Groups of large number are fairly common on foundation training, whereas it is limited purposely in in-service training.
    Shorter duration of in-service training – The duration of foundation course is usually long. In the case of in-service training it is necessarily of a shorter duration.
    In-service training is concept-based or technique-based – In-service training is an opportunity for formal training provided at appropriate time intervals in appropriate areas, either concept based or technique based. It provides the basic input for raising levels of performance and efficiency in administration and for improving its health and culture. It is a systematic process, designed to help the participants to develop professional knowledge, job-oriented skills and the desired attitudes to enable them to function efficiently and effectively thereby fulfilling the organization’s goals and objectives.
    A tough job – The main objective of the in-service training is to replace old unproductive habits by productive ones. The risk of training already on job people is much more complex difficult than that of training new entrants. New entrants are not conversant with the situation and do not possess any experience with regard to the functioning of government. Hence whatever instructions are given to them are taken for granted. It is a kind of intrusion into an existing pattern of behaviour or belief. This creates resistance to change. With a view to making in-service training effective, it is essential to “unlearn” old habits, which are to be replaced by new ones. This is only possible, if trainees are exposed to new learning in such a way that it does not create much ambivalence between previous habits and the new ones desired.
    Post-entry training: Post entry training is not directly related to the work of the trainee, but it ultimately helps the organization. Continuing education and training is a phenomenon recently emerging worldwide. Organizations are encouraging their executives to take study leave to enable them to keep themselves abreast of new or emerging trends in management/administration. The aim of executive learning programs broadens the mental horizons of the top executives and managers and equip them with realistic, practical public policies and leadership education that is relevant to their professional and personal educational goals. It creates a smarter workforce with high rate of technology absorption. It gives them greater scope for growth.
    Pre-requisites for making training programs successful – Following are the pre-requisites to make training programs successful –
    • Identification of training needs:- Effectiveness of training largely depends on right diagnosis of training needs – a task which calls for patience, objectivity, time and management support. Since the training need are, in the first place, organizational need – an in depth study of organization would be a necessary starting point for solid and sound identification.
    • Analyze purpose of training – Pressures for change from within or outside in any organization, may need expansion, adopting new technologies, developing new functions and re-organising existing functions and through a variety of other possible ways. Pressures for change organizational changes, in turn obviously, becomes, in turn the pressure on individuals to change of their mindset and working style. To deal effectively with the impending new jobs and situations, individuals find that they need new knowledge, understanding and skills, which perhaps can be acquired through training alone.
    • How to identify training needs? :- The analysis of training needs can be done organization/occupation-wise, individual-wise, category-wise, level-wise or function-wise. The two techniques commonly used in job-analysis are –
    – Job-observation and
    – Interviewing.
    For proper identification of training needs one has to study the organization in terms of its objectives, policies, functions and method of work and to look into the cases and causes of delays, errors, mistakes, the method and channels of communication, to analyze the behaviour of personnel within the organization; to look into plans for expansion or reorganization or changes contemplated for future.
    In doing so, due attention demands to analyze the `felt’ needs, the `perceived’ needs and even the `induced’ needs. The performance gaps, at different levels of workers/personnel have to be clearly identified. It is also essential to determine the critical stages `when’, `how’, `how long’ and `where’ the training should be given. These are not easy questions to answer, as due attention has to be paid to requirements of `personal excellence’ as well as `organizational effectiveness’.
    • Identification of learning objectives: For making training successful, it is necessary to establish proper learning objectives in respect of each category or level of officials to be trained. A proper identification of training needs makes the task easy. The learning objectives should be specific, measurable and testable, to be purposeful. For this purpose, one must be very clear about the nature, the form and the extent of change intended to be stimulated, induced or effected in the individual behaviour, the work systems and the organizational effectiveness. There are four possibilities open for a training institution to match its training goals with the organizational needs:
    o The institution can publicize its training goals and the training strategies it prefers and its competence to use, to enable organizations and individuals to take advantage of such training facilities.
    o To design tailor made training programs by meeting senior persons of the organizations intended to be served. It shows clearly the institutions’ interest in working closely with the organizations, whose need it expects to meet.
    o Training institutions can acquire detailed information about the changes in the jobs for which the organization wishes to prepare itself through training. If the requirements are general and call for a series of programs, it can help the organization to work out a comprehensive training plan ahead of time.
    o There is final advanced relationship, in which the institution and the organization are in full collaboration, full-fledged, played-in partners in an enterprise of importance to both of them.
    Once the training needs are established and the objectives of the program becomes clear, the actual phase of as how to conduct the program starts. This calls for various activities, such as management of training itself and management of human and financial resources. In designing a training program, stress needs to be on experimental and practical forms of learning, rather than on theoretical academic or routine learning.
    A well-designed course will be able to cater to such groups within the limitations of time, and also be able to expose them to all that is relevant in their fields. For the success of training of workers, it requires the use of experimental training techniques and high degree of involvement in the process of learning. The methodology of training should emphasize sharing of experience and trainers should provide the frame-work for meaningful discussion of practical issues and problems.
    • Support of seniors: Top level support for training is necessary for the success of the training efforts. The training efforts should adequately be appreciated and supported at senior levels. The support of top-level management is needed at various steps such as while identifying training needs or while designed course content, or while nominating the trainees etc. Without top-level support, training becomes unable to produce the desired results.
    • Selection of trainees:- Effectiveness of any training program would largely depend upon the selection of right type of personnel for right type of program. The selection of trainees should be based upon the potential, accomplishments and performance of a person. Priority should be given to those officers, who have demonstrated initiative, enthusiasm and creative effort.
    • Evaluation:- Evaluation is a necessary feed-back tool for making successive training program effective. Through evaluation, the results achieved can be compared with objectives laid down by the sponsoring authorities, by the training institutions and by the trainees themselves, and the areas of shortcomings, pitfalls, bottlenecks can be isolated for remedial measures.
    Winding up
    It can be concluded that‘Education and Training’ play a very important role in skill development of youth, which together impart knowledge, shape attitudes, cultivate skills, build work-habits, and thus enable people to meet the challenges of modern times.Sound education and training can do much to improve the capability of youth and thus lead to faster economic growth and social change. Education and training of an official is not entirely a responsibility of the Government. Every person by himself should try to seek the opportunities to advance his knowledge and educational qualifications. At the same time government should be liberal in providing enough/proper opportunities to educate and train all its youth.

    August 17, 2014 Posted by | Education and training of civil services | | 4 Comments

‘Quota system’, ‘Affirmative Action Program’ and ‘Reservations in Government jobs’?

latasinha:

“Authority without wisdom is like a heavy axe without an edge.” Anne Bradstreet “Work is worship. There is no substitute for hard-work” INTRODUCTION ­ Biggest experiment of Twentieth century – Policy of Reservations in government jobs is one of the biggest experiments in the history of Twentieth Century. It is a very sensitive issue. It was started to uplift the submerged sections of Indian society, to protect their rights and to overcome the cumulative disparities of power, wealth and culture existed among various sections of society. From its very nature, the policy is discriminatory and exclusive. It empowers state authorities to give preference to one or more groups in the society to exclusion of others and encroach on domain of right to ‘equality to all’. Of late, it has become a source of considerable controversy, as it also involves emotional feelings of right-conscious people. “Reservation in Government services” – Reservations in government services involves two contradictory principles – one, the principle of “Efficiency in administration” and the other the principle of “Social justice”. Reservation Policy aims at improving the lot of backward sections of society and empowering them for a better future. For a successful administration the keynote is efficiency, which means right people on right positions at right time. An efficient administration can provide convenience to the public at large, and attain the developmental and welfare goals of the nation within time and cost parameters. It could secure maximum results with minimum labour and resources. However, Reservation policy suggests, as understood by Indian authorities, to appoint less- qualified persons on the crucial positions of power structure by relaxing the standards and fixing up a separate quota for each of its weaker sections. Issues The question arises, is it possible to find out a way, which can keep a balance between the two contradictory principles? Is it not desirable to make weaker sections strong and eligible first and then facilitate their entry into such services of the nation? How can a capable and confident team from amongst vast majority of backward people be prepared to shoulder responsibilities of administration judiciously? What is Reservation Policy Dictionary meaning of Reservations – According to the “New Webster Dictionary”, reservation means “Keeping aside something for some specific purpose.” In the Indian context, Reservation Policy refers to a situation, wherein to uplift the sub-merged section of society, some jobs and other facilities are especially reserved in various institutions/organisations, so that they could be brought back into the national main-stream. Historical background Social systems and values in India – Hindu society was classified in four functional groups known as “Varna” – the Brahmins to preach, the Kshtriyas to rule and defend the community, the Vaishyas to carryon the business and the Shudras to do the menial jobs for the society as a whole. Ancient Indian society was dominated by Hindu community. It had produced an excellent culture. Though there existed no political entity as an Independent Nation-State except for a brief period, but its culture had bound the people of this peninsula for ages from one end to the other. The system worked well for a long time. So much and so, that India was known as ‘Sone ki Chiriya’ ( A Bird of Gold) Developed deformity with passage of time – In ancient India, numerous social groups came to India in waves at different points of time and desired to join the mainstream. All of them were assimilated into it without any conversion by giving each one a different caste name. It gave rise to the caste-system. Then Turks, Afghans and Mughals continuously invaded India. Earlier, they drained out the wealth of the nation to foreign lands. But afterwards, they conquered and made India their homeland. There had been alien rule in the country for centuries, first of Mughals rule and then of British. As time passed, there developed many distortions. The society got divided into innumerable castes and sub-castes within each of four Varnas. Disparity and inequality grew amongst them with the passage of time. Pathetic condition of Shudras and untouchables – By the beginning of twentieth century, the most pathetic condition was that of Shudras. They were illiterate and economically deprived. There was discrimination against the Shudras in every sphere of life, from living to work to social status. Worst of all was the position of “Untouchability”. Reformative movements of nineteenth and twentieth centuries – From time to time, nationalist leaders and social reformers tried to remove the inequality and injustice prevalent in the society. At times, the lower caste people themselves rebelled against prejudices. Efforts to uplift them and eliminate all forms of exploitation started with the emergence of Reformative movements during the end of the nineteenth century and beginning of the twentieth century like Arya Samaj initiated by Swami Dayanand, or “Achutodhar” by Gandhiji. Intelligentsia of that period gave serious thought to the problem and conveyed the message that the inequality in the society should be finished. It was also impressed upon the masses that “Abhava” (Scarcity), “Agyan” (Ignorance), “Annyaya” (Injustice), and “Alasya” (Laziness) were the sources of all the evils prevalent in the society. Concurrently, the British government in India chose to help the weaker section of the society by opening up the doors of education for all and bestowing upon them some special concessions and preferences through the policy of fixing up Quotas (former form of ‘Reservation policy’) for different communities in the later half of the Nineteenth century. Start of ‘Quota system’ in India Deprivation no longer acceptable in modern world – Various revolutions like the French revolution, Bolshevik revolution, Industrial revolution and other contemporary developments during the nineteenth and twentieth centuries made the people alert and aware of their rights. Misery, ignorance and economic deprivation, which were ear liar accepted as one’s lot, were no longer acceptable. Masses desired to get benefitted from the resources of the nation – Masses started wishing that they themselves should be benefited, as much as possible, from the resources of their nation. Millions of people started demanding with persisting insistence better facilities in life – they demanded protection from five major evils of an underdeveloped or developing society – want, disease, ignorance, squalor and idleness. Desire to establish a new economic order – The public desired to go forward quickly and to establish a new economic order, in which common man and weaker section of society could have better deal. It forced the national governments to take upon themselves the responsibility of protecting and nurturing them in such a manner that they got enough opportunities to grow, to their fullest stature. Scene after World-War II – After World War II, “Laissezfaire” theory of government’s function gave way to the concepts of “Welfare State”, and “Development Administration”. These concepts aimed at bringing about “Social, political and economic justice” and “Betterment to the lot of the submerged sections of the society” by building up a rapidly expanding and technologically progressive economy, in which the downtrodden could have a better deal. With the general acceptance of these concepts all-over the world, the national governments gradually assumed the responsibility of welfare of all its citizens from “Womb to tomb”. Specific concessions, protections and assistance were given to the weaker sections of society in one form or the other all-over the world. In India, one of such protections adopted has been “Reservation Policy”. Many Provincial Governments, especially those in the South, had fixed up quotas for different castes and minorities in educational institutions and government jobs. It was done much before Dr. Ambedkar demanded Reservations in Government jobs and separate electorate for the backward castes – a demand conceded by the British Governments in 1932. Interestingly enough the Government of India Act, 1935, did not contain any specific provision for reservation. It, however, contained a few Sections (Section 275 and 298) which indirectly dealt with the subject through “Negative Protection” to those suffering from disability by reasons of race, religion, place of birth, descent, colour or any of them. The reservations in the Central services started since 1943, whereas the ST’s became eligible for reservations since 1950. Scene after Independence There has been a perplexing diversity in geography, culture, caste, religion and language in India. Along with it, there has been a great disparity between different sections of society – socially and economically. The attention of national leaders was drawn towards illiteracy, ignorance, superstitions, and taboos on food, drink and marriages, social segregation, lack of communication, living in inaccessible areas, unhealthy loyalties, continuing discrimination and lack of security­ economic, social and legal. To give underprivileged a fair start – National leaders desired that in the free nation, every individual should be given fair start, equal opportunity and square deal in the struggle for survival, To give these downtrodden a fair start, the Constitution framers allowed the central and state governments to make provisions for reservations for ten years and empowered the Parliament to extend the period, if required. The aim was purely to uplift and absorb lower strata of society into the echelons of power. Primary Goals – After independence, India, being a democratic country pursued the principles of ‘Welfare State’ and ‘Social Justice’ after the Independence. The primary goals, set by the Constitution framers, for the independent India were: •To build a self-reliant nation through optimal utilisation of its resources. •To establish an egalitarian and tolerant society based on the principles of justice, social economic and political, and •To ensure to everyone equality of status and opportunity. Views of some of the members of Constituent Assembly •BR Ambedkar – According to Dr. B.R. Ambedkar, the founder of reservation policy in India, ‘Principle of Varna’ is responsible for start of reservation as a government policy. ‘Varna system’ has divided Hindu society into four groups – Brahmins, Kshatriyas, Vaishyas (Savarna Hindus) (Savarna Hindus) (Savarna Hindus) (Savarna Hindus) and Shudras (Avarna Hindus), which included Low Castes, Primitive Tribes, Untouchables and Criminals. It was the pathetic condition of Avarna Hindus, who were far away from the mainstream and progressive influences. Till now, Avarna Hindus were given neither fair start nor equal opportunity nor square deal. According to Ambedkar, lower castes did not have the courage to demand reasonable wages for their labour. They did not hold property (Land or cash) – they were born to work or starve. They were there only to wait, serve and submit. They were there to do or die. •Giani Gurumukh Singh Musafir – Giani Gurumukh Singh Musafir, a member of the Constituent Assembly felt that we had made the Harijans live in very poor condition for hundreds of years. He, therefore, observed during the Constituent Assembly Debate on November 29, 1947: “Now when India has become free, it becomes the first and foremost duty of Central and Provincial Governments and of every Indian to see that these crores of downtrodden men are uplifted.”…. “They should be provided water, housing and education.”…. “So long as these depressed classes have this idea amongst themselves that they belong to this particular sect, so long as they think that they have this label affixed to them, it is difficult for them to progress. The very names give them this complex that he belongs to a depressed class.” •Shri Subhash Lal Saxena – Shri Subhash Lal Saxena, another member of the Constituent Assembly, said during the Constituent Assembly Debate on same day as Giani Gurumukh Singh Musafir i.e. November 27, 1947: “If capable Harijans are available, they should be recruited to superior posts. Besides the ordinary posts, the Harijan should be given all such jobs for which they are eligible. Harijans should be recruited in the Police. They should be given the post of Patwaries, School masters and Head masters etc. These posts would remove the inferiority complex, which is prevailing among them.” Special clauses in the Constitution to uplift downtrodden There is a perplexing diversity in geography, culture, caste, religion and language. Along with it, there has been a great disparity between different sections of society, socially and economically. The attention of national leaders was drawn towards illiteracy, ignorance, superstitions, and taboos on food, drink and marriages, social segregation, lack of communication, living in inaccessible areas, unhealthy loyalties, continuing discrimination and lack of security­ economic, social and legal. Clauses to take special care – For the emancipation of the ‘Submerged people’ of India, the National leaders thought if independent India made the weak to stand and compete with the strong on equal footing, it would be throwing the dice in favour of the strong. Therefore, they authorised the State to take special care of the downtrodden for their advancement through Article 15(4) primarily relating to educational opportunities and Article 16 (4) to job opportunities. Directive principles, through Articles 38, 39, 41, 43, 45, 46 etc. gave some guidelines to the future Government. In order to bring millions of under-fed, under-read and under-clothed people of free India into the mainstream of national life, Article. 17 of Constitution of India abolished “Untouchability” and made its practice a cognizable offence the most heinous aspect of the Indian society by. Article 15 guarantees equality of opportunity for all citizens irrespective of religion, race, caste, descent, place of birth or any other reason. Reservations for downtrodden – As the things came up, 15% Reservations are given to SCs, 7.5% to ST, 3% to disabled and 1.5% to ex-army-men in the following areas – 1.Political institutions consisting of the elected representatives of the people. 2.Admission in educational institutions. 3.Reservations in jobs. 4.4. Reservations in promotions. Reservations in Government jobs – After implementation of the Constitution, 15% reservations are being given to SCs, 7.5% to STs (initially from 1950 onwards 5%, but now) and 27% to OBCs (after 1992) in jobs under central government. Reservations in the Central services started since 1943, whereas the ST’s became eligible for reservations since 1950. All state Governments had their own plans for job-reservations in their respective states and list of beneficiary castes. At provincial level, different state-governments fixed up their own quotas for different castes and communities. Also, candidates, belonging to reserve quota, if succeed to get jobs on their merit, are not counted in the quota list. That means the number could even be more than mentioned above in a year. Besides if the candidates with required qualifications are not found in a particular year, the unfilled vacancies are carried over and added in the next years. These can not be filled with other qualified persons. Started as a temporary measure – Reservation was accepted by the constitution framers as a temporary measure. Article 330 provided for reservation in Legislature for ten years, unless at the end of this period the reservation is continued by an amendment of the Constitution. However, the Constitution was amended again and again in 1961, 1971, 1981, 1991 and 2001 to extend this period for another ten years at each instance. Constitution on De-reservation – Before Independence, there was a provision of reservation in government services for Anglo-Indians. Article 336 of the Constitution provided that for the first two years after its start, reservations (in favour of the Anglo-Indians – a minority community) should continue on the basis as before; then during every succeeding period of two years, this reservation is to be progressively reduced by at-least ten percent, so that by the end of ten years all such reservation might cease. Reservations for OBC’s – In 1955, Kaka Kalelkar Commission on Backward Classes and in 1980, MandaI Commission, were appointed to suggest ways to improve the condition of poor people in India. On August, 1990, V.P. Singh’s Government accepted to implement, partially, the suggestions made by MandaI Commission viz. reserving 27% jobs for “Other Backward Castes” in all Central Government institutions or institutions aided by the Central Government. It received a great deal of resistance from the people and at the moment the case for reserving 27% seats in jobs for OBC’s is under litigation in the Supreme Court of India. Condition of Constitution for Reservations While the Constitution framers were dealing with the topic, special provisions relating to certain classes specifically mentions that as far as the government services are concerned “The claims of the members of Scheduled Castes and Scheduled Tribes shall be taken into consideration, consistent with the maintenance of efficiency of Administration, in the making of the appointments to services and to posts in connection with the affairs of the Union or of a State”. Other Measures taken to uplift submerged sections – Under Article 340 of the Constitution, a Commission is to be appointed by the President to investigate the condition of socially and educationally backward citizens, the difficulties under which they labour, make recommendations for removal of those difficulties and other ameliorative measures needed to be taken. In 1978, a Commission for SC/ST was setup within the Ministry of Horne Affairs to monitor the comprehensive programme and to ensure their all- round development. The financial allocations for the welfare of downtrodden have been increased tremendously after independence. The sincere effort towards their development began with Five Year Plans, which aimed at reducing the imbalances and disparities. The First Five Year Plan identified the problem areas needed to be tackled viz absence of communication, paucity of drinking water, supply and irrigation, education and health facilities and universal poverty etc. Accordingly, many Integrated Development Plans and Sub–Plans were initiated besides reservations. Views of pro-reservationists Policy of reservation has been hailed by it supporters as a “Historic step” the advocates of reservation. To them policy of reservation has been adopted to break the shackles of caste and to improve the lot of the poor masses. Arguments in favour reservation policy – •Under-represented in power echelons – Backward castes constitute about 80% of total population (15% Scheduled Caste, 8% Scheduled Tribes and 52% Other Backward classes), but their representation in the Central Group ‘A’ posts is a paltry 4.69%. Therefore, supporters of reservation policy demand that employment in government services should be on pro-rata basis. •‘Due share’ to lower strata in power echelons – Founder of Bahujan Samaj Party, Kanshi Ram said, “The reservation for SC/ST began with only 2% in 1935. Now it is 22.5%. Gradually all reservations would be according to proportion of different castes in the population. My aim is to give reservation (to the upper caste minorities), not to demand it. V.P. Singh has made my job easier.” Ex Prime Minister, V.P. Singh, Prime Minister from Janata Dal, while implementing the MandaI Commission recommendations in August, 1990 said in his independence-day speech, “We want to effectively give to the depressed, downtrodden and backward people their share in the power structure and in decision-making to run country and improve things.” ◦Suppression of downtrodden for centuries – Lower castes had been treated unequally in the past, now they should be given a more than equal status to make empower them. Competition could be just and valid only among equals. Since upper castes had suppressed lower castes on basis of their birth, present generation has to correct age-old imbalances and make reparations by giving downtrodden advantage through reservations. It is a noble and just cause in return for centuries of oppression. ◦Why merit could be diluted? – Forward castes are better educated and settled because of the environment, in which they are brought up. But deprived castes, in absence of proper environment and economic constraints are unable to compete on equal terms with upper castes for jobs in the government, public or private sectors. Besides educational capabilities and economic status, socio-political dominance of upper caste is a powerful factor influencing selection process. Witnessing all these aspects social justice demands that jobs should be shared with backward even at cost of little dilution of meritocracy. ◦‘No’ to economic criteria – On economic criteria for reservations, V.P and his associates oppose the idea, saying that it was introduced in Tamil Nadu in the past, but did not worked there (Times of India news item on September 4, 1990). ◦Foundations of Reservations social, not economic – “All foundations for government’s reservation policy were social, not economic” says Ram Vilas Paswan “Each caste is standing with one foot on the forehead of the one below it in the social hierarchy…” Shri Ram Avdhesh Singh, a M.P. of Lok Dal says, “Even the rich backwards are not given the social status, which poor forwards enjoy. That is why we need representation in the government on caste basis, where wealth and respect go hand in hand. These reservations are not for the economic good, but to link backwards with the State.” (India Today, September 30, 1990) ◦To whitewash a bitter historical reality – Swami Agni vesh of Bandhua Mukti Morcha had said, “We have created our fractures and schisms – it was not the Mughals, it was not the British, it was the Vedas that consolidated the casteism in Indian culture. We can describe the reservation policy today as palliatives, an attempt to whitewash a bitter historical reality, sitting on a handful of armchair sociologists and pretending the rest of backward India doesn’t exist. That we need is radical social change.” ◦Empowers backwards as a composite pressure group – “Reservations, on the basis of caste, give the backwards an identity as a composite pressure group. This is a concrete achievement, which will help them to unite and fight for equality. Besides, caste is still a dominant factor in Indian social-structure; its existence should be accepted for recognising the under-privilege groups.” (News item in Times of India, September 15, 1990) ◦Merit not a prerogative of upper castes only – Merit is not found in upper castes only. There are many meritorious and talented boys and girls amongst the SC/ST/OBC. They only need proper atmosphere and opportunities for education and employment in order to shine to their full capacity. In old Madras Presidency, there were 100% reservation/job quotas, both for “Forward” and Backward” castes. Today about 68% seats are reserved for SC/ST/OBC in Tamil Nadu and Karnataka, and they are far ahead of other provinces in matter of prosperity and good governance, where there is upper caste domination in administration. ◦Norm of ‘pull’ and ‘push’ – Ram Vilas Paswan, ex-minister says, “There is no such thing as merit in India today, there is only “pull” and “Influence”…. “Merit” is only a term used for the purpose of disruption by agitators.” Shri Paswan asks why forward class does not look towards merit in candidates admitted in institutions of higher learning because of capitation fee or selected for influential posts because of their family background. ◦‘Bearer best knows where shoe pinches’ – V.P. Singh told the nation that society would be served best by filling the civil services by downtrodden as they were the bearers who knew where the shoe pinched. They had the qualities of heart, which the administration of the country needed more than the quality of head. They are committed to the uplift of their brethrens. Syed Shabuddin of the “Insaf party” had said, “In a democracy every social group is entitled to share the fruits of development and keep a hand on the levers of power…. Both intra and inter group disparities must be reduced by Legislative policies. If the backward classes come into administrative posts, they may be able to increase efficiency, as they will be having grass-root knowledge of actual problems.” (News item in the Times of India, September 15, 1990) In short, supporters of reservation consider necessary to empower the downtrodden, to reduce economic inequalities, to give them social respectability, to reduce imbalances created due to upper class influence and to break the psychological barrier, to give downtrodden their due share in power structure Views of Anti-reservationists Anti-reservationists doubt the efficacy of Reservation Policy. Reservation has been a source of turmoil in society many a time. They have shown their resentment every-time Parliament had extended the period for reservations. In seventies and eighties, the agitation against reservation policy took a major turn by taking a shape of national movement affecting many parts of the country. The agitation against reservation sparked violently in Gujarat in 1983 and spread to other places when a meritorious physically handicapped student of upper caste was denied admission in MD course and the quota student with much less marks was admitted. Such cases definitely arouse public sentiments and they criticise the government for following the policy blindly. Somehow the authorities were able to suppress it. But scars were left. •Contrary to principles of equality – Reservations are contrary to principles of equality, fraternity and social justice. There is something fundamentally wrong with Reservation Policy. In the name of social justice, fundamental rights of many deserving people are curtailed or negated. It benefits and increases the number of those, who are desirous to find an easier way-out. ◦Genesis of Reservation Policy in “Divide and Rule” dictum – Reservations were first introduced by the British rulers to “Divide” the Indian population and “rule” the nation as long as possible. The British government divided Indians on the basis of caste and community. British rulers, who got alarmed about the increasingly power and influence of Brahmins, purposely propagated myth of tyranny of the “Forward Castes”, especially of Brahmins over rest of the society. Therefore, British rulers pinpointed Brahmins as oppressors and tyrants, who wilfully kept others down. They encouraged anti-Brahmin formations in the South. They started the practice of fixing-up quotas in various educational-institutions and government jobs on one side and separate electorate for religious groups on the other. ◦Destroys unity of nation – Reservations were started in other parts of the country as well for backward communities. Now many politicians and their parties want to increase the percentage and extend its time-frame in order to create vote banks. Like Britishers, politicians and supporters of pro-reservation want to divide the nation, on the basis of caste, community or gender. Like British-rulers, they want grab and hold political power as long as possible. Already, there is a perplexing diversity in India along geography, culture, caste, religion and language lines. They are spreading venom in the heart of each identity against other. If not checked on time, communalism and casteism are bound to destroy the unity of the nation and narrow down the aspiration of people. ◦Administration requires services of most talented – The task of administration is one of the most difficult. It is so complex that it requires services of most talented, sincere, hardworking and honest people. A preference to a person with inferior talent over a person with superior talent is not only unjust but against national interests. Reservations in employment contemplates putting those on responsible positions in the government, “Who are not qualified for the job” – (Arun Shourie). And in the process, power passes from meritocracy to mediocracy (Nani Palkiwala). It also means that sub-standard services would be rendered to the general public. ◦Common-men suffer more – The policy of reservation affects adversely the efficiency of administration as a whole. Deteriorating standards of government institutions have already done irreparable damage to the development of SC/ST and OBC communities. The larger objective of eradicating the poverty and bringing the downtrodden in the main-stream could never be achieved by lowering the standards of education or governance. Does reserving a very few places for SC, ST & OBC satisfy the basic needs of millions of underfed, under-clothed and under-read people of India ? ◦Contributions of upper class – Kaka Kalelkar had said in, ‘Note of Dissent of First Backward caste Commission “It would be well, if representatives of the Backward-classes remembered that whatever good they find in the Constitution and the liberal policy of the Government, is the result of the awakened conscience of the upper classes themselves. Whatever Government is doing by way of atonement is readily accepted and acclaimed by the nation as a whole. The upper classes have contributed their share in formulating the policies of the Government. Removal of untouchability, establishment of equality and social justice, special consideration for backward classes, all these elements found place in the Constitution without a single voice of dissent from the upper classes.” Upper castes are still contributing their share through taxes (the money collected from taxes is supposed to be spent on developmental plans.) Somewhere, they are supporting, elsewhere actively participating in formulating developmental policies of the government. •Quantity of reservation quota – So long as “only a few places” were kept aside for those severely disadvantaged – Harijans and Girijans, the people tolerated the policy as functioning of institutions did not stand much risk of being vitiated and consideration of caste and community were placed under control. But, when V.P. Singh announced to implement 27% for reservation in jobs for OBCs, in addition to 22.5% reservation for SC/STs in government jobs, heart burning and stir against Reservation Policy passed all the limits. The whole nation was in for caste wars. •Ignores merit – Reservation policy as it ignores merit. In 1947, when the Constitution framers were dealing with the reservation policy, they showed clearly their concern for efficiency. Art. 335 directs that ‘reservations for SC/ST should be consistent with the maintenance of efficiency of administration.’ In today’s situation when economy is in shambles, inflation has touched 13%, coffers are empty, and common man is suffering due to inefficiency and mal-functioning of the government, the nation can not afford to ignore merit and efficiency. In Private Sector, survival and prosperity depends on merit. It picks up the best talent available in the country from the educational institutions itself by conducting “Campus interviews” and does not allow sub-­standard working. •Discourages development of skills – Reservation has discouraged development of skills, resources and attitudes in SC/STs needed to succeed without the crutches of reservation and has encouraged backwardness, inefficiency and lack of competitive merit amongst the castes enjoying reservation. •Making people lazy and increases mal-practices – People of lower castes have taken these concessions for granted and expect it to last for ever. It has made even competent persons amongst them lazy and complacent. Guarantee of share in power structure without much effort develops an attitude never value the dignity of labour and work hard. The reservation policy is adding fuel to this attitude. Obtaining false certification about caste is increasing in order to get the advantage of the limited spoils. It has raised the expectation of others as well. •Short time measure – In many provinces, scheduled castes were enjoying the benefit of reservation in proportion to their population since 1935. SCs were far away from the mainstream on account of “Untouchability” and STs because of “Social isolation due geographical reasons”. Therefore, Constitution extended State patronage to SC/ST for ten years i.e. till 1960, unless at the end of this period the concession is continued by an amendment of the Constitution, which was not very likely. It was hoped that underprivileged would be at least in a position to stand on their feet by 1960.Since then, everything has been changed. •Times have already changed – Successive governments have ignored the sweeping changes that have occurred throughout the country over the last 60 years. Through various measures, including Reservation Policy, people of all castes have progressed. Anti Brahmin movements in former Estates of Madras and Bombay had effectively eliminated Brahmins as a dominant political force. Lower strata of society had organized themselves, consolidated their economic and acquired political power. Through reservations they have succeeded in occupying position of power. •Shift of power in favour of Backwards – Political power has already shifted in favour of backwards, almost completely in the South and in massive strides in Bihar and UP, where they constitute nearly 40% of the Legislative strength. At State and local levels, especially in more populous rural areas their influence is continuously growing. Untouchables have made concerted efforts to mobilize themselves and to secure their upward mobility as may be seen in the case of Izhavas of Kerala, Mehars of Maharashtra, Chamars of UP, Meenas of Rajasthan, etc. Radical movement such as that launched by the militants Dalit Panther in Maharashtra have made the emerging strength of the lowest caste felt with increasing effectiveness. •Rigidity of caste wearing out – Rigidity of caste has been gradually wearing out. Introduction of railways, opening of hotels and restaurants, radio, TV and cinema houses have contributed to the relaxation of caste prejudices and rigidities. Besides education and training, land reforms, industrialisation etc have brought awareness amongst backward castes. The end of many practices, which created distances between different castes in the past, is a hopeful sign and guarantee for the future well being of every Indian citizen. •New lease of life to caste – There has been one sphere of Indian life, where caste has not only held its ground but began to strengthen its hold. It has acquired a new lease of life in politics. Politics is the most important sphere of Indian life, where caste has not only held its ground, but began to strengthen its hold. Politicians of Independent India are making its increasing use in politics. •Time for gradual de-legitimization of caste – Yogendra Singh, Dean of Political Science in the Jawahar Lal Nehru University says, “Forty years have seen enormous differentiation in class and caste division. Caste should not be the central element in dispensing social justice. In fact, there should be a process of gradual de-legitimization of caste by finding scientific methods for the exit of SCs and STs from the reserved quota.” (India Today, September 30, 1990) •‘Past is past’ – Vasant Sathe of Congress (I) says “Reservation is no solution for a crime so many centuries old. Nor it is ethical to punish our present society for the sins of our fore fathers.” It is a law of jungle to hold responsible the present generation for the follies of its previous generations. According to Rule of law the present generation can not be punished for what their forefathers did. •Undermines ‘Principle of Equality’ – Anti-reservationists argue that there was a case to end the quota business in 1960 itself. Yet it has been allowed to continue till today. The Indian Constitution is committed to two different principles both of which relate to equality: ‘principle of equal opportunities’ and “principle of redress’. Now it is over due that ‘principle of equality’ be enforced in its true spirit without any favour. Since policy of reservation undermines the principle of equality, it should be gradually discontinued as had been done in the case of Anglo Indians in accordance with the Article 336 of the Constitution. •Inter and intra caste wars – Reservation policy does not consider all individuals equal. Instead caste becomes the basis to get this privilege. It leads to inter-caste rivalry. Anti-reservationists accuse the pro-preservationists for inciting the caste war by provoking public feelings. Brahmins and upper castes has been pinpointed as an enemy of downtrodden, who have always exploited the downtrodden mercilessly. •Distortion of historical facts – Political adventurers, dictators and fundamental fanatics have distorted the history in the past and used it as a ploy to serve their own selfish or partisan interests. It does not even matter to them, whether their own version of history is real or based on fantasy. When Hitler walked into Sudetanland, he claimed historical authority. When Mussolini attacked Ethopia in 30′s, he quoted history. When Zionists claimed Jeruselem, they tried to justify their act by citing history. When Saddam Hussain walked into Kuwait on August2, 1990, He staked his claim on the basis of raking up old history. And so had happened on August 15, 1990, when V.P. Singh announced 27% reservation for OBCs, it was hailed by his supporters as “A historic decision which will go a long way in giving the rightful share to socially and economically backward castes in the power structure of the country, of which they were denied under the pressure from the vested interests.” •Reasons of backwardness other than caste – At present, submerged section of society does not suffer so much due to discrimination on the basis of caste as for other reasons. Kaka Kalelkar, first Chairman of First Backward class Commission had said, ““If the backward communities have neglected education it is because they had no use for it (in the past). Now that they have discovered their mistakes, it is for them to make the necessary efforts for making the leeway…As far as the assistance in the matter of education for the backward classes, I am convinced that introduction of basic education in all the states with help the backward communities to cultivate self-confidence. They will also have a better chance of succeeding in life and have the advantage of mixing with other people.” •Glamorization of Backwardness –Earlier, backwardness was considered as stigma. People of lower castes attempted to improve mannerism in order to climb up in the ladder of social status. These days, many castes claim for a lower status and want to be included in the list of SC/ST, so that they may taste the fruits of reservation as well. No more any caste is ashamed of being called untouchable or backward. Reservations have created vested interests in the “Backwardness.” Now backwardness is a status symbol, because it eases the position, while one is in search of jobs. Therefore, more and more communities are clamouring for the “Backward class” tag. Those in power find it politically expedient to oblige them. The list of castes wishing for reservations has become very long. Witnessing all this it stands to logic that the beneficiary group should be kept under constant review, so that who have over the years reached a stage where they could survive with dignity without any crutches, could be delisted. •Creamy layer of lower castes at advantage – Benefits of Reservations are confined within the creamy layer of lower strata, while, it was supposed to benefit ‘poorest of the poor’. How can all the 80% downtrodden be accommodated in power echelons by reserving only 49.552% jobs out of 1% of total government jobs available in the country? Naturally, only few people are benefited, others are given only false assurances during the times of elections. •Economic criteria as a basis – Anti-reservationists argue that consideration of caste instead of economic backwardness is not just. Reservations, if it is necessary should be given on the basis of ‘economic criteria’ to all the poor regard less of their caste identity. There should also be an income ceiling for SC/ST and others with the entitlement of their children for reservations in job and admission to educational institutions. Then only really deserving people could be benefited. •Led to Bain drain – Reservation has shaken the confidence of the youth of so called forward class. About 50% reservations in government jobs have left many deserving and intelligent youths unemployed or underemployed. Some of them choose the path of crime or violence. Unemployment has been one of the reasons behind Punjab and Kashmir problems. Many intelligent and hard working youth are losing their interest, rapidly, in government jobs. They prefer to go abroad in search of greener pastures, where they get good return for their talents and hard-work. In addition, they get job satisfaction because of tension free atmosphere at work-place. Reservations have, thus, led to brain drain. It has already squeezed out many meritorious by leading the country to massive brain drain. •Cry for social-Justice? – The attempt to establish a socialistic government does not carry much weight. The USSR a super power of pre-1990 days collapsed like a house of cards, despite having Socialistic government for last 70 years. With all its State control and public support, it could not provide expected relief to its masses. How could socialistic ideals provide relief to the masses in India, where there exists so much corruption and inefficiency in administration? •Feeling of alienation – Creation and perpetuation quotas in educational institutions and jobs has made backward classes alienated from the main stream. It is adversely affecting national solidarity. It is sowing the seeds of hatred among the people and put hindrances on the way of mutual help, mutual respect and mutual trust necessary for the development of the nation as a whole. Along with it, efficiency or excellence, probity, integrity of institutions and trust, which are required for overall well-being are adversely affected. •Reservations in Government jobs not a political program – Reservation in government jobs need not be made a political programme, which must be done according to the electoral mathematics. It was envisaged to uplift the submerged sections of society and make their future better. Governance is one of the most difficult and specialized tasks. Government employees are supposed to have sufficient professional knowledge and expertise in various disciplines – functional, technical, specialist as well as managerial and generalist – so that they could properly aid and advise the elected representatives of the people and dig for them the expert knowledge from the raw material, give it a shape with a sense of commitment. For attaining that expertise, they have to be equipped with knowledge in various educational institutions. Therefore, the government should be very careful while recruiting people in government jobs. •If reservations politicians are so keen to give lower castes a share in the power structure of the nation, why not quotas are fixed by law that by rotation, President, Prime Minister, Vice President, Cabinet Ministers, Ambassadors, Governors, Chief minister of every state be selected turn by turn from different castes. In these positions, the representatives of the people are elected or selected and entrusted the power to make decisions for a fix period. If their performance is not satisfactory, they may be removed or changed. But government employees get job-security. Therefore, standard of functioning should not be allowed to fall. Wanchoo Commission Report, 1968, and Railway Reforms Committee Report, 1983, on the working of Railways observed that reservations in jobs and promotions adversely affects the enthusiasm, incentive for hard work and devotion to duty and in-turn the efficiency and the morale of the civil servants. Sikri Commission on Railways, 1968, linked accidents with reservations. These three reports are just about one government department and that too when reservation is only 22.5% for SC/ST. What is going to happen, now when it is 50%? Who would be the ultimate sufferer. It is the innocent public only. Double standard – The government itself has exempted certain services and posts from reservation in order to maintain efficiency, discipline and loyalty to the nation intact such as all the Defence Services, Scientific and technical posts in the Department of Space, Atomic Energy, Electronics, posts of pilots and top technical persons in Air India and Indian Airlines, all scientific posts of Indian Institute of Science, Banglore, teaching posts in IITs and IIMs, private secretary to the PM and other Ministers, Planning Commission Members etc. (A Handbook on reservation for SC/ST compiled by Sharma and Purohit). It proves that the government maintains double standards. Reservations for women – If any class in India needs reservation on the grounds of social discrimination or under-representation in power echelons, it is only the women in India. How about reserving 50% seats for them in all educational institutions and government jobs? That would be their just share and will not divide the society along the caste lines either. If it cannot be done, then at least 50% of the reserved quota could always be kept aside for women ofrespective castes. Are the politicians prepared to make such provision for women too? In short, Anti-reservationists think that there is something fundamentally wrong with the Reservation Policy. It has been criticized for creating many conflicting identities like – majority and minority, backward and forwards, urban and rural, north and south and man and woman etc. It is being extended again and again with an aim to create “Vote-bank” in the garb of helping the needy. In the name of social justice, fundamental rights of many deserving people are being curtailed or negated. It is a farce in the name of social justice, a slap on the face of education and merit, a vote catching measure and misuse of power by political parties. Views of prominent persons on Reservation Policy At this stage, it would be appropriate to know the views of some eminent persons on reservation. These are as follows: •Mahatma Gandhi – In his book titled “India of my dreams” Mahatma Gandhi wrote: “So far as the reservations in the government departments is concerned, I think, it will be fatal to a good government, if we introduce there the communal spirit for administration to be efficient, it must be always in the hands of the fittest. There should be certainly no favouritism.”… “Distribution of posts should never be according to the proportion of members of each community. “… “Those who aspire to occupy responsible posts in the government of the country can only do if they pass the required test.” •Pundit Jawahar Lal Nehru – In a letter dated June 27, 1961, addressed to Chief Ministers of various States, Pt. Jawahar Lal Nehru, Ex-Prime Minister of India wrote, “I have referred above to efficiency and to our getting out of the traditional rut. This necessitates our getting out of the old habit of reservations and particular privilege being given to this caste or that group. It is true that we are tied up with certain rules and conventions about helping the SC/STs. That deserve help, but even so I dislike any kind of reservation, more particularly in services. I react strongly against anything which leads to inefficiency and second rate standards. I want my country to be a first class country in everything. The moment we encourage the second rate, we are lost.” “This way, lies not only folly but disaster.” •Kaka Kalelkar – As Chairman of the Backward Class Commission, Kaka Kalelkar expressed his views on reservation in education (Backward Class Commission Report, 1956, Vol. I, page X). He wrote: “As far as the assistance in the matter of education for the backward classes, I am convinced that introduction of basic education in all the States will help the backward communities to cultivate self-confidence. They will also have a better chance of succeeding in open competition and having the special advantage of mixing with people and serving them, they will prove themselves better administrators and leaders of society.” On page VIII of the same report, he has expressed his views on reservation in government services too, as under: “I am definitely against reservations in government services for any community for the simple reason that the services are not meant for the servants but they are meant for the service of the society as a whole. Administration must have the services of the best men available in the land and these may be found in all the communities. Reservation of posts for certain backward communities would be as strange as reservation of patients for a particular doctor. The patients are not meant to supply adequate or proportionate clientele to all the doctors what ever their qualifications.” •Chowdhary Charan Singh – Chowdhary Charan Singh, the founder of Lok Dal and charismatic leader of Backward castes and class, wrote: “It must be conceded that reservation on the basis of caste is a vicious principle and creates many problems. More than reservation in recruitment, it is reservation in promotions that has led to great heart burning and great inefficiency in our services. Such reservation whether in favour of Scheduled or Backward castes, was, in my opinion beyond intentions of the founding fathers. Boys belonging to poor families, particularly those, where large section of our people are considered socially inferior for centuries past, are entitled to consideration rather than concessions at the hands of the government of independent India.” •Chowdhary Charan Singh was also against extending reservation to SC/ST beyond 10 years “The intelligent and hard working youth are losing their interest, rapidly, in government jobs. They prefer to go abroad in search of greener pastures, where they get return for their talents and hard-work. In addition, they get job satisfaction because of tension free atmosphere at work-place. … “The Union Government, however, has for political reasons, been extending the period of reservations decades after decades. There should be bars on children of those who have benefited from reservation and those who are income tax payers, so that other less fortunates could be helped.” (A letter, February 12,1982 to Banarasi Dass, the then Chief Minister of Uttar Pradesh) •Professor Andre BeteilIe – Professor Beteille said: “Once the uneven distribution of caste in public institutions comes to be perceived as a problem of distributive justice institutional well-being takes the back seat.” “Job reservations in public institutions are required to protect the interest of SC/ST, backward classes and minorities – If this argument is believed to be right and acted upon then our institutions can not function as they ought to, their well-being will be irreparably damaged.” … “The best course would be to expand the pool of qualified candidates at the lower level but this would call for patience which no government in India has so far shown.” “A quicker course, whose effects would show immediately in official statistics, would be to alter the proportions directly, through reservation of jobs.” (6th T. T. Krishnamachari Memorial lecture on “Distributive Justice & Institutional well-being”, November 11, 1990, the Institute of Economic Growth) •Shri H.M. Seervai – Shri Seervai wrote: “Reservations affect five parties adversely: ◦The State – to whose service persons are recruited by open competition in examinations held by independent Public Service Commissions. ◦The public – As the very phrase “Public servant” shows. ◦The persons – Who are discriminated against, by reservations in favour of members of SC/ST. ◦Members of SC/ST – In whose favour discrimination is being made by fixing reservation quota; and ◦The service – That is each service considered as a whole. (“Is an efficient public service irrelevant in India”, Indian Express, September, 1990) A service which lacks spirit-de-corps, that is, consciousness of and pride in belonging to a particular service, lacks an element essential to an efficient an harmonious administration. The position further deteriorates in a service in which in matters of promotion, people with superior qualifications are subordinate to people with admittedly inferior qualifications. • Nani A Palkiwala – Shri palkiwala opined that Reservation policy suffers from five fatal flaws: ◦The sub-standard replaces the standard, and the reins of power are to pass from meritocracy to mediocracy. ◦It ignores the reality that there are no backward castes but backward individuals. ◦Reservations in promotion are disastrous enough for the civil administration. ◦It divides the country on caste lines and is against social harmony and social intermingling of various castes. ◦Equality is the very heart of free republic, the foundation stone of true republic, the source of inspiration, the criteria for its citizenship and the hope for its welfare. The bedrock of reservation is discrimination in-reverse: it is discrimination against merit and calibre. (“Unity and security of State at stake”, Indian Express, September 14, 1990) •Arun Shourie – Arun Shourie, in an Article titled “This way lies not only folly but disaster” appearing in the Indian Express on August 22, 1990, writes: “A job should be something one has to work to get, something which one has to do one’s utmost to retain and advance in. It should not be, advancement in it must not be anyone’s by right”. But reservation definitely develops the ethos that the job, the promotion is mine by right and that too because of by my birth, not work. How can a modern society survive, let alone grow with this as its ethos? •Shri V.P. Singh – In his independence-day speech on August 15th, 1990, Shri V.P. Singh, ex-Prime Minister of India said: “Bureaucracy is an important organ of the power structure and it has a decisive role in the decision-making exercise. We want to effectively give to the depressed, downtrodden and backward people their share in the power structure and in decision making to run this country and improve things. “ •Ram Vilas paswan – The Dalit Sena president and Janata Party leader, Mr. Ram Vilas Paswan, in his speech at Benipatti, Madhubani, on December 12, 1987 demanded for amendment to the Constitution to end the prevalent reservation system for Harijans and other backward classes in the Government services and replacing it by right to work for every body…. Reservation system had failed to achieve its purpose and had created social tension in the country. Mr. paswan said that despite Constitutional provisions and related laws, the government at the Centre and State had failed to protect the interest of Harijans. Later on, Paswan became the champion of reservation policy. He advocated reservations in jobs and educational institutions on permanent basis. It should continue till the caste system persists in India. Since caste system can not be put to an end, therefore, there is no justification for finishing the reservation for the downtrodden. •B.D. Sharma – Shri Sharma, the Commissioner for SC/ST has pointed out in his 29th Report, tabled in Parliament on August 31st, 1990, as under: “The policy of reservation in government jobs has not improved the lot of the bulk of SC/ST in the country. In fact, in many cases, their condition has further deteriorated. “It is quite clear that even if the policy of positive discrimination were to succeed fully, it could benefit only a small section of these communities. On the other hand, if inequality continues to increase in our country or continues even at the present level, the maximum damage will” befall on the members of these communities themselves, because their condition is already the worst as in the case of the SC or because they are facing the most severe backlash of development as in the case of the S.T……” ” The policy of reservation is ironical, as it demands a share for the weaker section” in the gains of iniquitous system, which in the ultimate analysis cannot be anything, but the proceeds of exploitation of other poor belonging to the same group who remain at the bottom.” An analysis of the issue There are certain basic truths, which needs to be accepted and pay attention to, before taking policy-decisions. Such as: Society as an organic body – Society behaves and develops like an organic body. Each organ does a particular function and coordinated working of all organs together keeps the whole body fit and alive. Like other organic bodies, each and every section of society is an indispensable part of the society, which needs equal attention and proper care for the balanced growth of the society as a whole. Just like in an organic body, weaker parts need special care, but not at the cost of others. So is in the society. Each and every section of the society needs to be assigned a specific function. Each one should perform its respective job. Society needs the services of all sections of the society. The work of any section is neither inferior nor superior to other. Each and every section of society needs to be aware of its indispensability to the whole. A society can move and prosper to its fullest, when each and every section of society does its functions well and lives in harmony; and when there is mutual help, respect and trust amongst the various sections of the society. Society as an organisation – For an efficient and smooth functioning, like an organization, society also needs – •Division of labour – Nobody can do all the work by himself. Division of different functions required in a society is the first requisite. •Grouping of activities – All functions and activities should be so grouped as to avoid confusion. Activities of similar nature or having same objectives are grouped under one section. •Structure – An organization needs a structure with well defined functions. The structure must be simple and easy to understand. It should also ensure continuous growth and, therefore, should not be rigid. •Balance of activities – Proper weight-age to different activities, in proportion to their contribution to organization as a whole, is necessary. No activity should either be over-valued or under-valued. •Team spirit – Relationship between various groups within an organization should be based on the principle of “mutual help, mutual respect and mutual trust”. It facilitates better coordination of diverse activities performed by different sections. Smooth relations amongst its constituent’s leads to optimal utilisation of resources and to satisfaction of all its constituent members. •Specialisation – Concentration of a section on the performance of a single task, leads to greater efficiency and more specialisation. Functions need to be assigned on the basis qualifications, skills, attitude and aptitude of its employees. •Creative thinking – A good organisation encourages initiative and creative thinking. •Satisfaction – Organization must be able to satisfy the biological as well as psychological needs of its employees as an individual as well as a group. •Adoption of new technologies and development – An organization helps adopts new improved means of doing things, permits prompt adoption and optimum use of technological advancements. It must avoid nepotism, favouritism and must give an upper hand to merit and talent. Indian society contains all the essentials of a good organisation. Truth about “Varna-system” – “Varna system” along with its castes and sub­-castes is not as bad as has been portrayed earlier by British rulers, now by some leaders and the pro­-reservationists. It is based on principles ‘mutual respect, trust and tolerance for each other’, ‘There is enough for everybody’s need, but not enough for anyone’s greed’ or ‘To each according to his needs and from each according to his capacity’. ‘Division of work’ was based on attitude and aptitude of an individual. It has given to India a solid social-structure, which is simple to understand. Above all, it has provided unity of culture which has been able to bind the people of Indian peninsula from one end to the other. Mahatma Gandhi said “The main reason of our economic and spiritual degeneration is that we have not correctly followed the “Varna System”. This is the main reason of poverty and unemployment and one of the main reasons that there is untouchability”. He suggested to encourage education amongst the masses for the growth a self-contained and self-regulated society; all occupations to be given equal respect; people to be encouraged, not to be forced to adopt their hereditary occupations; and difference of income derived from various occupations should be narrowed down to the minimum. “Policy of reservation” lost its validity – “Policy of reservation” adopted by the independent India has lost its value and justification now. Reformatory movements of the nineteenth and twentieth centuries, attempts of constitution-framers spread of education and awareness amongst general public. Many changes have come about in the whole atmosphere, in thinking, attitude and aspirations of common-men. Recent technological advancements have made the life of common-men easier and created enormous opportunities to earn more. The experiences of recent past reveal that Policy of reservation has lost its value and justification now because – SC/STs and OBCs emerged as powerful pressure groups – After the green revolution of sixties, the economic and political status of people engaged in agriculture India has improved tremendously. India being an agricultural country, 75% of its population (mostly belonging to SC and OBC categories) is engaged in agricultural sector only. Reforms gave them permanent rights as owners or otherwise. New agricultural technologies, backed by administrative and financial support by governmental agencies, helped them the chance to get out of the trap of poverty. They have organized themselves and emerged as a very powerful pressure group both in the fields of economics and politics. Still, if many SC/STs and OBCs have not been able utilise this opportunity fully, fault lies somewhere else and not in caste system. In their under-nourished faces are written the failures of the successive Governments and their policies that have ignored their actual needs. Caste is no longer a barrier in the matter of jobs – Doors of education have been opened for all. Many scholarships, loans, hostel facilities, and admission in select institutes of the country (Where the whole expenditure is borne by the government) are being made available to them. Many Integrated Development Programmes and Sub Plans have been initiated to improve their position – socially and economically. Immense choices in matter of occupation – Earlier people were forced to earn their living only by doing their hereditary jobs. But the Constitution of India gave everybody freedom and equal opportunity to select one’s source of earning. Society has accepted the change-over to any profession a person wishes to pursue and for that he has to prove his suitability in the job market. Educational facilities have been provided to them. Many scholarships, loans, hostel facilities, and admission in select institutes of the country (Where the whole expenditure is borne by the government) are being made available to them. Many Integrated Development Programmes and Sub Plans have been initiated to improve their position – socially and economically. However, sub-merged people of SC/ST community have not so far been able to utilise this opportunity fully. Benefits are benefitting the creamy layer amongst them. Label of Brahmin or Shudra meaningless today – Today, the label of Brahmin or of Shudra does not matter much in choosing a profession. There is no dearth of employment opportunities. From all sections of society, people are acquiring necessary qualifications and are entering into areas of their choice. Experience shows that all are doing well in almost all spheres. Increasing opportunities in service sector – A vacuum has been created in the service sector, when many traditional jobs became obsolete. Jobs in service sector could also fetch a handsome amount of money. Recently some people engaged in this field such as tailors, carpenters, dyers and drycleaners, owners of hotels and restaurants, owners of video libraries, scooter and taxi drivers even Paanwalas are doing much better than ever before. The key to their success appears to be the very same as elsewhere – hard-work, excellence, maintenance of standard or quality and entrepreneurial skill. Today, in the lure of safe and secure job, easy and quick money, government jobs in local, state or central levels are becoming very popular. That day appears not to be far off when in complex technological society, the white-collared jobs would loose their present attraction and the service sector would get a prominent place. An excellent plumber then may become more admirable than an incompetent scientist. Therefore, instead of disturbing the efficiency and working of the organized sector, the government could concentrate on enormous opportunities of self­ employment available in this sector, and thus helping the downtrodden to establish well themselves in the society. Creamy layer amongst beneficiary groups – On the one hand, it has been experienced that Benefit of reservations is confined within a few dominant and prosperous SC/ST and OBC castes. They have now acquired economic, political and above all muscle power. Many of them make vote banks for the politicians, capture booths during elections and could ask their unfortunate brethren to shut their mouths or to meet the consequences. In certain regions, they themselves have become the exploiters of their unfortunate brethren – suppressing the agricultural labours and are heaping atrocities on Harijans. Efficiency in administration – A service which lacks spirit-de-corps, that is, consciousness of and pride in belonging to a particular service, lacks an element essential to an efficient an harmonious administration. The position further deteriorates in a service in which in matters of promotion, people with superior qualifications are subordinate to people with admittedly inferior qualifications. It is feared that relaxation in matter of recruitment standard, as reservation policy suggests, adversely affects efficiency of administration. It creates a distance between quota officers and non-quota officers, adversely affects integrity and coordinated efforts of services for development of the nation as a whole. Merit oriented approach in matter of filling crucial and important posts, in principle, opposes reservation of any kind, which gives preferences to a person over a more talented person. It is a humanitarian obligation of a civilized society to uplift and empower the weaker sections of its society. But it should not be done at the cost of efficiency in administration. Mal-administration or ineffective and inefficient administration makes the life of common people more miserable. False assurances – Politicians and political parties with vested interests are luring the poor masses by promising them to give government jobs through reservations. Government jobs still fascinate the masses as with it are attached the attraction of fix salary, prestige, power, influence, security of employment and scope to distribute patronage. If without acquiring the needed qualifications and without much effort one can get all these things, no body minds it. Vast reservoir of talents amongst the lower strata of society – There is a vast reservoir of potential/talent amongst backwards as well, only they need opportunities to grow. Their hidden qualifications and capabilities Sound education and training would make aware them aware of their hidden qualifications and their capabilities. Their confidence can be restored, only when they are brought to the level of forward castes people so that they could compete for jobs and promotions on equal terms. Hurt feelings of poor belonging to upper castes – The deprived and poor people, belonging to so called “Forward caste”, feel betrayed by their own Government. They are being victimised because of no fault of their own. ‘Economic criteria’ offers a general formula to help to all extremely poor and underprivileged individuals irrespective of their caste or creed. Many dynamic and talented youths have lost their faith in the government and interest in government jobs. Upright officers do not get a proper atmosphere in the office or reward for their merit, intelligence, hard work and honesty. On the contrary, due to politicization, growing disregard for the work-culture and overstaffing, upright officers are sidetracked. Fixed salary is just sufficient to keep them from hand to mouth. They have to struggle all through their lives – after paying the taxes, meeting their children’s school fees and coping with ever increasing prices of essential items to maintain a decent life style. Backwardness of some, not unique in India only – Backwardness of some sections of society having such massive demographic entities is not peculiar to the Indian conditions only. It is universal phenomena. Every nation has it and adopts its own ways to uplift the sub-merged people. The Chinese approach, in this regard is through education and not through unmeritorious reservation of jobs, as there is no need to create vote banks there. Grooming of downtrodden in India could also be done by providing sound education to them. Already there are many institutes and some more may be opened especially for lower strata of society, where they could study the same syllabi and to go through the same courses as other students from a good background. The students from poor background may take more time to go through the same courses and reach up-to the same standard as others. The process may be slow but is steady. The quality of education should not be allowed to deteriorate at any cost as is being done. Times when Governmental intervention needed – When individuals are proved to be working under special handicap or are not allowed to function freely as citizens, then only the government may intervene irrespective of caste or creed so that deserving persons from all sections of the society may get the needed help. It should punish the culprits strictly and make special provision for advancement of under privileged or handicapped persons. It need not necessarily be in the form of reservations. Reservations have been proved to be disruptive to the peace of the society and unpractical. Conclusion and suggestions The past experiences have made it clear that the remedies suggested through reservation proved worse than evils, the leaders were out to combat. To some, this discrimination is positive and to others, negative and contrary to principles of equality, fraternity and social justice. Deserving people get lost amidst the gore and gusto – The faces of poor people, really deserving support from the government, have been lost amidst the gore and gusto of pro and anti-reservationist movements. ‘Shudras’ have been the life and blood of the Indian society for centuries in the past and led the nation to the ‘Golden Era’. They still provide essential services to the whole community in different disciplines. But in exchange, today, they get very little – not even enough to satisfy their basic minimum needs. Reservation made no difference in their lives. There is no denial to the fact that for centuries, Shudras have been the life and blood of the Indian society. They have been performing certain traditional standardised services for the whole community. In exchange, as usual, even today they get very little – not enough even to satisfy their basic minimum needs. Reservation made no difference in their lives. Side effects of Reservation policy – Reservations have developed many side affects. Instead of becoming a viable instrument for the upliftment of the submerged section of the society, it has created vested interests of the powerful lobbies of society. It is serving the interest of those people who do not need it any more and making the administrative machinery sick. Giving additional weapon in weak hands is no remedy. First the hands need to be made strong enough to hold and use the weapon properly through awareness of the surroundings, sound education and-training. Then they themselves without any help from an outside agency will pick up the weapon in their hands and protect themselves and others in the society with it. Education alone can make them more knowledgeable in the fields of their works, more laborious and more confident, so that they could earn enough to live with honour and dignity. Plans needs to be based on real issues – Witnessing the various views and past experience, it becomes clear that instead of reservation, other development measures should be tried after identifying the real issues and actual needs of these people. Downtrodden must be made capable to stand upon their feet and make their due place in the society. Policy of generating confidence and inculcating skills, knowledge, attitude and habits through sound education should be pursued, so that they could be brought to the required intellectual level, do justice to the jobs assigned to them, hold their positions without any complex and live in the society with honour. Only two ends in Governance, ‘nation, and ‘individual’ – The unity and solidarity of the nation demands that its population should not be divided along the lines of different identities i.e. caste, region, language, religion or base – rural or urban – by giving preference or over- protection to one section or group over the other. As Kaka Kalelkar had suggested, while framing policies, government should recognise only two ends – the individual on the one hand and the nation as a whole on the other. No sectional or communal grouping should be encouraged to flourish itself in between the two, which could undermine the equality, liberty and freedom of the individuals and the solidarity of the nation. Result-oriented action programmes needed – Issues should be identified rationally and result-oriented action programmes needs to be implemented sincerely as suggested by the Planning Commission, various government departments and voluntary organisations. The backwardness of most of the people is due to poverty, illiteracy and many evils that go with it such as ignorance, superstitions, mal-nutrition, lack of access to shelter, clothing, health, hygiene etc. These problems can never be solved by making policy of reservation as a major remedial measure. Other remedial measures are required for the development, which could produce desired results within time and cost parameters. More stress should now be given to fair distribution of surplus land and other anti poverty programmes, which could benefit a large number of poor people everywhere if honestly pursued. Reservations as “Disastrous”, “Fatal” and even a “Vicious principle” – Witnessing the various views and past experience, it becomes clear that instead of reservation, some other measures should be tried after identifying the real issues and actual needs of these people. It was not only the first Prime Minister Pt. Jawahar Lal Nehru, but Mahatma Gandhi, the Father of the nation, and Chowdhary Charan Singh, the charismatic leader of backward caste, considered reservations as “Disastrous”, “Fatal” and even a “Vicious principle”. Positive steps needed to be taken – More than Reservations is needed to the inculcation of concentrate on skills, knowledge, attitude and habits through sound education. It would make weaker sections to stand upon their own feet and to survive without the crutches of Reservations. It would bring backwards to the required intellectual level, make them capable do justice to the jobs and fulfil their responsibility without any complex. It would ultimately generate confidence in them and live in the society with dignity and honour. Vision of Nehru – The vision of Nehru suggested putting emphasis on education – “The real way to help a backward group is to give opportunities of good education; this includes technical education, which is becoming more and more important. Everything else is provision of some kind of crutches which don’t add to the strength or health of the body. We have recently made two decisions: one is universal free elementary education that is the base and the second is scholarships on a very wide scale at every grade of education to the bright boys and girls and this applies not merely to literary education but much more so, to technical, scientific and medical training. I lay stress on the bright and able boys and girls, because it is only they who will raise our standards.” …. “But if we go in for reservation on communal or caste basis we swamp the bright and able people and remain second rate or third rate.” (Chief Ministers Conference, June 27, 1961,) Authorities like Shri B.D. Sharma, Commissioner for SC/ST, and many others have also opined that policy of reservations in government jobs has not improved the position of the bulk of SC/ST and CECs. Instead it had further developed many problems. Winding up •If India wants to emerge as a strong nation in the world, it should give preference to efficiency, motivation, discipline, tenacity of purpose and will to achieve the desired goals. •It is not the policy of reservation which is required but a policy of generating confidence in backward caste. •Stress should be given to basic education. •No sectional or religious group be allowed grow between the government and the individual. •Really-deserving individuals needing special attention must be identified by assessing their economic condition without any bias. •All help, such as free and extra tuition, subsidised and extra nourishment, residential accommodation etc., to overcome their disabilities and to acquire requisite abilities should be provided •Abilities to shoulder responsibilities at entry point and performance throughout the career should always be given importance. •In postings and promotions, Standard set should apply equally to all and strictly to all. •At no time and at no level, the standard should be allowed to deteriorate. •The method of assessment should be continually honed, so that more meritorious persons could be selected. •Wages should be enough to enable them to work honestly and live in the society with dignity without clamouring for dishonest money. In the words of Shri C. Rajgopalachari, which he said long ago that for any system “To be good and efficient as a whole we want right type of men. The quality of men placed in position is more important than laying down rules and methods of operation. The caste consciousness is a hard reality. It unites and divides in a very real manner today whatever be our goal and today is most important in matter of administration. Short sighted favouritism and concessions to produce contentment among classes and castes will be very short-lived and will deteriorate into a constant pondering to intrigues and factions, if we do not look to the real efficiency.”

Originally posted on Latasinha's Weblog:

            “Authority without wisdom is like a heavy axe without an edge.” Anne Bradstreet

“Work is worship. There is no substitute for hard-work”

 INTRODUCTION ­

Biggest experiment of Twentieth century – Policy of Reservations in government jobs is one of the biggest experiments in the history of Twentieth Century. It is a very sensitive issue. It was started to uplift the submerged sections of Indian society, to protect their rights and to overcome the cumulative disparities of power, wealth and culture existed among various sections of society. From its very nature, the policy is discriminatory and exclusive. It empowers state authorities to give preference to one or more groups in the society to exclusion of others and encroach on domain of right to ‘equality to all’. Of late, it has become a source of considerable controversy, as it also involves emotional feelings of right-conscious people.

“Reservation in Government…

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February 23, 2014 Posted by | Bureaucracy/Civil Services | , | 1 Comment

Development administration in a ‘Welfare State’

latasinha:

“Lokah samastah sukhino bhavabhavantu.”
and
“Satyam param dhimahi”
(Meaning -“May peace and happiness prevail everywhere” and Truth, divinity and knowledge shine the world.”

Effective and efficient development in a welfare state demands not merely saying or doing right things at the right time but avoiding and doing wrong things at any time. India as a nation not only got free from British rule, but has regained the power to do welfare planning the way it wants to.
It goes to the credit of India that in the past, India gave the first University to the world and the earliest school of medicine. It gave four religions to the world. There are hundreds of mosques, churches, temples and gurudwaras. It has always been a giver. It gave asylum to more than 3,00,000 refugees who fled religious and political persecution.

For effective governance, the government should provide training to its civil servants in –

  • Overall capacity building.
  • human resource development,
  • Sensitising them about key development issues,
  • Familiarization with Union budget and demands of various ministries.
  • Devolution process.
  • Familiarization with processes related to infrastructure Development,
  • understanding of project design, development and implementation and
  • understanding key features of procurement policy, industrial policy.

 

Originally posted on Latasinha's Weblog:

                                   

In modern times, of all acts of civilized society, perhaps, governance is one of the most difficult tasks, as it deals with issues – political, economic or social, that directly affect public life of living human beings, who are full of psychological and sociological complexes and prone to unpredictable behavior. Good governance is the foundation stone to build a forward- looking society.

Earlier in the nineteenth Century the main tasks of an administration were universally the maintenance of law and order and revenue collection. But 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, which required a civil service of integrity, equipped with administrative ability and practical sagacity for development. The emphasis in administration has shifted to the welfare plans, national reconstruction and development.

Civil services in a ‘Welfare State’ 

French Revolution, Bolshevik Revolution…

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February 11, 2014 Posted by | Bureaucracy/Civil Services | , | 1 Comment

Weaknesses of Bureaucracy/civil services in India

 Introduction 

“For the forms of government, let fools contest. That which is best administered is best.”

“But what is best must free man still decide. Lest leaders gull them and officials ride.”

And also

Bureaucracy is a giant mechanism operated by pigmies.” V.Hon0re De Balzac

British Government the institution  bequeathed to India – The institution of civil services in India is the oldest and most wonderful institution the British Government had bequeathed to India. British rule had evolved the institution of civil service as an efficient, professional and to a great degree incorruptible organization. It was popularly known as ‘‘the Steel Frame’ of British administrative structure”, Fortunately India, along with Pakistan, has inherited from the past, a unique administrative system, which knows, what these strategic posts are and who are the persons to hold them.

Thousands of employees in Administrative set-up – Government of India employs up (civil services/bureaucracy) from almost all vocations, occupations and professions. Government makes all feasible administrative, organizational and working atmosphere arrangements for its employees. The administrative system is vertically and horizontally divided in order to meet the differing requirements and emerging developmental tasks.

Best talents –  Officers of  civil services of government of India are selected by UPSC through a competitive Combined All India/Civil Services examination every year.  It is one of the toughest entrance examinations.  In an effort to est talents In order to employ best talents in the services, every year UPSC conducts a common civil services examination (CSE) for to select personnel for many services under government of India like Indian Administrative Service (IAS), as well as for other non-IAS services like IFS, IPS and other central services for different departments like Revenue, Railways, Audit and accounts Services, civil services and Police Service for Delhi, Andaman & Nicobar Islands, Lakshadweep, Daman & Diu and Dadra & Nagar Haveli , Pondicherry.

IAS propped up as the Elite service – During British rule, ICS was propped up as an elite service. Its officers in their early twenties would arrive to India after being trained at Cambridge or Oxford to rule single-handedly a district half as big as Wales. They were responsible for maintaining law and order and revenue collection.

Now IAS officers have wide-ranging authority in districts as collectors. and at centre as policy-makers. They have-

  • Have easy accesses to levers of power.
  • Are symbol of power – dealing directly with Ministers at centre and provinces.
  • Have smoothest career-progressions. And
  • Occupy almost all senior-most posts at centre and States.

Issue

One wonders why the steel-frame of yesteryears has failed to do its job effectively and judiciously, despite having a constitutional status with enough powers to perform their duties freely and frankly. Inefficient and ineffective performance of Bureaucracy/civil services by and large has affected the lives of millions of people. Now sarcastically, people call bureaucracy as ‘babudom’ and bureaucrats as ‘Glorified Babus’.

Why does not bureaucracy take a stand against the unjust dictates of political leaders or corrupt senior officers, who stops them from doing their jobs judiciously? Why and how civil services in India got derailed is a point to ponder. What were the reasons behind ineffective and inefficient performance needs to be analysed.

ICS, the “Steel-frame of governance” during British rule  – “It always puzzled many bigwigs like Stalin, von Ribbentrop and many other foreign observers, namely how barely a thousand British ICS (Indian Civil Service) personnel managed to rule both British India and the princely states with a combined population of well over 300 million during the first part of the twentieth century. Very few statesmen, from Bismarck to Theodore Roosevelt, doubted the quality of British rule, and, in a fascinating episode, when Subhas Chandra Bose, the leader of the rebel Indian National Army, flew to Berlin during the Second World War to solicit help from Hitler, the Fuehrer dismissed him, taking the view that Indians needed “to be civilized by another hundred years of British rule.” “How was the Indian Empire administered with such apparent zeal, efficiency, high-mindedness and impartiality?

“Gilmour comes to the sensible conclusion that the men of the ICS displayed a mixture of motives, skills and temperaments. A number of individuals were ‘coming to the institution through stiff competition, not the other way round’. Often a District officer in his early twenties would arrive fresh from his ICS training at Oxford to rule single-handedly a district half as big as Wales. The wide ranging responsibilities of the District Officers of the ICS were responsible for almost everything.

Structure of the – The structure of the service started from the District Officers to the Magistrates, Residents, Political Agents, Deputy Collectors, Lieutenant Governors, and so on. (From Rup Narain Das, titled ‘Marx and 1857’, published in TOI, P.22, 16.5.07, excerpts quoted from an article of Gilmour on Marx, June July 15, 1857 in New York Daily Tribune as a leading article)

The ICS – ICS (Indian Civil Service) called ‘steel-frame of administration’  Lloyd George, the British Prime Minister in his historic “Steel-frame” speech, said it very clearly on Aug.2, 1922 in the House of Commons that British civil servants were the very basis of the Empire in India and so he could not imagine any period, when they could dispense with the guidance and assistance of a small nucleus of the British civil servants. He said, “I do not care, what you build on it, if you take that Steel-frame out of the fabric, it will collapse. There is only one institution, we will not cripple, there is one institution, and we will not deprive of its functions or of its privileges and that is that institution, which build up the British Raj – the British Civil Service in India.”

What made ICS so strong and efficient?  – What made ICS was strong enough to rear and sustain British rule in India for such a long time? Some of the reasons were as  was because –

  • Family background – Most of them belonged to British professional middle classes.
  • Educational background – They had made smooth progression from school to Oxford or Cambridge.
  • Sense of responsibility – The ICS, whatever its complexion might have been, had developed traditions of independence, integrity, and hard work. They had deep sense of responsibility. However, these qualities served mainly the British rulers and not so much the Indian masses. They had full freedom and opportunity to do something worthwhile.
  • Work atmosphere – So far as it did not jeopardized the Imperial interests, ICS officers thought it their duty and took it as a challenge to provide, “Care, protection and guidance” ultimately liberty to the people, they ruled (Times of India, August 10, 1997, p2). Mr. Lines, an ex- ICS officer, said, “I suppose, we thought of a simple Indian villager… Here are simple people, who need leadership.” Mr. Arthur, another ex ICS officer, said, “Their attitude, certainly was paternalistic, which was necessary in a colonial administration.”
  • Bright career prospects – Extremely generous salaries and quick promotions.
  • Slim and trim service – just over a thousand at any given time – made for a strong sense of service loyalty.
  • Esprit-de’-corps – Philip Maser said that there was esprit-de’-corps amongst the officers. Lines pointed out, “It is the Esprit de’corps, which served to enforce a strong moral code.” It did not need to be articulated. Every body knew it.
  • Honesty – Clive Dewey said that the historical evidence pointed out to only a minute handful of officers being corrupt. It was partially their salaries, partly their background, partly their sense of duty and partly ivory tower, in which they lived, which made any rumors extremely uncomfortable (Dr. Clive Dewey, Anglo Indian attitudes, 1993).

Balance of Power – Illbert Bill controversy indicates that White bureaucrats were not at all prepared to share administrative powers with Indians, in spite of all the official declarations of 1833, 1858, 1861, 1892 and 1909.  When the demand for the participation of Indian nationals at higher levels of administration increased, the dominance of Brahmins in administration, though mainly at lower level, had cautioned the rulers. They regarded Brahmins as the main force behind the entire national movement, agitations and terrorist activities. Therefore, British rulers tried their best to balance the power in such a way, that no section of Indian society could become strong enough to pose a threat to its rule in India. British rulers managed it by adopting the following measures –

  •  Propped-up other sections of society against Upper-castes – The British thought it necessary to keep a balance of power by propping up other sections of the society in order to stop the preponderance of Brahmins and forward castes in modern callings.
  • Divide and rule – They divided Indian population, through censuses, into different groups, i.e. upper castes, backward castes, scheduled castes, scheduled tribes and minorities.
  • Start of quota system – To counter Brahmin’s dominance in administration, the British designed Reservation Policy. They fixed up quotas in government jobs for different sections on the basis of caste, community, occupation, religion etc.
  • Separate representation and preferences to non-Brahmins -Through the Acts of 1909, 1919 and1932 the rulers provided separate representation to different communities in Legislative Councils and Assemblies. The rulers bestowed special benefits and preferences in education and jobs for different upcoming groups.
  • ICS remained untouched from preferential treatment till end – Though the British Government gave preferential treatment to upcoming groups in government jobs, British rulers kept the ICS untouched from the quota system till the last. They firmly and clearly said to the upcoming groups that they wouldn’t weaken their Steel frame at any cost for any body, as on it depended, efficient governance of the country.  It was told the upcoming groups in clear terms, “With its utmost desire to do so, the best for these classes, the Government will be and is powerless to help them, unless they qualify themselves to the same extent as others of their countrymen for duties of administration and public (Times of India Archives, May3, 1918).

Breakdown of the spirit of the civil services in India – With the intensification of national movement and introduction of Diarchy, the downfall in the quality of work began to fade. Pannikar says, “The Lee Commission (1923) was the first evidence of the breakdown of the spirit of the civil services in India, for after that there was no claim, that the British Civil Service in India, competent though they continued to be to the end, was anything more than a group of officers doing their work for purely material considerations. The idealism of the past had vanished” (Pannikar KM, The Development of Administration in India, Bulletin of Public Administration, Patna, Patna University’s Institution of Public Administration, vols. 2 and 3, p14.)

The Rawland Committee remarked, “The present position, in our judgment, is thoroughly unsatisfactory both from the point of view of the district officer himself, as well as, from the point of view of the efficiency of the governmental machine and welfare of the people in the district…. He is expected to see that nothing goes wrong in his district, but he has little power outside. The Magistrates and Collectors failed to see that things go right. He is supposed to compose differences between other officers, but he has no power to impose his will upon the recalcitrant. He can cajole and persuade, he can not compel… In our view, the situation, if left to itself, can only deteriorate further, because activities of the Government in the mofussil will increase and practically every department is thinking in terms of Provincialized Service and makes little attempt to disguise its determination to go ahead with its own plans, without reference to any other part of the Government” (Report of the Bengal Administrative Enquiry Committee, 1944-45, p18).

Transfer of power – In 1935, with the intensification of the nationalist movement, supported by Indian National Congress Party and growing demand for greater Indian participation in Government and its administration at higher levels, the Colonial rulers delegated some authority to the provinces. They were aware of the consequences of delegation of authority to the provinces. Therefore, they transferred to the Provincial Governments only the authority to manage the services engaged in service-functions and kept ‘control functions’ i.e. maintaining law and order and revenue collection in their own hands. Ultimately in 1947, India got its freedom as an independent country.

After independence

Civil services after the Independence  – With the attainment of Independence and adoption of socialist and egalitarian society as ultimate national goals, the demands on administration had undergone a qualitative change. The basic task of administration changed from one of attending to routine regulatory function to that of promoting a rapid socio-economic change. Bureaucracy was now expected to play a significant role in administrative and developmental work of the Government.

Dreams of constitution-framers – The forefathers of the Constitution realized the importance of civil services in order to ensure good governance to the country and providing the safety of the nation. Mr. MV Kamath said, “With the independence of our country, the responsibilities of the services have become onerous. It may make or mar the efficiency of the machinery of administration, machinery so vital for the peace and progress of the country. A country without any efficient Government service can not make progress in spite of the earnestness of the people at the helm of affairs of the country. Whatever democratic institutions exist, experience has shown, that it is essential to protect public services as far as possible from political and personal influence and to give it that position of stability and security, which is vital in its successful working, as an impartial and efficient instrument, by which Government of whatever political complexion may give effect to their policies” (Constituent Assembly Debates, Vol. IX, p585).

Mr. Subharajan said during Constituent Assemble debates, “Without an efficient civil service, it would be impossible for the Government to carry on and continuity to be kept. The importance of the Governmental administration has been in the fact that there is continuity and unless this continuity, there is chaos” (Constituent Assembly Debates, Vol. IX, p952).

Vallabh Bhai Patel in his letter to the Prime Minister wrote, “I need hardly emphasize, that an efficient, disciplined and contended (civil) service, assured of its prospects as a result of diligent and honest work, is a “Sine-quanan” of sound administration, under a democratic regime, even more than under an authoritarian rule. The (civil) service must be above party and we should ensure that political consideration, either in its recruitment or its discipline and control, are reduced to the minimum, if not eliminated altogether” (Patel Vallabh Bhai in a letter to Mr. Nehru).

After Nehru’s midnight hour speech between 14th and 15th August 1947, Dr. Radhakrishnan warned the nation, “Our opportunities are great, but let me warn you that when power outstrips ability, we will fall on evil days. We should develop competence and ability, which would help us to utilize the opportunities, which are now open to us. A free India will be judged by the way, in which it will serve the interests of the common man in the matter of food, clothing, shelter and social services.”

Need of efficient employees in administration – Civil services in Independent India Independent India required that the civil administration at every level must be equipped with officers having the capacity to meet various challenges of the modern India. The success of government’s welfare and developmental plans would depend largely upon the efficiency of its administrative cadres.

Attraction for the youth – Jobs in the Government have always remained an attraction for the youth. Entry into IAS and central services are the most sought-after jobs for students as it provides the highest entry point in bureaucracy. Government employs officers on various responsible posts after being successful  in a well-planned entry competitive examination and then go for rigorous professional training in different training institutions. making processes and their implementation work.

IAS (Indian Administrative Service), the successor of ICS after Independence After independence, Indian Administrative Service (IAS) was created as the successor of ICS, which was till now a reputed, efficient and powerful service.  IAS is now an elite service meant predominantly to be engaged in control functions of Indian provinces. political circle. up of the nation.

Functions of the civil services – The civil administration, whether in Centre or in State, can be divided into two groups:

• Working in the Secretariats – Policy making body;

• Working in field organisations – for implementation of policies and plans.

Working at Secretariat level – Working in the Secretariat exposes the officers to policy perspective in diversified subjects like agriculture, horticulture, power, coal, transport etc. The work in Secretariat requires bright officers having experience and knowledge in relevant areas. The IAS officers on deputation from different states occupy most of the senior posts in Central Secretariat. In the State Secretariats also, it is the IAS Officials, who are posted on the top posts in almost every department.

Following are important functions at the level of Secretariat: –

  • Obtaining decisions on policy matters and enunciating policy decisions in clear language,
  • Overall planning and finance,
  • Legislative business,
  • Personnel management policies,
  • Legal advice,
  • Coordination and cross clearance among the administrative departments, in the Secretariat,
  • Communication with central institutions like the Planning Commission etc., and
  • Overall evaluation, supervision, control and coordination of the work being done by the field organizations.

Administration at field level – The district administration occupies a key position. ‘District Collector’ continues to play a pivotal role in the District Administration. District is the most convenient geographical unit, where the total apparatus of Civil Administration is concentrated and where officials come into direct contact with the people. Its importance arises from the fact, that it is at this level, that bulk of people gets affected, favorably or adversely by the governmental policies, programs and its implementation. It is here, that people judge the quality and efficiency of the governmental administration. It has regulatory as well as developmental tasks.

The first five or six years of service in the state are crucial for all IAS officers. During this period, they go on field postings at district level to get the feel and first hand knowledge of real life and social realities. These postings open up the minds of young officers, by bringing them into direct contact with administrative life, with people at grass-root level, with their concrete problems and with different human and social conditions prevailing there. They get acquainted with the administrative structure in the district and the relationship between various branches of Government at district headquarters.  The experience of field work enriches officials with a variety of experiences and makes them ripe for senior positions.

Besides for collection of revenue and maintenance of law and order, District collector is responsible. He also coordinates activities of various departments at district level. A collector enjoys immense power and prestige at district level.

Both kinds of work at district and in headquarter equally important – Work at Secretariat and work in the field have their distinctive challenges. For efficient performance of work in both the areas, there is need for really bright and talented officers. Corrosion of the ‘steel-frame’ after Independence With many of the old visionary leaders and bureaucrats having gone from the national and state scene in the sixties, a rot started setting up rapidly in the administrative set up.

Problems of the day

Fall in the standard of governance – After Independence the bureaucracy  has started shaking under its own pressure.  Undesirable political pressure on it increased continuously. With the result that bureaucracy in India has now appears to be unable to meet the challenges of the day and has become an ineffective and powerless institution. administration.

The political complexion of the nation underwent a revolutionary change after the fall of Rajiv Gandhi’s Government and then disappearance of Nehru-Gandhi family from the political scene. The era of instability started. Mr. VN Narayan commented on the climate of 1990’s, “We have a political problem (scams and scandals), but we have no political solution, we have a religious problem (Ayodhya), but no religious solution. There is an economic problem (poverty), but there is no economic solution (Liberalization). There is a social problem (Sectarian conflicts), but there is no societal remedy (Secularism and Mandalization). There is a socio-medical disease (cancer of corruption), but there is no socio-medical cure (ministerial resignations and reshuffles) There is only one solution to all problems – a human and spiritual solution. We have to consciously move toward humanizing our social institutions and spiritualize (not communalize or secularize) ourselves” (Narayanan VN, Hindustan Times, June 1, 1995, p13).

Bureaucrats known as ‘Babus’ –  Since beginning of 21st century, there is decline over the years in the quality, competence and commitment of the administrative officers. Rarely are factors like competence, aptitude, past experience and public spirit taken into account, while making appointments to responsible posts. Instead of known as Government officials, the bureaucrats are called ‘glorified clerks’ and bureaucracy as ‘babudom’.

Most of the bureaucrats find it more convenient to toe the line of political leaders rather than standing up for principles and paying the price for it.  The situation has led to the nexus that has developed between unscrupulous politicians, corrupt bureaucrats and criminals, as Vohra Committee has vividly described it. The appointment of tainted officers at crucial positions itself makes the intentions of the politicians clear. ism has corroded the steel frame.

Reasons , that made the difference – Reasons for derailing the whole administrative system are very simple, which are as following –

  • Intake of the material

Before Independence – Then, during British rule, the British Government was very particular about the intake of the material into its elite service. The British, according to their aims and objectives, pursued the policy of racial discrimination on the dictum of “White-man’s” superiority for the appointment in ICS. For a long time, the Indians were virtually prohibited to join this service intentionally. The rulers never wanted to give Indian any control over the governance of the country. Lord Lytton, in his confidential document, confirmed that the pledge of the Royal proclamation of 1858 was never intended to be carried out. He said, “We all know that these claims, expectations never can or will be fulfilled. We have had choose between prohibiting them (Indians) and cheating them, we have chosen the least straightforward course.” (Annie Besant, How India wrought for freedom, p420)

Lord Kimberley, the Secretary of State, laid down in 1893; “It is indispensable, that an adequate number of members of the Civil Service shall always be European.” Viceroy Lord Landsdown stressed “Absolute necessity of keeping the Government of this wide-spread empire into European hands, if that empire is to be maintained.” (Bipin Chandra, Modern India, p158) In 1867, Lawrence said very (clearly, “We have conquered India by force of arms, though the policy and good Government have already aided us. In the like manner, we must hold it. The Englishmen must always be in the forefront holding the post of honor and power, as the condition of our retaining of our rule.” (Tara Chand, History of Freedom Movement in India, p497)

In Home Department Resolution of May 1904, Lord Curzon’s Government justified the policy, they were pursuing with regard to “White-man’s superiority” in Civil Service. “The highest ranks of the civil employees in India, those in the Imperial Civil Service, the members of which are entrusted with the responsible task of carrying on the general administration of the country, though open to such Indians, who proceed to England and pass the requisite tests, must nevertheless, as a general rule be held by the Englishmen, for the reason that they possess partly by heredity, partly by upbringing and partly by education that knowledge of the principles of Government, the habits of the mind and vigor of character, which are essential for the task and the rule of India, being a British rule and any other rule being in the circumstances of the case impossible. The tone and the standard should be set by those, who have created it and are responsible for it.” (Supplement to Gazette of India, June 4, 1904, p937

After Independence – Now, after independence the hope of the best-talent syndrome belied. It was hoped that civil services would attract the best talents and most competent and qualified youth from all over India. There was a time, when it attracted the best talents of the nation. A large number of intellectuals, engineers, doctors, MBAs and other professionals joined the services. One of the reasons is that now 50% candidates are taken into the services on quota basis with relaxed standards in order to give make space for upcoming sections of society. Reservation of about 50% posts has further eroded the charm to join government services for the talented youth.

Civil services no more attract the best brains.  The willingness of talented and meritorious youths to join government services is now like a passing tide. For the last few years, constant political interference has diluted the charm to join the civil services. The youth find the work atmosphere suffocating, because there is no freedom to do any creative works. It has created many pen-pushing bureaucrats. Disincentive to hard work, merit and sincerity has demoralized the honest and hard working people.  The cream of the society either wishes to join the private sector or to go abroad. Liberalization and globalization has given a boost to this trend.

  • Bloated Size 

Under British rule – As said earlier, “It always puzzled many bigwigs like Stalin, von Ribbentrop and many other foreign observers, namely how barely a thousand British ICS (Indian Civil Service) personnel managed to rule both British India and the princely states with a combined population of well over 300 million during the first part of the twentieth century. Very few statesmen, from Bismarck to Theodore Roosevelt, doubted the quality of British rule. The cadre strength of ICS ‘the steel-frame’ and the predecessor of IAS, the elite service of Independent India, had always remained less than 1500. With that cadre strength, they were able to cope with the administrative work of the undivided India efficiently and effectively.

After independence, white elephant – There is a continuous increase in number. After Independence, the civil services have gradually grown into a bloated and top heavy service. In one of its elite service IAS, which had cadre strength of only 957 officers in 1950, is now having 4377 (as on 1.1.2012) administrators in position. The first causality of this obesity is its efficiency. In Independent India, the annual intake in IAS went up from about 33 in 1947 to 138 in 1965 and to 160 in 1985. The cadre strength in various years is given below: –

                                                                                              Strength of IAS after Independence

Year                                  Authorized   Cadre strength                                                                            In position

 1951                                     1232                                                                                                   957 (Includes 336 ICS)

1961                                    1862                                                                                                     1722 (Includes 215 ICS)

1966                                     2575                                                                                                                  2216

1971                                     3203                                                                                               2754 (Includes 88 ICS)

1976                                  3237                                                                                                        3237

1981                                      4599                                                                                                            3883

1987                                         5260                                                                                                     4633

1991                                     5334                                                                                                   4881

1994                                 4910                                                                                                  4910

2012-     6154                                   4377

Source: Civil lists Pay Commission Reports, Report of Deptt. of Personnel.

It is not only in IAS, but the number of civil servants has increased in all the services. Bureaucracy has become like a white elephant.

Outcome of this increase – The rot set in on account of continuous increase in the number of government employees resulted in:

    • Adverse effect on the “Espirit-d’corps” in the service
    • Creation of additional high level posts to accommodate timely promotions,
    • Establishment expenditure is eating away most of the resources generated by the Government for development projects.
    • Continuous increase at entry point has led to stagnation at Joint Secretary level, resulting in frustration,
    • Creation of many insignificant unnecessary posts, that has very little work or authority,
    • Generating resentment in Non-IAS Services against IAS officers for encroaching the preserves of other services,
    • Side-lining upright officers, thus discouraging excellence of performance. A large number of officers are always there in the queue, willing to toe the line (dictates) of politicians with vested interests.
    • Leading to poor communication, duplication of work, and delay in action and decision taking.
    • Creating multiple layers in administrative hierarchy, over the country

Specialization

During British rule – During pre-independence days there were some 9 All India services to provide adequate manpower at the top of various disciplines + other Non ICS services of generalist nature, which were as popular as ICS was. Even within ICS, immediately after the recruitment, the officers were geared to attain knowledge and experience in specific areas for higher assignments, during probationary period and thereafter-early years of service. Broadly there were three main areas ICS (Judicial as there was not much pressure of Imperial Government on their working) or Indian Custom Service (as they always got postings in big towns).  Even after Independence, for some time, there was not much difference in the social status, career progression, standard and behavior pattern of IAS and Non IAS class I services. However since 1960 onwards, slowly but steadily, IAS has become more and more powerful and the only ‘Elite service’ under Government of India. The display by ICS officers for one kind of work rather than the other, their special knack and aptitude for particular type of work was taken into account for deciding their future career. Therefore, in practice and not in theory, the ICS was building a cadre of specialists in administration and also encouraging further specialization in particular field of administration, not through formal training, but through experience by doing job under the supervision of those, having greater experience. (LK Jha, Administrator as Specialist Management in Government, July-September, 1980)

Now, after independence -After Independence, the need of specialization in IAS, one of the most powerful service in Government of India is much more than it was for ICS. But for one reason or other, contrary is the trend. IAS does not have different functional cadres. Its officers move from one functional area to another. With the result that-

Jack of all trades, but master of none – They are “Jack of all trades, but master of none”. The knowledge of any particular area is not considered important for their appointment to senior posts. Consequently, just as politicians depend on secretaries for knowledge, secretaries depend on their subordinates and technical staff for knowledge and information.

Blind leading the other blind – Many times, when politicians are to be advised on policy issues, alternatives cannot be put forward by them properly, because they, themselves, are professionally ignorant about the subject. It is often alleged that in technical areas, the system of collecting information, analyzing data and using modern innovations is so inadequate, that policy advice is neither according to time nor fully matured. Therefore, critics say that such a practice leads to a situation, where ignorant politicians are being advised by comparatively ignorant generalist officers. The position is similar to blind leading the other blind.

Adverse effect of quick changes, from one type of job to another – The quick changes, from one type of job to another, make the knowledge of IAS officers superficial. There are some hard working and sincere IAS officers, who are eager to learn the maximum about the subject matter of their job. But they are also constrained because of the swift changes from one functional area to another. The real knowledge is obtained by sustained hard work for a long period in one type of job, which enables a person to develop innate ability needed for the smooth functioning and development of that area.

• Creation of more posts – In order to solve the problem stagnation, there the government started creating more and more posts at higher grades. As a remedial action, the Government had sub-divided one job so many times that many senior officers have hardly two or three hour of work a day. What is worse, a number of them are doing jobs, which was earlier done by their juniors.

• A battle between IAS and Non IAS – The story does not end here only. In order to avoid stagnation in its elite service, i.e., IAS, the Government is creating many cushy jobs in public sector corporations, which are manned largely by IAS officers. As a consequence, a battle is going on between IAS and non-IAS central services and also between IAS and State Civil Services just to get top posts in the public sector corporations. While this battle has become something of a scandal, no one bothers, whether services are achieving the objectives, for which they are created.

• Multiplicity of these focal points – By creating more and more posts at the top level, the Government has created too many points of control and coordination. Multiplicity of too many focal points has created overlapping of functions and jurisdictions. More men, less wok, duplication of efforts, lack of supervision and control have resulted in confusion and inefficiency.

• Swift changes makes difficult to fix responsibility – Swift changes, from one functional area to another, make it difficult to hold an officer responsible for any wrong policy. By the time, the results of a policy or the implementation of a program is evaluated, the concerned officer gets shifted to another post, department or goes back to his parent state.

• Unlimited Authority without Responsibility – It is said, “Power corrupts and absolute power corrupts absolutely”. The concept of “Welfare state” and “Development administration” has bestowed immense authority in the hands of Government, which is mainly exercised by the executive, meaning the ministers and the Bureaucrats. But this authority is without responsibility.

• Always someone else held responsible – Whatever may go wrong, either at the field level or at the secretariat level, an IAS officer is never held responsible. If law and order situation deteriorates in a district, IPS officer is held responsible. If a policy decision goes wrong, it is said that the IAS officers were wrongly advised by the specialists or specialized organizations dealing with that particular subject.

Lack of senior’s support

During British period – During British period, young officers were placed under the strict supervision of senior officers, who used to take keen interest in the development of their capacity to run the administration effectively. It was made clear to senior district officers, that it was very important to pay attention to the young officers, who were put under their guidance. Their success in life and reputation, as good officers, depended greatly on the assistance; they received from their seniors at the outset of their career. (GO No.738, published on April 18, 1916, ICS Manual Madras) As a result, the junior officers were groomed well on job and possessed a marked degree of professionalism in their area of activity. Their claim of superiority, over others, was clearly established.

Now after the independence – However, after independence, the scene is not like the past. Senior officers gradually lost interest in their subordinates. Reasons for it are generally the following –

• There is scarcity of experienced officers at the district level. Most of them have drifted to the central and state secretariats or to public corporations etc

• There is lack of personnel planning.

• Premature promotions – Earlier, ICS officers used to work under senior officers for about seven to eight years, before they were given independent charge as collector. Now officers have to take the responsibility of independent jobs prematurely. After foundation training of two years,   hardly a year or 18 months passes, when an IAS officer gets promoted to the responsible post of collector. He is not mature enough either service-wise or age-wise to handle the challenging job of a collector. When officer himself does not have enough experience as a collector (head of district administration), how can he take up the responsibility of training others?

• Senior officers are so occupied with their own work, that they hardly spare enough time and attention to see and guide the work of their juniors.

• Because of changing political culture, senior officers themselves are so insecure, how can they instil sense of security and confidence amongst their juniors?

• Unfortunately, now the main function of the administrative service has become to maintain status quo and defend the wrong practices of its political masters, not to guide well the junior officers or stand by them when in difficulty.

Suggestion of ARC (1968) – ARC had also suggested way back in 1968 that the IAS officers should be confined to areas, which are well known to them and should not be allowed to encroach on those areas, for which, others have acquired special knowledge and experience. (Report of ARC on Personnel Administration in Government of India, 1969, p16) All India Character  Professor Maheshvari has said, “In a never ceasing see-saw game of adjustment and bargaining between the center and the states in federal cum competitive politics, neither its all India outlook, nor its talent, nor even its supposed loyalty to the center comes into active play.” (Maheshwari SR, The All India Service, published in the lecture series of 80th Course on Personnel Policies in practice organized by 11PA, 1980, P305)

IAS is fast loosing its all India character. The Union Home Ministry has, from time to time, advised Chief Secretaries of the states not to recommend transfer of cadre members to their home states, but those with influence are able to manage it. In many states like Bihar, Punjab etc, more than 60% of the officers are from within the state. It is mainly because of the political ties. (Saxena NS, IAS and IPS at war with the state cadre, Times of India, April 6,1984) It has become very difficult for IAS officers to take the side of Union Government, while working in states. It becomes more difficult, when other parties than that of the center rule states. Working with state governments compels them to take care of local influences – political and social. In order to avoid local pressures, many officers avoid field postings. They either prefer to have postings in the state capitals or be on deputation in the central government at Delhi, where there is lesser political pressure on them.

  • Field Experience

An administrator is supposed to maintain links with the people directly through the channels of understanding and persuasion, not through authority or force. Many ICS officers claimed that earlier they had been closer to public than present day administrators. The work experience at district or sub-division level was considered to be a qualification for ICS officers.

During British rule – Personal knowledge of village conditions was considered necessary. The rulers insisted on personal knowledge of its executives of what was happening in the farthest village. Administrative officers established and maintained contact with rural masses at the highest level of the administrative hierarchy. Great emphasis was laid on getting young officers thoroughly acquainted with village and the administrative structure dealing with matters, which touched the rural people, such as land, irrigation, Government loans etc. The most important of these, from villagers’ point of view, was his right on land – whether as owner, tenant or worker. It had to be correctly recorded. Rendering effective, just and quick service to the villagers – Also, various exaction of government, such as land revenue, higher irrigation dues, return of loans etc. were to be fairly assessed and collected. The village community had a vested interest in the efficiency and honesty of revenue system. Whatever be the motivation of British administration, it certainly rendered effective, just and quick service to the villagers. The system was so enforced and watched, that there was no escape, whatsoever from acquiring knowledge about village conditions and methods to deal with them. (Mangat Rai, Commitment my style in ICS, 1973)

Exhaustive touring from village to village – The officers used to make exhaustive tours, moving from village to village and lived a camp-life for considerably long period. The symbol and instrument of village contact was horse. This was partly because of the manner, in which these were conducted, were slow, and easy, involving staying out near village and imbibing thoroughly their atmosphere and conditions. Close contact with people, source of strength in a democracy – The close contact with the common men and the people’s faith in their uprightness gave them the strength to become the “Steel frame” of the whole system.  Now many retired ICS officers claim, that the nature of functioning before the independence was such, that they had better understanding and knowledge of the people of their area than the IAS officers of today. In a democratic, people are the source of strength – this basic truth is forgotten by most of the administrators, making them weaker.

Now, After Independence – Unfortunately, after independence and progressively over the years, importance of field experience has lost its validity.

  • Field experience lost its validity – Most of the officers are habitual of leading a comfortable urban life. It is difficult and troublesome for them to spend enough time in rural areas. As a result, they have to depend to a great extent on the advice of their subordinates there. Many times, there is a lack of timely and reliable information. Escape from field postings – Many smart and ambitious officers find their way out and skip sub-divisional or district experience. A study by DPAR, in 1981, has shown that in eight state cadres, 70% or more IAS officers have not done sub-divisional charge even for two years. (Seventy Seventh Report of Estimate Committee of Seventh Lok Sabha, August 17,1984, pp76-77) IAS is fast becoming a secretariat service.
  • Little grass-root contacts – The same is the story of district charge. Many officers manage their postings at the center and/or state capitals throughout their career and do not care to revive or develop what little grass-root contacts, they had earlier. Because of the improved road network in the villages and availability of fast moving vehicles, such as cars, jeeps etc, the district officers lack the intimate knowledge of the rural areas. The tendency of officers is merely to complete the formality of being on tour, as might have stipulated by the state Government. They make touch and go visits to rural areas, especially the one, which are easily accessible by road, spend the prescribed compulsory number of night halts in some wayside Dak bungalow.
  • Lack of grass-roots contacts making ‘Politicians’ stronger and ‘Bureaucrats’ weaker –Today, politicians are closer to people than bureaucrats. It is due to this lack of enough field experience, grass roots knowledge and experience in the absence of direct contact with the rural masses that the local politicians could exert pressure on administrators. It has made them stronger than bureaucrat.
  • Politicization

Before and after independence – ICS enjoyed the authority to take decisions. The ministers and politicians used to find their authority shadowy over them.

After the independence, the table was turned. Over the years bureaucrats have succumbed to the dictats of its political masters. Now, the minister dictates and the officers obey without any resistance. Dominance of political masters over administrative and economic matters has been one of the prominent features of independent India, which is responsible for the deterioration of law and order and slower rate of economic growth.

The political leaders found the authority to reward and punish officers, through transfers and postings, as an effective tool to make officers fall in line with them and be loyal to them. Honest and upright officers face quick transfers, bad entries, judicial inquiries, and loyalist officer’s prestigious postings, foreign trips special allowances etc. It has made Bureaucrats to succumb almost absolutely to political pressures.

  • Growing politicization of services and lack of support from seniors has put a negative effect on the initiative and creativity of young officers. Today the efficiency of the service as a whole is at its lowest ebb. Complete breakdown of discipline everywhere is mainly responsible for the disintegration of administrative system and its future.

Glamorous service

Until 1960s, there was very little difference between the standard and behavior of IAS officers and class I officers belonging to other services of Government of India. Today, IAS officers deal directly with politicians, plan bigger things, moves all over the world frequently. It has added glamour to the service. The result of this development has been that the IAS has attracted the attention of politicians, especially of those pursuing the sectional interest. To them, entry into IAS is the surest and quickest means to get control over others, to improve one’s status in the society, to command instant admiration and respect of the people, thus in reaching quickly to the commanding position in the society. It is supposed to be the manifest symbol of power. It makes an easy access to levers of authority. It enables them to occupy positions having immense power and privileges at the highest level in the Government. Once in service, a person could lead an easy life, is a general conception. The craze for getting into the service is increasing continuously amongst the newly emerging sections of the society. Most of the new recruits are now not bothered about the high ideals, intellectual competence and high standards of administration, commitment to public service, Constitutional values, or concern for justice. They are mainly interested in exercising the State authority over powerless people and making as much money as possible by misusing their authority.

Red tape

Jayant Narlikar, an eminent scientist, describes government functioning as the soulless movement of files. According to him, India has one of the most obdurate, cold, insular and inflexible Civil Service, the free world has ever known. (Narikar Jayant, Two Cheers for Bureaucracy, Times of India, December 13, 1995, p10) Lord Curzon’s remarks are, “Round and round like the diurnal revolution of the earth went the file – stately, solemn and slow”. Similarly, decades later, Malcolm Muggeridge observed, “It was governments pure and un-defied, endlessly minuting and circulating files, which like time itself has neither beginning nor end.” (Times of India, December 25, 1995)

What should be done?

Sufficient knowledge of the area, in which one works

 The role of civil services have become more demanding and challenging due to the complexity of modern times and fast changing social, political, economic and technological developments of the recent past. Specialization with varied experience, in present atmosphere, means that an officer for strategic senior post should have sufficient knowledge of the area he is supposed to work.  In addition to that in their own discipline, there should be varied experience of different aspects and activities concerned with it – such as planning, coordinating work at different levels, advising ministers on policy matters, taking into account the social, legal and economic constraints, particularly in his/her functional area etc. All this could be achieved only after working in any area for a reasonable period.

Basic qualification – It appears rather odd that a simple graduation is required to enter into the most prestigious service i.e. the IAS. While in other services like Indian Economic Service and Indian Statistical Service, the requirement is a post-graduate degree. In Engineering or technical services a degree in Engineering, which takes four years of rigorous graduation course. The time demands to have a cadre of more and more qualified administrators, more than in the past.  Either the administrators should be selected earlier and then trained properly for their jobs as is being done in Defence Services or MBA degree needs to be made compulsory for appearing in competitive entrance examination. Lateral entries could also be made by including bright persons already employed elsewhere, like: –

•Technocrats having sufficient experience in management,

•Professionals from other civil services,

•Entrepreneurs, willing to switch over.

Promotion policy Promotions in the service should be strictly based on good performance. Administrator should be encouraged to upgrade, sharpen, and focus their knowledge towards analysis and problem solving Closer contact with people could save bureaucrats from undue political pressure – Today’s politicians think themselves to be exclusive guardians of the people. The Administrators have, at present, lost the faith of the people.

The people doubt their credibility and efficacy of occupying policy level posts. Alienation from the common man leads the administrator to base their decisions on second hand information. Because of inadequate data, inefficient resource allocation and inward looking project monitoring; plans and policies remain, often, far away from the reality and actual needs and aspirations of the people. Closer contact, coordination with people and their confidence in administrator could save them from undue political pressure.

Corruption

Many reports reveal that although an increasing number of IAS figures in corruption cases, the wheels of justice are not moving fast enough to punish the guilty. Procedural delays, political patronage and resistance from within the bureaucracy, appear to be helping corrupt officials evade the long arm of the law. People are given all kinds of excuses for the corruption prevalent in the service. Corrupt and self-seeking administrators have become expensive parasites on the system and society.

Independent machinery for transfers and promotions Extensive political controls over transfers and promotions give vast powers to them and unlimited opportunities to make money. Through delays, dilatoriness and excuses they help the greedy and power hungry politicians. In return get their patronage and good postings.

In order to provide bureaucracy functional independence and give a chance to conscientious and competent bureaucrats to contribute for good governance, recently Supreme Court ordered setting minimum tenures for bureaucrats and put curb on arbitrary transfers and postings. But lack of political will is the hurdle on the way to much required administrative reforms.

 Winding up

In short, the reasons of the corrosion of the steel-frame are poor personnel policies, excessive protectionist policies of the Government, bloated size, unbalanced infrastructural development with concentration of authority in a few hands, cumbersome office procedures, increased paper work, delay in action and decision – taking, disincentive to hard work, talent and sincerity, lack of accountability, alienation from the common man and the last but not the least tolerance of people of India, who accept sub-standard administration, giving very little challenge to the officers to upgrade their performance.

Conclusion

Following are the steps to be taken by the government –

  • First of all, the Government of India should merge all its civil services, technical as well as non-technical, into one unified service with an integrated pay structure and career prospects. The Government should ensure complete parity in pay scales, same time- frame for all services for getting promoted into next grade, promotional avenues and career development.
  • For efficient and effective administration, the 21st century administrative machinery needs to be lean, thin and down-sized.• The attainment of high standard of administration depends a great deal on the environment of work, which requires selection of capable officers, proper placement of officers and proper atmosphere of work.
  • On their part, bureaucrats require a change in attitude. They should be accountable for their decisions.
  • There is need to do field duties in districts more seriously, to get the feel of the pulse of the nation and to get people’s cooperation, not by force or use of authority, but by prompting, persuading, suggesting, stimulating and inspiring them.
  • It must be realized by every bureaucrat that he are there because of the people, not the people because of him. People are not an interruption to his work, but the purpose of it. In a country like India, where most of its people are illiterate or semi-literate, mere functional efficiency can not stir warmth. A little glow of welcome in the eyes of civil servant converts disappointment into exhilaration in the public. People, after meeting a civil servant, should return with satisfaction that they were heard patiently and sympathetically and that some one would be taking interest in their problems.

December 29, 2013 Posted by | Bureaucracy/Civil Services | | 5 Comments

Administrators (Generalist) and technocrats (Engineers) in government of India

Generalist Administrators and technocrat Engineers in government of India

“The Engineers’ (specialists) work is out in open, where all men can see it. If he makes a mistake, he cannot, like a doctor bury it; he cannot like a lawyer, blame it on judge or jury. He cannot, like a politician, claim his constituents demanded it.

Nor can he, like a public official, change the name of it and hope people will forget; unlike clergyman, he cannot blame it on devil.

  • If his works do not work, he is utterly damned.
  • If they do work, the world mostly forgets the name of the engineer.
  • The credit goes to some fellow, who used other peoples’ money to pay for it.”

                                      Herbert Hoover

Introduction

Thousands of personnel in government services – For the performance of its manifold activities, government employs thousands of employees – generalist administrators, engineers, technical personnel and professionals – into its administrative set-up (i.e. civil services or bureaucracy) at various levels from almost all vocations, occupations and professions. In the government, all of them are always connected with the exercise of authority. Bureaucracy is always connected with the exercise of authority as its officials belong to the class of power elites. They have to deal with common men – human beings with many complexes, psychological and sociological. Its dealings extend to society as a whole.

Both, generalist administrators and engineers (technocrats) play a crucial role – Both, generalist administrators and engineers (technocrats) play a crucial role in the governance and all-round development of the nation. Together they play the role of knowledge managers in the government. Both being the pillars governance and developmental activities, are responsible to work for the public good. The basic qualities, needed in its officials for achieving its goals are – efficiency, predictability, impersonal nature and speedy working.

Main functions of administrators and technocratsTheir main functions are to formulate/frame and implement the plans and policies in different areas, taking care of the interest of the nation as a whole. For policy making, planning, programs and monitoring and re-evaluating the projects, both dig the information, collect relevant data, give the collected material a shape and present in the form of government’s projects, plans and policies.

Both recruited through an open competitive examination and professionally trainedOfficials for higher level are recruited through an open competitive examination and professionally trained in various disciplines – functional, technical and specialist as well as managerial and generalist such as intelligence services to maintain law and order, diplomatic service for external affairs, technical services for Public Works Department or Electricity Departments, Railways and Customs etc.

Issues

Till today, generalist administrators, belonging to IAS and IPS, receive the greatest possible attention of the Ministers and elective representatives of the people. The government in India has yet to learn to give due regards and free space to work in its administrative system.

Tense relationship between bureaucrats and technocrats – Engineers, in government services are by and large, a demoralized lot finding it difficult to uphold the values of integrity and devotion. They are unable to feel the professional pride. The reasons are –

  • Personnel policies of the government not in tune – The systems/personnel policies of the government are not in tune with the requirements of developmental Administration.
  • The reason of dissatisfaction amongst engineers is that in the government sector, an administrator, especially belonging to IAS, moves up the ladder much faster than a specialist (engineer) as a result of assured career prospects. In the process the posts which are the legitimately belong to specialists and other professional are usurped by IAS personnel.
  • Administrators always remain at the controlling/giving-end. Personnel belonging to specialist services in the government engaged in development functions always remain at asking end. They look up at generalist administrators for passing their plans and get their permission for getting the jobs done.
  • Government’s failure to accord due place to the engineers, professionals and specialists in its administrative set-up has caused a conflict of professional jurisdiction, counter-motivation and a sense of frustration amongst the engineers, specialists and professionals. Such a discarded value system has led to inter-service tensions and rivalries, indifferent attitude of officials to work and perform their duties sincerely.

Liberalization and globalization has given ample of opportunities to hard-working first rate engineers and specialists to join private sector or go abroad. There they get job-satisfaction and fatter salaries. Today technical departments in government are finding it difficult employ and retain talented, upright and sincere persons as they do not want to join the government.

Structure of administrative machinery

The structure of the whole administrative machinery plays an important role in performance of tasks. It is vertically and horizontally divided in order to meet the differing requirements and emerging tasks – concerning governance or developments, so that government can function in harmony and cooperation of all officials. Government divides different posts systematically into several classes in accordance with the nature of functions to be performed, responsibilities to be shouldered and other conditions.

Nature of government functions – The manifold activities of a government broadly fall into the following groups –

  • Control functions,
  • Service functions, and
  • Development functions

Control functions – Control functions deals with maintenance of law and order. It is performed at higher/decision-making level by officials belonging to IAS, IFS; intelligence services -IPS, IB, CBI etc. and revenue services looking after financial activities of the government.

Service functionsTo provide services to public at large, there are some non-technical professional as well as technical services like various Railways, Post and Telegraph etc which provide services to the public at large. And

Development functions – The responsibility of building up permanent infra-structure for the sustainable development of the nation falls on the shoulders of technocrats belonging to superior technical services.

Other yardsticks of position classification – Usually positions, supervision and authority to be exercised downward, other responsibilities, simple or complicated type of work, qualifications required for the post etc., are the factors, which operate in the determination of classification.

The factors, which are usually taken into account for assessing the status, salary-structure, importance and career prospects of various services in government are:-

  • Degree of skill,
  • Strain of work
  • Experience involved
  • Training acquired,
  • Responsibility      undertaken
  • Mental and physical      requirements
  • Disagreeableness of      task
  • Hazard attendant of      the work and fatigue involved

An old battle – The battle between administrators and technocrats for access to the administrative posts at the policy-making and equality in salary dates back to 1957 and now the controversy between them has emerged as the knottiest internal problem facing the government. Partly this problem has been inherited from the colonial past, and partly, it is political leaders’ own making.

Why more importance to Generalist Administrators?

Deep in their hearts, National leaders are very well aware of the importance of various technical and professional services in the emerging development context. They are convinced also that the demands of engineers and other specialists are just and genuine.

  • Intelligence: It is well known that technocrats have brighter and more talented than many IAS officers. Mrs. Indira Gandhi accepted that brightest students choose engineering and medicine. She said, “it is odd that the greatest doctors and engineers in the country, who would be rated as the leaders of the profession and who save lives or add permanent assets to the nation can rarely hope to receive the pay or status of Secretaries of Ministers”. The truth gets confirmed seeing that specialists are securing higher ranks even in the competitive examination for non-technical civil services.
  • Academic qualifications before Recruitment: As far as basic minimum academic qualifications at the recruitment stage is concerned, engineers and doctors have an edge over the generalists, because they have to go through a far more rigorous curriculum in professional institutes before competing for Class I Central Services. The Academic requirements for the government’s most prestigious jobs in the civil service (IAS) and the Foreign Service are lower (only a graduate degree) than the standards set down by other services such as Indian Economic and Statistical Service, which requires a Masters Degree, but still receives lesser importance, so far as the pay scales and career prospects are concerned.
  • Differential in pay structure: One of the arguments propagated for maintaining differential in pay structure is that the quality of a service could be measured in terms of number of written papers set in the recruitment examination for different services. Higher the number of papers, higher the pay scales. This argument is not valid.
  • Higher Responsibility: If shouldering higher responsibility is the major criteria for determining the pay structure, differentials in emoluments, then the Prime Minister, the Cabinet ministers and Parliamentarians should have been highest paid persons in the country as they formulate the national policies and carry the nation with them.
  • No accurate methodology to evaluate responsibilities – No methodology exists to evaluate accurately the responsibilities borne by various services. The Third Pay Commission is on record and has admitted as under “…it is difficult to make inter-service comparison of duties and responsibilities attaching to different posts and results may not be free from controversy” (Third Pay Commission’s Report Vol. I P.113, 1973) and “… we have not found an arithmetical equation between the engineering and Indian Administrative Service practicable….” (Ibid P.137)
  • Hazards of the job: While an IAS officer works from his air-conditioned room in summers and still receives special pay, the specialists have to attend site duties in a remote, difficult and deserted place at accelerated pace at accelerated pace under hot sun to achieve the target before monsoon. The technocrats have to work hard continuously for carrying out the developmental and promotional functions of the government.
  • Permanent assets to the nation – Technocrats give permanent assets to the nation and thus play a crucial role in the modernization process of the country. Do not society and the government acknowledge their valuable contributions? If not more, then at-least pay them equally for their hard work and valuable services?
  • Ignoring the claims of technocrats – The government of India, ever since Independence, has been ignoring the claims of technocrats. It says that they have been employed for doing those jobs, why should they be given special pay or extra facilities. But when it comes to an IAS officer, when he/she is deputed to secretariat, he is offered a special pay for doing that job. In fact now he gets special pay for even holding district charge, for which he is basically recruited.
  • Increased work-load: The Government recommends higher emoluments for personnel of the IAS on the grounds of increased work-load. According to it, Collector’s job has acquired new dimensions with the growth of democratic institutions and now Collectors have to spend a considerable time in consulting and guiding non-official bodies for enlisting public cooperation and participation in schemes sponsored by the Government. Therefore, IAS deserves an edge over other Services. A closer look at the district posting itself, however, reveals the following facts:
    • It is true that the work load of a Collector is multifarious, but at the same time, it is also a fact that the governments in all the states have gone in a big way to reduce the geographical and functional jurisdiction of collectors. Not only the size of districts have been reduced, but posts like District Planning Officers, District Development Officers and Revenue Officers have been created to relieve the Collector of those important functional duties. Consequently adequate neutralization to the increase in workload has been provided through limiting the geographical and functional jurisdiction.
    • Span of field duties – According to Pr. Das Gupta and Pr. Ray, the argument that field duties of IAS are becoming increasingly, complex and arduous – is not valid on the ground that field duties are not the exclusive feature of the IAS alone. As a matter of fact, the field duties are an integral part of other Central Services as well. While the IAS and IPS have the advantage of power and authority to deal with problems of field management, other services have to manage their work under stress and strain of democratic process like the union activities or social, economic and political pressures etc. It can not be argued that the field duties of an Engineer or technocrats are less arduous and hazardous than that of his counterpart in Indian Administrative Service.
    • Does this short stay justify higher pay scales for the entire service? The span of field duties by technocrats is far longer. In 1979, a review was undertaken by DAPR and it was found that direct recruits IAS officer in some states were not getting adequate sub-divisional experience and district experience. “Of the officers with four to five years of service 45% of the Direct Recruits according to our 1979 review and 58 % of the direct recruits in the 1981 review had not been allowed to work as sub-divisional officers for two full years. They were short of two years. Similarly in eight state cadres, 70% or more of the officers have not done sub-divisional charge for two years” (77th Report of Estimates Committee presented to7th Lok Sabha on 17.4.1984, P. 76-77)
    • An officer of the       IAS stays in the post of a Collector for not more than three to four       years in his entire service span of over 35 years. Does this short stay       justify higher pay scales for the entire service? The span of field       duties by officers of Class I Central Services is far longer.

Critical review

Colonial heritageFor British rulers services engaged in control functions were more important than any other. They neither had much interest in public welfare schemes nor did they interfere unnecessarily in the interests of privileged sections of the society. India has inherited many things from their past. The colonial heritage – a carry-over of the colonial bureaucratic traditions – can be seen in elitism, authoritarianism, aloofness, red-tapism and paternalistic tendencies of its administrators.

Importance of control functionaries for Imperial rule – Lloyd George, the British Prime Minister said in the House of Commons in his historic `steel-frame speech’’ on August 2, 1922, that the British Civil Servants were the very basis of the Empire in India and he could not imagine of any period when `they can dispense with the guidance and assistance of a small nucleus of the British Civil Servants … There is one institution we will not cripple, there is one institution we will not deprive of its functions or of its privileges; and that is hat institution, which built up the British Raj – the British Civil Service in India”1.

“Steel-frame of the whole structure’’ – ICS was the `steel-frame of the whole structure’’ of governance of Imperial rule in India and was exclusively trained to suit to the special needs of the British Imperial Power. Sir Edmund Blunt had said, “Superior Indian Civil Servants were the practical owners of India, irresponsible and amenable to no authority, but that of their fellow members.” Dr. Fisher also confirmed “it is the government”.

Popularity of British ICS allover the world – ICS was popular not only in India, but allover the world, “It always puzzled many bigwigs like Stalin, von Ribbentrop and many other foreign observers, namely how barely a thousand of British ICS (Indian Civil Service) personnel managed to rule both British India and the princely states with a combined population of well over 300 million during the first part of the twentieth century. Very few statesmen, from Bismarck to Theodore Roosevelt, doubted the quality of British rule.

Ranking of various services -Main interest of the imperial Government was in maintenance of law and order situation and collection of revenue. British rulers neither took much interest in public welfare schemes nor did they interfere unnecessarily in the interests of privileged sections of the society. For them, controlling wing was more important rather than any of the organizations engaged in service/development functions. Therefore as suggested by Macauley and Ishington Commissions –

  • Superior status to ICS & IP – The superior status accorded to IAS and IP was perfectly in accordance with the aims of foreign rulers. These services were predominantly meant for ‘White-people’ belonging to the elite and rich families of Britain. Their oligarchic socio-economic background had its shadow on them and forced them to form a separate class – a close aristocracy of talent, race and even of colour. They were in-charge of control functions i.e. maintenance of law and order, revenue collection – crucial to perpetuate British rule in India as far as possible.
  • In the middle – In the middle were the Central (professional) services, especially engaged in revenue work, Education, Finance, Telegraph and Communications, Railways and Survey of India etc. occupied a place next to the paramount functions of law and order and revenue collection. These services were meant for implementing the policies of the Union in areas which were directly under Government of India. There was a mixture of European and native officers. Appointment did not require any professional qualification or experience.
  • Least attention to technical services – Technical services were given the least importance.  Technical services required knowledge and experience of a defined field, professional degree/ diploma and/or experience for entering into these services. By its nature of work, Scientific and technical services could not pose any serious danger to the Empire.

Nine All India services – Though British government in India was not much interested in nation-building activities or building up the infra-structure for the benefit of common-men, still on the eve of the Government of India Act 1919, there existed nine All India Services.

Some of the non-ICS services of generalist nature were as popular as ICS. ICS (Judicial) was popular amongst Indian ICS officers as there was not much pressure of Imperial Government on their working. Indian Custom Service was also very popular as its officials were usually posted in big towns.

Abolition of other All India services except for ICS & IP – As the movement for Indianization gained momentum, most of the technical services and services engaged in service functions were either abolished or provincialized.

Indian public opinion allergic to All India Services – Indian public opinion and the attitude of national leaders became allergic to All India Services. It was not on the basis of their actual performance, but because they were controlled by the Secretary of State and were a living symbol of foreign rule.

National interest allowed to go by default – As BB Misra says “It was the ICS and IP that remained unaffected and continued to act as unifying force. Most of the other services were abolished. Considerations of national unity, the positive need of India’s all-round development and the attainment of a minimum uniform standard in administration were allowed to go by default.”

After the independence

Independent India committed to ‘Welfare State’ and ‘Development administration’ – After the independence in 1947, India is committed to the principles of ‘Welfare State’ and ‘Development administration’ The change from one of attending to routine regulatory function to that of promoting a rapid socio-economic based on the principles of socialist and egalitarian society as ultimate national goals demands drastic changes in its administrative set-up.

Sweeping changes in knowledge based modern society In recent past, emergence of a knowledge based society has brought drastic changes, especially after Information technology revolution of 1970s has brought in many changes. The liberalization of the economy in early 1990’s and globalization of the market forces have triggered off sweeping changes too. It is redefining the work-culture of the day.

Importance and responsibility of technocrats increased – The role of engineers/technocrats becomes crucial as they are directly involved in building up the infra-structure for carrying out the developmental and promotional functions of the government. They derive their strength from their increasingly crucial role in the modernization process of the country. Their importance has increased tremendously from their ever-increasing number in service sector of the government; and the work they are supposed to perform for improving the quality of service to the masses.

Needs of Knowledge based modern society – More than just replacing laborious and slow processes with smooth and speedier ones, the organizations, whether big or small, needs to redefine jobs, responsibilities, objectives and broad organizational cultures. The objective is to enable individuals to empower their own environment, make their own decisions and focus on quality and responsiveness to peoples needs within the parameters of organizational policy.

Changed work-culture – The advances in computers, telecommunications or networking technologies and rapid commercialization of the world- wide computer web of network have changed the work-culture of the day. The changes brought in by Information technology Revolution ensures: –

  • Better management controls and decision-making.
  • Improved customer service and speedier response to inquiries.
  • Improved techniques of decision, accuracy of information.
  • On line information.
  • It has made it very easy to get and share needed information, any time and anywhere, for controlling the environment.
    • Today a single computer works in different modes of environment and organization and broadens a person’s acquaintance with EMS, IMS, DSS and DPS (Electronic Message System, Information management system, and decision support system Documentation Preparation system.)
    • Having a centralized system with different departments or industries, connected by a network, supporting management functions i.e. decision making, organizing, planning controlling and initiating would make the future office a paperless office, ensuring direct line, from one computer system to the computers of all concerned.

No more reliance on ‘Jack of all, but master of none’ theory – Now when knowledge-based-society has already taken over the charge, the Jacksonian theory, that ‘Jack of all, but master of none’ does the job better at higher decision-making levels, does not work effectively. It is an age of specialization. There are very few jobs, which can be done efficiently without some measure of specialization through education, knowledge or continuous experience in a specific discipline. All personnel working in organizations and institutions involved in development process need not only the quality of minds, but also the subject-matter contents in their minds.

Bureaucrats in the role of knowledge managers – In the increasingly knowledge-based modern society, bureaucrats play the role of knowledge managers. They are expected to find out knowledge based solutions for different challenges and problems of modern world. For performing their roles effectively, they are required to develop through Management” courses and Training” programs

  • Observation skills, alertness and awareness of their surroundings;
  • Intelligence or basic applicative skill to create solutions;
  • Capacity to collect relevant data;
  • Ability to understand pros and cons of a problem and suggest alternatives;
  • Mental alertness to deliver results within time and cost parameters.

Rapid advances in Information Technology – The advances in computers, telecommunications or networking technologies and commercialization of the world- wide computer web of network have changed the work-culture of the day. The changes brought in by Information technology Revolution ensures: –

  • Better management controls and decision-making.
  • Improved customer service and speedier response to inquiries.
  • Improved techniques of decision, accuracy of information.
  • On line information.
  • It has made it very easy to get and share needed information, any time and anywhere, for controlling the environment.
  • Today a single computer works in different modes of environment and organization and broadens a person’s acquaintance with EMS, IMS, DSS and DPS (Electronic Message System, Information management system, and decision support system Documentation Preparation system.)
  • Having a centralized system with different departments or industries, connected by a network, supporting management functions i.e. decision making, organizing, planning controlling and initiating would make the future office a paperless office, ensuring direct line, from one computer system to the computers of all concerned.

Conclusion

Due regards to technocrats – Immediately after the Independence, in India, where science and technology had yet to make their full impact, technical/specialist services needed to be given due place in the government, as they are directly involved in building up the infra-structure and for carrying out the developmental and promotional functions of the government. Technocrats derive their strength from their increasingly crucial role in the modernization process of the country, their ever-increasing number in service sector of the government and for improving the quality of service to the masses. However, their status has remained almost the same even in twenty first century. Indian Administrative Service is still the elitist service.

The great economic Depression – The great economic depression of 2008 has shaken the global world. Almost all the nations have suffered great losses due to recession and Euro-economic crisis. It has adversely affected the economy of the whole world. To recover from damages done in the recent past, both generalists and technical government services require the personnel of integrity, intelligence, ability and relevant knowledge in their specific areas.

A balanced and harmonious relationship between bureaucrats and technocrats – Good and effective governance and meaningful results of desired goals requires a balanced and harmonious relationship between generalist administrators and technocrats/engineers. Weakening of any part of this pillar could only spell disaster. Therefore, government has to make feasible administrative, organizational and working arrangements rationally and systematically.

National leaders in India are very well aware of the importance of various technical and professional services in the emerging development context. Deep in their hearts, they are convinced also that the demands of engineers and other specialists are just and genuine. But political expediency and motivations stops from taking any concrete step.

July 14, 2013 Posted by | Bureaucracy/Civil Services | , , , , | 7 Comments

Bureaucracy in India in 21st century

Introduction
For the forms of government, let fools contest.
That which is best administered is best.
And also,
But what is best must free man still decide,
Lest leaders gull them and officials ride.     Finer

” …… But with power comes responsibility”  Obama

The institution of Bureaucracy/civil services in India is the oldest and most wonderful institution the British Government had bequeathed to India. It was popularly known as ‘the Steel Frame’ of British administrative structure, Fortunately India, along with Pakistan, has inherited from the past, a unique administrative system, which knows, what these strategic posts are and who are the persons to hold them. British rule evolved the civil service as an efficient, professional and to a great degree incorruptible organization.
For the performance of its manifold activities, government employs thousand of workers into its administrative set-up (civil services/bureaucracy) from almost all vocations, occupations and professions. Government makes all feasible administrative, organizational and working arrangements for its employees.
Effort to find Best talents
In order to employ best talents in the services, every year UPSC conducts a common civil services examination (CSE) for to select personnel for many services under government of India like Indian Administrative Service (IAS), as well as for other non-IAS services like IFS, IPS and other central services for different departments like Revenue, Railways, Audit and accounts etc. It is one of the toughest entrance examinations. There are three stages of this examination ‘Preliminary’, ‘main’ and ‘personality test’ (interview). UPSC conducts annually separate examinations for some technical/professional services.
Apart from selecting officers for Indian Administrative Service, Indian Police Service and Indian Foreign Service, there are some Group ‘A’ and ‘B’ Central services, officers of which are selected through Combined All India Civil Services examination like Indian P & T Accounts & Finance Service, Indian Audit and Accounts Service, Indian Customs and Central Excise Service, Indian Defense Accounts Service, Indian Revenue Service, Indian Ordnance Factories Service (Assistant Works Manager, non-technical), Indian Postal Service, Indian Civil Accounts Service, Indian Railway Traffic Service, Indian Railway Accounts Service, Indian Railway Personnel Service, Posts of Assistant Security Officer in Railway Protection Force (RPF), Indian Defense Estates Service and Indian Information Service.
Group ‘B’ Services includes Railway Board Secretariat Service (Section Officer’s Grade), Armed Forces Headquarters Civil Service (Section Officer’s Grade), Customs Appraisers’ Service, Delhi, Andaman & Nicobar Islands, Lakshadweep, Daman & Diu and Dadra & Nagar Haveli Civil Service and Police Service, Pondicherry Civil Service.
IAS propped up as the Elite service
Earlier ICS, was propped up as an elite service. Its officers in their early twenties would arrive fresh from their ICS training at Oxford to rule single-handedly a district half as big as Wales. They were responsible for maintaining law and order and revenue collection. Now IAS officers have wide-ranging authority in districts as collectors and at centre as policy-makers. They –
Have easy accesses to levers of power.
Are symbol of power – dealing directly with Ministers at centre and provinces.
Have smoothest career-progressions. And
Occupy almost all senior-most posts at centre and States.
Issue
One wonders why the steel-frame of yesteryears has failed to do its job effectively and judiciously, despite having a constitutional status with enough powers to perform their duties freely and frankly. Inefficient and ineffective performance of Bureaucracy/civil services by and large has affected the lives of millions of people. Now sarcastically, people call bureaucracy as ‘babudom’ and bureaucrats as ‘Glorified clerks/Babus.
Why does not bureaucracy take a stand against the unjust dictates of political leaders or corrupt senior officers, who stops them from doing their jobs judiciously? Why and how civil services in India got derailed is a point to ponder. What were the reasons behind ineffective and inefficient performance needs to be analyzed.
Efficiency of ICS officers during British rule
‘Steel-frame of governance’ – It always puzzled many bigwigs like Stalin, von Ribbentrop and many other foreign observers, namely how barely a thousand British ICS (Indian Civil Service) personnel managed to rule both British India and the princely states with a combined population of well over 300 million during the first part of the twentieth century. Very few statesmen, from Bismarck to Theodore Roosevelt, doubted the quality of British rule, and, in a fascinating episode, when Subhas Chandra Bose, the leader of the rebel Indian National Army, flew to Berlin during the Second World War to solicit help from Hitler, the Fuehrer dismissed him, taking the view that Indians needed to be civilized by another hundred years of British rule.
How was the Indian Empire administered with such apparent zeal, efficiency, high-mindedness and impartiality? Even Indian nationalists were more likely than not to agree with such an assessment. One reason for this perception was that the ICS was manifestly neither venal nor corrupt in the way in which, for example, some officials and officers of the old East India Company had been. There are, however, other forms of corruption, including assumptions of racial superiority and the conviction that the ICS always knew best.
Gilmour comes to the sensible conclusion that the men of the ICS displayed a mixture of motives, skills and temperaments. A number of individuals were ?coming to the institution through stiff competition, not the other way round?. Often a District officer in his early twenties would arrive fresh from his ICS training at Oxford to rule single-handedly a district half as big as Wales. The wide-ranging responsibilities of the District Officers of the ICS were responsible for almost everything. The structure of the service started from the District Officers to the Magistrates, Residents, Political Agents, Deputy Collectors, Lieutenant Governors, and so on. (From Rup Narain Das, titled ‘Marx and 1857’, published in TOI, P.22, 16.5.07, excerpts quoted from an article of Gilmour on Marx, June July 15, 1857 in New York Daily Tribune as a leading article)
ICS (Indian Civil Service) called ‘steel-frame of administration’
Lloyd George, the British Prime Minister in his historic ‘Steel-frame’ speech, said it very clearly on Aug.2, 1922 in the House of Commons that British civil servants were the very basis of the Empire in India and so he could not imagine any period, when they could dispense with the guidance and assistance of a small nucleus of the British civil servants. He said, ?I do not care, what you build on it, if you take that Steel-frame out of the fabric, it will collapse. There is only one institution, we will not cripple, there is one institution, and we will not deprive of its functions or of its privileges and that is that institution, which build up the British Raj, the British Civil Service in India.’
What made it so strong and efficient?
What made ICS was strong enough to rear and sustain British rule in India for such a long time was because –
‘Family background’ – Most of them belonged to British professional middle classes.
‘Educational background’ – They had made smooth progression from school to Oxford or Cambridge.
‘Sense of responsibility’ – The ICS, whatever its complexion might have been, had developed traditions of independence, integrity, and hard work. They had deep sense of responsibility. However, these qualities served mainly the British rulers and not so much the Indian masses. They had full freedom and opportunity to do something worthwhile.
‘Work atmosphere’ – So far as it did not jeopardized the Imperial interests, ICS officers thought it their duty and took it as a challenge to provide, Care, protection and guidance, ultimately liberty to the people, they ruled (Times of India, August 10, 1997, p2). Mr. Lines, an ex- ICS officer, said, “I suppose, we thought of a simple Indian villager. Here are simple people, who need leadership. Mr. Arthur, another ex ICS officer, said, Their attitude, certainly was paternalistic, which was necessary in a colonial administration.
‘Bright career prospects’ – Extremely generous salaries and quick promotions.
‘Slim and trim service’ – just over a thousand at any given time ? made for a strong sense of service loyalty.
‘ Esprit-de-corps’ – Philip Maser said that there was esprit de-corps’ amongst the officers. Lines pointed out, ‘It is the Esprit de’- corps’, which served to enforce a strong moral code. It did not need to be articulated. Every body knew it.
‘Honesty’ – Clive Dewey said that the historical evidence pointed out to only a minute handful of officers being corrupt. It was partially their salaries, partly their background, partly their sense of duty and partly ivory tower, in which they lived, which made any rumors extremely uncomfortable (Dr. Clive Dewey, Anglo Indian attitudes, 1993).
Balance of Power
Illbert Bill controversy indicates that White bureaucrats were not at all prepared to share administrative powers with Indians, in spite of all the official declarations of 1833, 1858, 1861, 1892 and 1909.
When the demand for the participation of Indian nationals at higher levels of administration increased, the dominance of Brahmins in administration, though mainly at lower level, had cautioned the rulers. They regarded Brahmins as the main force behind the entire national movement, agitations and terrorist activities. Therefore, British rulers tried their best to balance the power in such a way, that no section of Indian society could become strong enough to pose a threat to its rule in India. They managed it by adopting the following measures –
‘Propped-up other sections of society against Upper’-castes – The British thought it necessary to keep a balance of power by propping up other sections of the society in order to stop the preponderance of Brahmins and forward castes in modern callings.
Divided Indian population – Through censuses, the rulers divided the Indian population into different groups, i.e. upper castes, backward castes, scheduled castes, scheduled tribes and minorities.
Start of quota system – To counter Brahmin’s dominance in administration, the British designed Reservation Policy. They fixed up quotas in government jobs for different sections on the basis of caste, community, occupation, religion etc.
‘Separate representation and preferences to non-Brahmins’ -Through the Acts of 1909, 1919 and1932 the rulers provided separate representation to different communities in Legislative Councils and Assemblies. The rulers bestowed special benefits and preferences in education and jobs for different upcoming groups.
ICS remained untouched from preferential treatment till end – Though the British Government gave preferential treatment to upcoming groups in government jobs, British rulers kept the ICS untouched from the quota system till the last. They firmly and clearly said to the upcoming groups that they wouldn’t weaken their Steel frame at any cost for any body, as on it depended, efficient governance of the country.
It was told the upcoming groups in clear terms, ‘With its utmost desire to do so, the best for these classes, the Government will be and is powerless to help them, unless they qualify themselves to the same extent as others of their countrymen for duties of administration and public’ (Times of India Archives, May3, 1918).
‘Breakdown of the spirit of the civil services in India
With the intensification of national movement and introduction of Diarchy, the downfall in the quality of work began to fade. Pannikar says, ?The Lee Commission (1923) was the first evidence of the breakdown of the spirit of the civil services in India, for after that there was no claim, that the British Civil Service in India, competent though they continued to be to the end, was anything more than a group of officers doing their work for purely material considerations. The idealism of the past had vanished? (Pannikar KM, The Development of Administration in India, Bulletin of Public Administration, Patna, Patna University?s Institution of Public Administration, vols. 2 and 3, p14.)
The Rawland Committee remarked, ?The present position, in our judgment, is thoroughly unsatisfactory both from the point of view of the district officer himself, as well as, from the point of view of the efficiency of the governmental machine and welfare of the people in the district?. He is expected to see that nothing goes wrong in his district, but he has little power outside. The Magistrates and Collectors failed to see that things go right. He is supposed to compose differences between other officers, but he has no power to impose his will upon the recalcitrant. He can cajole and persuade, he can not compel? In our view, the situation, if left to itself, can only deteriorate further, because activities of the Government in the mofussil will increase and practically every department is thinking in terms of Provincialized Service and makes little attempt to disguise its determination to go ahead with its own plans, without reference to any other part of the Government? (Report of the Bengal Administrative Enquiry Committee, 1944-45, p18).
Transfer of power
In 1935, with the intensification of the nationalist movement, supported by Indian National Congress Party and growing demand for greater Indian participation in Government and its administration at higher levels, the Colonial rulers delegated some authority to the provinces. They were aware of the consequences of delegation of authority to the provinces. Therefore, they transferred to the Provincial Governments only the authority to manage the services engaged in service-functions and kept ?control functions? i.e. maintaining law and order and revenue collection in their own hands. Ultimately in 1947, India got its freedom as an independent country.
After independence
Civil services after the Independence
With the attainment of Independence and adoption of socialist and egalitarian society as ultimate national goals, the demands on administration had undergone a qualitative change. The basic task of administration changed from one of attending to routine regulatory function to that of promoting a rapid socio-economic change. Bureaucracy was now expected to play a significant role in administrative and developmental work of the Government.
Fall in the standard of governance
Instead of it, there has been a gradual decline over the years in the quality, competence and commitment of the administrative officers. Once known as the ?Steel frame? of the ?Whole structure?, has started shaking under its own pressure. Undesirable political pressure on it increased continuously. With the result that bureaucracy in India has now appears to be unable to meet the challenges of the day and has become an ineffective and powerless institution. Offices in the government have become dens of corruption, mismanagement and mal-administration.
Dreams of constitution-framers
The forefathers of the Constitution realized the importance of civil services in order to ensure good governance to the country and providing the safety of the nation. Mr. MV Kamath said, ?With the independence of our country, the responsibilities of the services have become onerous. It may make or mar the efficiency of the machinery of administration, machinery so vital for the peace and progress of the country. A country without any efficient Government service can not make progress in spite of the earnestness of the people at the helm of affairs of the country. Whatever democratic institutions exist, experience has shown, that it is essential to protect public services as far as possible from political and personal influence and to give it that position of stability and security, which is vital in its successful working, as an impartial and efficient instrument, by which Government of whatever political complexion may give effect to their policies? (Constituent Assembly Debates, Vol. IX, p585).
Mr. Subharajan said during Constituent Assemble debates, ?Without an efficient civil service, it would be impossible for the Government to carry on and continuity to be kept. The importance of the Governmental administration has been in the fact that there is continuity and unless this continuity, there is chaos? (Constituent Assembly Debates, Vol. IX, p952).
Vallabh Bhai Patel in his letter to the Prime Minister wrote, ?I need hardly emphasize, that an efficient, disciplined and contended (civil) service, assured of its prospects as a result of diligent and honest work, is a ?Sine-quanan? of sound administration, under a democratic regime, even more than under an authoritarian rule. The (civil) service must be above party and we should ensure that political consideration, either in its recruitment or its discipline and control, are reduced to the minimum, if not eliminated altogether? (Patel Vallabh Bhai in a letter to Mr. Nehru).
After Nehru?s midnight hour speech between 14th and 15th August 1947, Dr. Radhakrishnan warned the nation, ‘Our opportunities are great, but let me warn you that when power outstrips ability, we will fall on evil days. We should develop competence and ability, which would help us to utilize the opportunities, which are now open to us. A free India will be judged by the way, in which it will serve the interests of the common man in the matter of food, clothing, shelter and social services.’
Civil services in Independent India
Independent India required that the civil administration at every level must be equipped with officers having the capacity to meet various challenges of the modern India. The success of government’s welfare and developmental plans would depend largely upon the efficiency of its administrative cadres.
Government employs thousands of workers into a governmental organisation from almost all vocations, occupations and professions. Its administrative system is vertically and horizontally divided in order to meet the differing requirements and emerging developmental tasks.
Jobs in the Government have always remained an attraction for the youth. Entry into IAS and central services are the most sought-after jobs for students as it provides the highest entry point in bureaucracy. Its recruits have to pass through a well-planned entry competitive examination and rigorous professional training.
After joining the services, the civil servants are engaged at different levels of administration and play an important role in policy-making and decision-making processes and their implementation work.
IAS (Indian Administrative Service) the successor of ICS after Independence
After independence, Indian Administrative Service (IAS) was created as the successor of ICS, which was till now a reputed, efficient and powerful service. IAS is now an elite service meant predominantly to be engaged in control functions of Indian provinces. IAS officers, like their predecessor ICS, deliberate directly at the highest level of policy formulation and decision making. They exercise state authority from day one and continue to do it till their retirement. Along with the council of Ministers, they control, virtually, all the levers of the governance of the country.
Right from its inception, IAS has attracted the maximum attention of the government and the politicians. Also for an educated youth, it is a matter of pride to be a part of IAS, as it was with the ICS in pre-independence days. Like ICS, the Government offers to IAS best career prospects, more power, higher responsibilities, higher salaries, better perquisites and superior status than any other service at the center or in the states and a place of pride in socio-political circle. Along with it, there are many other services at central, provincial and local levels in the bureaucratic set-up of the nation.
Functions of the civil services
The civil administration, whether in Centre or in State, can be divided into two groups:
? Working in the Secretariats ? Policy making body;
? Working in field organisations ? for implementation of policies and plans.
Working at Secretariat level -Working in the Secretariat exposes the officers to policy perspective in diversified subjects like agriculture, horticulture, power, coal, transport etc. The work in Secretariat requires bright officers having experience and knowledge in relevant areas. The IAS officers on deputation from different states occupy most of the senior posts in Central Secretariat. In the State Secretariats also, it is the IAS Officials, who are posted on the top posts in almost every department.
Following are important functions at the level of Secretariat: –
?Obtaining decisions on policy matters and enunciating policy decisions in clear language,
?Overall planning and finance,
?Legislative business,
?Personnel management policies,
?Legal advice,
?Coordination and cross clearance among the administrative departments, in the Secretariat,
?Communication with central institutions like the Planning Commission etc., and
?Overall evaluation, supervision, control and coordination of the work being done by the field organizations.

March 7, 2013 Posted by | Bureaucracy/Civil Services | , , , | 1 Comment

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