'INTEGRITY IN ADMINISTRATION: A STUDY OF CORRUPTION IN INDIA" THESIS SUBMITTED FOR THE AWARD OF THE DEGREE OF // ^ •' IN ''' ' " j - POLITICAL SCIENCE ^ SHAISTA ZAFAR Under the Supervision of Dr. M. NAFEES A. ANSARI DEPARTMENT OF POLITICAL SCIENCE ALIGARH MUSLIM UNIVERSITY ALIGARH (INDIA) 2006 r^ *""^'V;;;v T6876 Department of Political Science TELEPHONES Aligarh Muslim University Chairman : (0571)401720 AMU PABX : 400916/400920-21-22 Aligarh - 202002 Chairman: 364 EXT Office : 365 EXT FAX : 0571-400528 Dated: 18-4-06. This is to certify that Mrs. Shaista Zafar has completed her thesis entitled "Integrity in Administration: A Study of corruption in India," under my supervision and is, in my opinion, suitable for submission for the award of the Degree of Doctor of Philosophy in Political Science of the Aligarh Muslim University, Aligarh. Dr. Md. Nafees A. Ansari (Supervisor) CONTENT Page No. Preface Acknowledgements Chapter I 1-37 > Part One Introduction Civil Services: A Historical Perspective 1. Pre-independents Period 2. Post Independents Period > Part Two Civil Services: Integrity in Administration 1. Meaning of Corruption 2. Effect of Corruption 3. Doctrine of Anonymity 4. Doctrine of Civil Service Neutrality 5. Causes of Decline of Integrity in Administration Chapter II 38-92 > Part One Bureaucratic Corruption Bureaucratic Role of Police and Rule of Law > Part Two Political Corruption Nexus Between Politician and Bureaucratic, Bureaucratic and Criminal > Part Three Economic Impact 1. Payments that Equate Supply and Demand 2. Bribes as Incentive Payments for Bureaucrats 3. Impact and Politically Legitimacy Chapter III 93-148 > Part One Problem of Election in India 1. Problem of Genesis 2. Role of Political Parties > Part Two Electoral Politics Reforms 1. Role of Election Commission 2. Role of Parliament 3. Role of Judiciary Chapter IV 149-191 > Part One Reforms of The Civil Services 1. Pay Reforms 2. Conflicts of Interest 3. Training Recruitment Reform Administrative Vigilance > Part Two Criminalization of Politics 1. Nexus Between Politicians and Criminals 2. Anti Corruption Agencies (CBI, CBC) Chapter V 192-207 > Conclusion Appendix 208-214 Vohra Committee Bibliography 215-228 Preface Corruption is the malady of Indian bureaucracy. It has gone into the very root of the bureaucratic structure we have inherited from the British. The civil services are in general prone to illegal extortion of money from the people before doing their work. Corruption was well known in pre British India, and continued in the late eighteenth century under the East India Company. The malpractice remained prevalent, however among the lower grade officials of the police and of he excise, revenue and public works departments. The politics is now the conduct of the public affairs for personal. In the British period the Indian bureaucracy was at all intents and purpose running a police state. The very objectives of the state were radically, or rather, regressive by different from the present day. The most important task of the district administration from the times of hasting and then Cornwallis was revenue collection, a preoccupation which is still apparent in the designation of the chief administrator of an Indian district today. In India as in other colonies the British lived up to Napoleon's description- a nation of shopkeepers. Civil service depends entirely on government money. A problem of ethics in public service may be said to exist whenever public servants, use positions in a way, a result of attempt to achieve some from of private gain at the expense of public welfare or common good. Remedies to be find out by the people them selves. There is nothing intrinsic in our couture, way of life or climate to make us work less. The true corrupt events in the country is now forcing the people to take, recite and write on what's going wrong, where and what will be the future of this country which is going through one of the most corrupt times. In India can do again all that it did in the past. We must go to our glorious past. The sociologists are determined to "learn from history". One learns what one wants to learn and his inclinations in the matter are not independent of his underlying, inarticulate attitudes. Specific Japanese Zen concept of learning that one learns in order to do better what one already knows how to do well. We should learn confession from Jesus, God fearing from the prophet of Arabia than we shall be able to act as The Gita wants us to do. Absence of historical knowledge produces a feeling of root less ness and what is true for individuals is true of societies. We must remember that the idea of national identity the self awareness of the nation is self-image, and its values spring from the desire for fixed points of reference in the enlarged world today. The self image of India Is tentative in character and has evolved from the way it perceives its history from ancient times through many countries of decline. The main objectives of this aim that reforms of the civil services, electoral reforms and ramifications of bureaucratic corruption in macro perspective main and dishonesty and illegal behavior in position of authority and power. How then should a state structural is bureaucracy so that honest Government service is a plausible career choice for educated citizens ? under some conditions only reform is politically feasible. It is essential that the government should be in a position to regenerate the conduct of its servants in order to uphold the interest of the Government and to serve the interest of the common man. Needless to say, the above modification is another attempt to see that the bails in corruption case and conducted by the courts as expeditiously as practicable. Procurement reform serves as a third basic component of an anticorruption shuteye should be viewed as an opportunity to rethink what the government busy as well as Raw it goes about making purchases developing countries could experiment with experience eating for contractors. The adoption of move transparent processes and more celiance on vargainin. In developing countries with a scarcity of skilled procurement excepts and work public accountability the case for benchmarking and the purchase of standard items is even stronger than other countries. A corrupt and incompetent civil service can defeat all other efforts. How then should a state structure its bureaucracy so that honest government service is a plausible carrier choice for educated citizens? "Education obviously must play an important role in aiding men to learn how to behave morally civil service is expensive and politically different and it may appear beyond the capacity of many poor countries yet it cannot be avoided. In some countries government pay has fallen rapidly in recent years as fiscal pressures have led government to cut spending some times World Bank and IMF insistence as reductions in the wage bill as a condition for assistance has acceptingly contributed to corruption. The nearly impoverished public employees term to bribery as a way of regaining some of their lost wages obviously, the world Bank and the IMF should stop these counterproductive policies. Acknowledgements I bow in reverence to the Almighty Allah whose gracious blessings gave me the required courage and devotion to complete this task. I acknowledge my profound sense of gratefulness to Prof, M. Murtaza Khan, Chairman, Department of Political Science, Aligarh Muslim University, Aligarh for his intellectual guidance. I am highly indebted to my supervisor Dr. M. Nafees A. Ansari, lecturer department of political science, University of A.M.U. Aligarh for his invaluable guidance and advice. Which were necessary for successive completion of this work, with immense patience and understanding rehelped me developed a keen interest in the topic of my study and thought me how to approach the problem in a manner befitting a research student. I carmot over look the appreciable facilities and help extended by the staff member of M.A. Library, A.M.U. Seminar library of the department of political Science, A.M.U. and 1.1.P.A. from Delhi. My thanks are also due to the non teaching staff of the Department, especially Mr. Qamar Uddin and Mr. Vakeel for their kind help. I shall be failing in my gratitude to my parents and for their inspiration affection and constant encouragement, which sustained me trough out this venture. (SHAISTA ZAFAR) Chapter -1 INTRODUCTION PART ONE-Civil Services: A Historical Perspective 1 Pre independents period 2 Post independents period PART TWO- Civil Services: Integrity in Administration 1 Meaning of corruption 2 Effect of corruption 3 .Doctrine of Anonymity 4 Doctrine of civil service neutrality 5 Causes of Decline of Integrity in Administration INTRODUCTION PART ONE-Civil Services: A Historical Perspective 1 Pre Independence Period In ancient India the civil services lacked in continuity. With the fall of the empire came the fall of the civil services too. The new ruler did not have faith in the officers and employees in service during the regime of the out going ruler. The civil services owed loyalty either to king personally or to the ruling dynasty. As such there were no questions of retaining these in service who had served under the out going monarch.' Ashoka, who tried to apply Kautilya's principles of government in his administration, emphasized speedy dispatch of business. There are numerous reference to the prevalence of official corruption in India. But the most elaborate reference source seems to be Kautilyas Arthashastra. Its chapter entitled "Detection of what is embezzled by government servants out of state revenue." •^ During the Mughal period the institution of Mansabdars developed. It was a combined civil and military bureaucracy. During the Hindu period the civil and military establishments were separately maintained.