Civil Service Management and Administrative Systems in South Asia Ishtiaq Jamil · Tek Nath Dhakal Narendra Raj Paudel Editors Management and Administrative Systems in South Asia Editors Ishtiaq Jamil Narendra Raj Paudel University of Bergen Campus, Bergen, Norway Central Department of Public Administration Tek Nath Dhakal Tribhuvan University Central Department of Public Kirtipur, Administration Tribhuvan University Kirtipur, Nepal

ISBN 978-3-319-90190-9 ISBN 978-3-319-90191-6 (eBook) https://doi.org/10.1007/978-3-319-90191-6

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This Palgrave Macmillan imprint is published by the registered company Springer International Publishing AG part of Springer Nature The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland Preface

This book is a result of hard work by many people and institutions of higher learning in Scandinavia and South Asia who have been cooper- ating and developing partnerships for over a decade. Our efforts have culminated in a number of academic and practical results. We have devel- oped graduate and postgraduate educational programmes, conducted evidence-based research, and disseminated knowledge not only to stu- dents of political science and public administration but also to people working in public administration and members of civil society organiza- tions. The editors are deeply grateful for this partnership and wish to see it fourish further and remain academically productive. This book is about civil service and public administrative systems in South Asia. It maps reform efforts, describes how different nations in the region attempt to build their administrative institutions, and the kinds of experiments carried out in search of better governance. What are the lim- itations and possibilities of an organization with a chequered history? To what extent has the public administration system in a country remained robust? Has it resisted change, or has it gradually changed over the years to be more receptive to new ideas and responsive to society and citizens? Each chapter describes and explains historical developments in the administrative system in a country and the reform measures leading to its current structural and functional confguration. These chapters also discuss the numerous efforts made by various regimes and international bodies to streamline public administration in a quest for good govern- ance. The authors discuss how recruitment to the civil service is done,

v vi Preface the promotion and the quota system to enhance representativeness, the training of civil servants, the problem of politicization, and its role in the changing political and socio-economic scenarios. They shed light on the challenges of trying to graft modern administrative techniques onto systems imbued with traditional and colonial administrative norms and practices. South Asia has become democratic but at the same time more politi- cally volatile. Within such a context, what form does public administra- tion have, how does it perform its duties, and what roles does it play? Is the spirit de corps, which was the hallmark of civil service during the colonial era, still intact? These are some of the issues explored in the chapters in this volume. The book is relevant for students and scholars of political science, public administration, , and governance studies. It is rare, if not unique, to fnd a book that describes and explains civil service systems and public administration in South Asia. Afghanistan is the only country not included in the discussion. We have chosen instead to include a chapter on China. Some of the chapters focus particularly on the development of local government systems. We would like to express our gratitude to a number of institutions and individuals. The Norwegian Agency for Development Cooperation (NORAD), through its NORHED programme (the Norwegian Programme for Capacity Building in Higher Education and Research for Development), has provided fnancial support for our collaboration in education and research, and for enabling partnerships to develop between the University of Bergen in Norway, Tribhuvan University in Nepal, North South University in Bangladesh, and the University of Peradeniya in Sri Lanka. For this we are deeply grateful. We would also like to thank the contributing authors who have shown great interest in the book project, and our publisher, Palgrave Macmillan. Finally, Arlyne Moi has been an excellent copy editor and deserves special thanks from us all.

Bergen, Norway Ishtiaq Jamil Kirtipur, Nepal Tek Nath Dhakal Kirtipur, Nepal Narendra Raj Paudel February 2018 Contents

1 Introduction: Understanding Civil Service in South Asia 1 Ishtiaq Jamil, Tek Nath Dhakal and Narendra Raj Paudel

2 The Civil Service System in Bhutan 25 Dhurba Rizal

3 The Civil Service System of Bangladesh 49 Sk.Tawfque M. Haque and M. Mahfuzul Haque

4 Civil Service Management in 73 Namrata Singh

5 Civil Service Management in Nepal 99 Shree Krishna Shrestha and Narendra Raj Paudel

6 The Promise of Representative and Citizen’s Trust in the Civil Service in Nepal 121 Ishtiaq Jamil

7 Civil Service Reforms in the Islamic Republic of : Progress So Far, Implementation Barriers and Challenges 149 Imtiaz Badshah and Konstantin Timoshenko

vii viii Contents

8 The New Statutory Civil Service in the Maldives: Towards a Decentralized Human Resource Management Model? 173 Mohamed Faizal and Rob Laking

9 Public Administration in Sri Lanka: An Analysis of Evolution, Trends, and Challenges in Personnel Management 193 I. Renuka Priyantha, W. K. Ranjith Dickwella and Ravindra Gunasekara

10 The Administrative System in Bangladesh: Reform Initiatives with Failed Outcomes 215 Pranab Kumar Panday

11 Reforms in the Administrative System of Nepal 241 Bharat Gautam

12 The Local Administrative System in India 261 Jitendra G. Wasnik

13 Public Administration in Sri Lanka: An Inquiry into Structure, Reforms, and Management 281 K. Liyanage, R. Ramesh and N. Sivakumar

14 The Development of Public Administration in the People’s Republic of China: An Analysis of Administrative Reform 305 S. Baskaran and M. M. Ihjas

Index 325 Contributors

Imtiaz Badshah Faculty of Business, Languages, and Social Sciences, Østfold University College, Halden, Norway S. Baskaran Department of Political Science, University of Peradeniya, Peradeniya, Sri Lanka Tek Nath Dhakal Central Department of Public Administration, Tribhuvan University, Kathmandu, Nepal W. K. Ranjith Dickwella Department of Political Science, University of Peradeniya, Peradeniya, Sri Lanka Mohamed Faizal National Pay Commission, Malé, Maldives Bharat Gautam -Parliament Secretariat, Kathmandu, Nepal Ravindra Gunasekara Department of Political Science, University of Sri Jayewardenepura, Gangodawila, Nugegoda, Sri Lanka Sk. Tawfque M. Haque Public olicy and Governance (PPG) Program, North South University, Dhaka, Bangladesh M. M. Ihjas Department of Political Science, University of Peradeniya, Peradeniya, Sri Lanka Ishtiaq Jamil Department of Administration and Organization Theory (DAO), University of Bergen, Bergen, Norway

ix x Contributors

Rob Laking School of Government, Victoria University of Wellington, Wellington, New Zealand K. Liyanage Department of Political Science, University of Peradeniya, Peradeniya, Sri Lanka M. Mahfuzul Haque Public Policy and Governance (PPG) Program, North South University, Dhaka, Bangladesh Pranab Kumar Panday Department of Public Administration, University of Rajshahi, Rajshahi, Bangladesh Narendra Raj Paudel Public Administration Campus, Central Department of Public Administration, Tribhuvan University, Kirtipur, Nepal I. Renuka Priyantha Department of Public Policy, University of Ruhuna, Matara, Sri Lanka R. Ramesh Department of Political Science, University of Peradeniya, Peradeniya, Sri Lanka Dhurba Rizal Central Department of Public Administration, Tribhuvan University, Kirtipur, Nepal Shree Krishna Shrestha Public Administration Campus, Central Department of Public Administration, Tribhuvan University, Kirtipur, Nepal Namrata Singh Department of Political Science, Miranda House, University of Delhi, New Delhi, India N. Sivakumar Department of Political Science, University of Peradeniya, Peradeniya, Sri Lanka Konstantin Timoshenko Nord University Business School, Nord University, Bodø, Norway Jitendra G. Wasnik Department of Public Administration and Local Self Government, RTM Nagpur University, Nagpur, Maharashtra, India Abbreviations

ACR Annual Confdential Reports ADB Asian Development Bank AIS All India Service APUG All Pakistan Unifed Grades ARC Administrative Reform Commission ARC Administrative Reform Committee ARMD Administrative Reform Management Division ASRC Administrative and Services Reorganization Committee BCS BCSE Bhutan Civil Service Examination BPATC Bangladesh Public Administration Training Centre BRGF Backward Regions Grant Fund Programme CARC Civil Administration Restoration Committee CARR Committee for Administrative Reform and Reorganization CC Control of Corruption CCP Chinese Communist Party CCS Civil Service and Central CS CDO Chief District Offcer CDP Community Development Programme CEE Central and Eastern European CISF Central Industrial Security Force CS Civil Service CSAT Civil Services Aptitude Test CSC Civil Service Commission CSE Civil Services Examination CSP Civil Service of Pakistan

xi xii Abbreviations

CSRU Civil Service Reform Unit CSS Central Superior Services DCB Decentralized Budget System DCS Department of Census and Statistics DDC District Development Committee DDC Divisional Development Councils DFID Department for International Development DoPT Department of Personnel and Training DPA District Political Authority system DPC District Planning Committees ELDP Leadership Development Programme FATA federally Administered Tribal Areas FCR frontier Crimes Regulations FMRP fiscal Management Reform Programme FPSC federal Commission FUG federal Unifed Grades GCS General Central Services GE Government Effectiveness GN Gramaniladhari GON Government of Nepal GSEA Gender and Social Exclusion Assessment HAG Higher Administrative Grade HMG His Majesty Government IA & AS Indian Audits & Accounts Service IAS Indian Administrative Service ICS Indian Civil Service ICT Information and Communication Technology IDAS Indian Defence Accounts Service IDES Indian Defence Estate Service IFS Indian Foreign Service IFS Indian Forest Service IIS Indian Information Service IP & TAFS Indian Post & Telecommunication Accounts and Finance Service IPS Indian Police Service IRAS Indian Railway Accounts Service IRPS Indian Railway Personnel Service IRS Indian Revenue Service IRTS Indian Railway Traffc Service JAG Junior Administrative Grade JTS Junior Time Scale LDO Local Development Offcer MLC Martial Law Committee ABBREVIATIONS xiii

MOGA Ministry of General Administration MoPMR Ministry of Public Management Reforms MoPR Ministry of Panchayati Raj MPF Ministry of Finance and Planning NAB National Accountability Bureau NARC National Administrative Reforms Council NASC Nepal Administrative Staff College NCS Nepalese Civil Service NES National Extension Services NGO Non Governmental Organization NPC National People’s Congress NPM New Public Management NRB National Reconstruction Bureau NSPP National School of Public Policy OSD Offce on Special Duty P & SC Pay and Service Commission PARC Public Administration Reform Commission PC Provincial Council PCS Provincial CS PDP Professional Development Programme PEAIS Panchayat Empowerment and Accountability Incentive Scheme PESA Panchayats Extension to the Scheduled Areas Act PO President’s Offce PRC People’s Republic of China PRI Panchayat Raj Institutions PRIS Performance Related Incentive Scheme PSC Public Service Commission PSCBP Capacity Building Project PV Political Stability and Absence of Violence RCSC Royal Civil Service Commission RL Rule of Law RMU Restructuring Management Unit RPF Railway Protection Force RQ Regulatory Quality SAARC South Asian Association for Regional Cooperation SAG Senior Administrative Grade SC Scheduled Castes SLIDA Sri Lanka Institute of Development Administration SOE State Owned Enterprise SSAB State Services Advisory Board SSC Staff Selection Commission SSDB State Service Disciplinary Board xiv Abbreviations

ST Scheduled Tribes STS Senior Time Scale UML United Marxist Leninist UNDP United Nations Development Programme UPA United Progressive Alliance UPSC Union Public Service Commission UZP Upazilla Parishads VA Voice and Accountability VDC Village Development Committee WGI Worldwide Governance Indicators WTO World Trade Organization List of Figures

Fig. 7.1 The administrative structure of Pakistan (BA Bajaure Agency; MA Mohmand Agency; KA Khyber Agency; OA Orakzai Agency; KUA Kuram Agency; NWA North Waziristan Agency; SWA South Waziristan Agency; FRP Frontier Region Peshawar; FRK Frontier Region Kohat; FRB Frontier Region Bannu; FRLM Frontier Region Lakki Marwat; FRT Frontier Region Tank; FR D.I.K. Frontier Region D.I. Khan; SD Sub-Division; Teh Tehsil) 151 Fig. 10.1 Administrative structure in Bangladesh (Source Modifed from Kalimullah et al. 2013) 218 Fig. 10.2 Existing structure of local government in Bangladesh. Adopted and modifed from Ahmed (1998) and Panday (2011) 220

xv List of Tables

Table 1.1 Civil servants in South Asia 5 Table 1.2 Administrative reform initiatives in Nepal 20 Table 1.3 Bangladeshi reform commission initiatives 20 Table 1.4 Administrative reform commissions in India 21 Table 1.5 Administrative reform initiatives in Pakistan 22 Table 1.6 Administrative reform initiatives in Sri Lanka 22 Table 2.1 Composition of civil servants in percentage (2000–2016) 35 Table 2.2 Educational qualifcations 36 Table 2.3 Position category and structure 40 Table 4.1 The services recruited through Civil Services Examination 82 Table 4.2 Pattern of CS mains examination 84 Table 4.3 Worldwide governance indicators for India for fve selected yearsa 92 Table 5.1 Trend of Nepalese Civil Service (1962–2014) 101 Table 6.1 Hypothesized relationship between bureaucratic representativeness and trustworthiness of civil servants in Nepal 127 Table 6.2 Questionnaire surveys in 2008 and 2014 and sample size 132 Table 6.3 Composition of (gazetted posts) recruited in the periods 2000–2001, and 2010–2011 on the basis of gender, religion, caste, parental occupation, and development regions 134 Table 6.4 Percent distribution of civil servants recruited under the reservation/quota policy in the period 2010–2011 135

xvii xviii List of Tables

Table 6.5 Bureaucratic representation in the undersecretary, joint secretary, and secretary level positions in 2014. Percent distribution. N 3805 137 = Table 6.6 Trustworthiness of civil servants as perceived by citizens in 2008 (N 1836) and 2014 ( N 2404). Percent = = distribution 138 Table 6.7 The current status of the relationship between bureaucratic representativeness and trustworthiness of civil servants in Nepal 139 Table 6.8 Citizens’ assessment of public services, policy performance, and government’s preparedness to handle crises in 2008 and 2014. Mean scores based on a scale from 1 (low) to 5 (high) 141 Table 6.9 Regression analysis of trustworthiness of civil service in Nepal (Standardized Beta coeffcients) 142 Table 9.1 Growth of the public service (1911–2016) 197 Table 9.2 Distribution of employees in state, provincial public, and semi-government sectors in 2016 199 Table 9.3 Employed persons by major occupational segments 2013–2016 (′000person) 201 Table 9.4 Compulsory and optional subjects of the examinations (1833–1931) 202 Table 10.1 Major administrative reform initiatives in Bangladesh 225 Table 10.2 Important administrative reforms in Bangladesh with overtones of NPM 228 Table 10.3 Commissions and committees formed by the government of Bangladesh 234 Table 11.1 Local administrative system in unitary form of governance 249 Table 11.2 Structural provisions of unitary and federal administrative systems 252 Table 13.1 Classifcation of cadre by sectors—2012 298 Table 14.1 Administrative divisions of the People’s Republic of China 307