Interview Alumni Watch Governance @ Work Shri Ajay Prakash Sawhney Shri TN Chaturvedi Mongolian official to be Secretary, MeitY Chairman, IIPA Trained in IIPA Vol No. 01 Inaugural Issue July-September 2019

IIPABuilding Capacity for Governance DIGESTPrice : ` 100 Gandhiji’s Talisman

“I will give you a talisman. Whenever you are in doubt or when the self becomes too much with you, apply the following test:

Recall the face of the poorest and the weakest man whom you may have seen and ask yourself if the step you contemplate is going to be of any use to him. Will he gain anything by it? Will it restore him to a control over his own life and destiny? In other words, will it lead to Swaraj for the hungry and spiritually starving millions?

Then you will find your doubts and your self melting away”

Mohandas Karamchand Gandhi (October 2, 1869 to January 30, 1948) A Tribute by employees of Indian Institute of Public Administration 2019 Hon'ble President of India, Shri Ram Nath Kovind with IIPA Chairman, Shri TN Chaturvedi

Hon'ble President of India, Shri Ram Nath Kovind with IIPA Director, Shri SN Tripathi

Hon’ble Vice President of India and President of IIPA, Shri M Venkaiah Naidu addressing the audience during the 64th AGM, 2018 Editor in Chief Surendra Nath Tripathi Contents Vol No. 01 Issue No. 03 July-September 2019

Editor 4 Editorial Amitabh Ranjan 5 Alumni Watch Joint Editor 6-7 Interview Meghna Chukkath 8-9 Upfront Photography 10-11 Lead Story Shiv Charan 12-15 Gallery Printed at 16-20 Institute Watch New United Process New Delhi-110028 21-23 News from Branches 24-27 Governance@Work Reprint or reproduction is permissible with due credit to 28-37 Opinion Indian Institute of Public Administration (IIPA) 38-49 International Watch Published by 50 APPPA Alumni Indian Institute of Public Administration (IIPA), Indraprastha Estate, Ring Road, 51 Tribute New Delhi- 110002 52 Quotes of the Month Phone +91-11-2346300 Fax +91-11-23702440, Email: [email protected], Kindly direct feedback/comments to Website: www.iipa.org.in [email protected] or Twitter: @iipa9 [email protected]

Indian Institute of Public Administration, New Delhi is an internationally reputed Research & Training Institution of Department of Personnel & Training (DoPT), Govt. of India. With a vast talented pool of in-house as well as guest faculty, IIPA has been spreading awareness in the area of Public Administration and Governance since its inception in 1954 through its widely acclaimed publications like IJPA, Lok Prashasan and Nagarlok as well as Trainings and Research. It has been imparting trainings to Central/ State Civil Servants, Defence Forces officers, Senior officers of PSUs and Foreign Government Officers, etc. in various aspects of contemporary and relevant fields of Public Administration and Governance. Along with that, it has been helping various Govt. Ministries/Departments/Agencies through its meticulously carried out Research Projects and Reports.

July - September 2019 l IIPA Digest l 3 Editorial

ndian Institute of Public Administration (IIPA) takes immense pride in introducing the first edition Iof IIPA Digest, a magazine of its kind elucidating relevant current topics/ trends along with Institute’s latest news. IIPA Digest is editorially independent, meaning we set our own agenda. Our journalism is free from commercial bias and not influenced by anyone. No one edits our editor. No one steers our opinion. This is important as it enables us to give a voice to those less heard, challenge the powerful and hold them to account. It is what makes us different to so many others in the research and capacity building space at a time when factual, honest reporting is critical. The first chapter begins with the journey of Shri TN Chaturvedi, Chairman of the Institute and former Governor of Karnataka and Kerala, in which he talks about his initial association with IIPA and his perception. Shri Ajay Prakash Sawhney, Secretary, MeitY was kind enough to provide inputs to Dr Charru Malhotra, Associate Professor of IIPA about the vision of his ministry. With 65 years of excellence in the service of the nation, we at IIPA are thankful to each one of you for extending endless support and efforts in the making of this Institute. IIPA truly appreciates hard work of faculty members and officers as well the supporting staff of the Institute and encourages them to excel. Under the ‘Newsmaker of the Month’, we celebrate our employees’ professional victory. The ‘Lead Story’ for this edition accentuates APPPA, a 10-month long customized training programme for senior officers of the All India and Central Services from the point of view of its preceding Programme Directors. Latest happenings about and around the Institute’s vision are featured under ‘Institute Watch’ and ‘News from the Branches’. Similarly, Governance@Work focuses on new government policies and schemes initiated by the Centre, State and the Local Governments. In the ‘Opinion’ section, Prof Govinda Bhattacharjee expressed his views on the need for reforming civil services in India. We also invited guest article from Professor Mohammed Asaduzzaman who along with his co-authors writes about building trust and partnership in local government with reference to Bangladesh. Recently, IIPA also witnessed the unveiling of the bronze Statue of Mahatma Gandhi by our esteemed IIPA Chairman, Shri TN Chaturvedi on July 1, 2019. This has been a landmark in the history of IIPA as the Statue has been built completely by the voluntary contributions from the IIPA employees. Also, it has been built by none other than the designer of ‘Statue of Unity’ in Gujarat, Padmabhushan Shri Ram Sutar. He was kind enough to grace the inaugural event despite his age of 94 years and deteriorating health.

Hereupon, my dear colleagues and patrons of IIPA, we seek your steady support and feedback towards our minuscule effort in providing informative yet relevant information regarding the trends and latest happenings about IIPA and the Government of India.

Surendra Nath Tripathi IIPA Director

4 l IIPA Digest l July - September 2019 Shri T N Chaturvedi Alumni Watch

IIPA had devoted people in the past and we hope that we will have the same devotion in the future as well: IIPA Chairman

of programmes particularly related to public grievances, My Journey including water shortage, etc., and published several good got acquainted with publications and case studies. The general thinking of experts IIndian Institute of and trainers was to equip the administration of free India Public Administration which was facing problems and challenges of a new democracy when I was the Secretary where ultimately people could come together and work in one to the Chief Minister of direction. I remember when I came back to India I bought Rajasthan. At that time, several books related to public administration because there he received a letter from was hardly anything on the subject available in India except our first Prime Minister, some books on local government. Pandit Jawaharlal Nehru to establish an Institute for Public Administrators. (Later on, his letters were also published in three Shri TN Chaturvedi volumes as ‘Letters to Chairman, IIPA Chief Ministers’). Pandit Nehru’s letter indicated his keenness to involve Chief Ministers of states in the making of this Institute. In those letters, he mentioned several issues related to administration, public grievances, scarcity of water and food problems, public participation, etc. That’s how I first Shri TN Chaturvedi with Hon’ble President of learnt that an Institution of this kind has been conceived. India, Shri Ram Nath Kovind Since I have heard about it I was anxious to learn more about this arrangement. Later on, I enrolled as a member of IIPA IIPA today as I was very much interested in learning more about new IIPA has very much expanded. We had a devoted people in the improvements in public administration. past and we hope that we will have the same devotion in the I always liked reading about what was happening in other future as well. We have very few facilities but the work carried countries, particularly in the US and the UK. In the year 1959, out here is impactful. There is diversity in IIPA. However, I was given an opportunity to attend a six-month programme as a growing organisation it has to be much more proactive in what was called Economic Development Institute of the in anticipating the problems rather than only reacting and World Bank. There were people from 20-25 countries and I responding to what comes on its way. There should be more was the only representative from India. There I learnt about cumulative thinking as to what can be done, and the kind of various administrative innovations that were going on or programmes that could be undertaken. Now with various were being contemplated. During the same period, the World facilities such as computerisation and internet, research has Bank had launched a number of developmental programmes. been made easily possible. Through their findings from their American-Latin and African experiences, administrative support to infrastructure Vision for IIPA was considered as the weakest link in the governance. IIPA has a rich background with a bright future but to cash IIPA then on it or to avail of them depends on dedicated faculty and adequately guided direction.  Meanwhile in India, some foreign academicians were visiting

and giving lectures at various platforms. It was a short transition. Padma Vibhushan Shri Triloki Nath Chaturvedi, IAS At that time, it was not about governors Vs governed but it (Retd.) is the incumbent Chairman of Indian Institute was about people’s administration. That people should have ‘ ‘ of Public Administration. He is the former Governor of credibility and administrators should have sensitivity towards Karnataka and Kerala. Shri Chaturvedi has also served their problems. This was the kind of atmosphere where IIPA as the Member of Rajya Sabha and the Comptroller and flourished. Since everyone was always talking about sharing Auditor General of India powers with public, IIPA at that time conducted a number

July - September 2019 l IIPA Digest l 5 Shri Ajay Prakash Sawhney Interview

Interview Questions- Answers with Secretary MeitY

Ministry of Electronics and Information Technology Government of India

Long-term vision and mission of the Ministry of Electronics and Information Technology MeitY envisions harnessing digital technology, fostering innovation for strong, secure & sustainable digital economy. MeitY envisages the New India based on the strategic pillars of Digital Services that is improved service delivery leveraging public digital platforms; Digital Inclusion enabling equitable access to opportunities for everyone with the help of technology; Digital Economy that is sustainable, driven by digital technologies; robust Digital Infrastructure built on next generation network, cloud and access infrastructure, connected Gram Panchayats; Digital Confidence to build trust and transparency, ensures data privacy and security for digital economy. Shri Ajay Prakash Sawhney, Secretary, Ministry of Information and IT (MeitY), Government of India

6 l IIPA Digest l July - September 2019 Shri Ajay Prakash Sawhney Interview

Next 100 days plan of the Ministry of Electronics and Information Technology (MeitY) Ministry of Electronics and Information Technology (MeitY) as part of its 100 days action plan aims to initiate programmes, projects and schemes towards bridging digital divide ensuring inclusion and empowering citizens digitally. In 100 days, MeitY plans to initiate/launch Aadhaar Seva Kendras, MeitY Startup Hub, BHIM 2.0, Jal Shakti GIS and initiate development of more Sectoral Digital Platforms.

Ministry’s association with IIPA and the overall experience of partnering with IIPA in the past IIPA has been working on pan-India basis for Capacity Building, Cyber Surakshit Programme and carrying out impact assessments of MeitY schemes. With Digital India, now in its second phase, we look forward to IIPA’s increased contribution to make DI 2.0 a humongous success, considering their role in public governance policies and implementation.

Any suggestions or advice for augmenting IIPA’s efforts especially in Digital India, e-governance and ICT related activities As Digital India is providing unprecedented opportunity to create a new, inclusive and sustainable growth model as it is poised to transit from a service economy to an innovative economy and emerge as world’s fastest-growing large economy. One of the ways to meet the aspirations and needs of more than 1.3 billion citizens in a transparent, efficient and cost effective manner is through the use of innovation and technology. As we move forward, the challenge for the Government is that the digital transformation resulting from digitisation is all- encompassing with the consequence that sector-specific strategies within the silos are not applicable anymore. Here I look forward to IIPA as an institution with a vision to help governance model become more responsive to human needs and aspirations and aligned with human values. Institutes, Industry and Government needs to work together to build cross-institutional links fostering collaboration among economic sectors to devise and jointly implement policies/programmes that solves our socio- economic problems.

Any other relevant information related to the Ministry/ PM’s vision of Digital India/Message that you may like to highlight /share with our readers. Digital India utilizing the power of digital platforms, has thus demonstrated a case study where developing economies through embracing technologies will be able to leapfrog towards sustainable and inclusive growth. India’s digital story is one of digital empowerment and digital inclusion for digital transformation based on technology that is affordable, inclusive and equitable. Sectoral digital platforms in health, education, agriculture and other key sectors, large scale electronic manufacturing along with impetus to digital payments and micro credits, start-ups and cyber security will be the key focus areas of MeitY to realise the trillion-dollar dream of Digital India. These would be powered by technology like Artificial Intelligence, Big Data Analytics, Machine Learning etc. and achieving a high growth of our Digital Economy to reach a level of Trillion Dollar by 2025. The Digital India Programme is generating pathways to a future, powered by technology 

(Shri Ajay Prakash Sawhney is a 1984 batch IAS officer of Andhra Pradesh cadre. He currently is the Secretary to the Government of India.) Inputs credit: Dr Charru Malhotra Associate Professor e-Governance & ICT, IIPA

July - September 2019 l IIPA Digest l 7 Upfront Newsmakers of the month

The making of new IIPA website

What I do functioning of the site. It was the same year, the authorities of IIPA decided to change joined IIPA back in 2010 as a Web the look and feel of the site. The new site IAdministrator. Over the period of time which I updated was inaugurated by the then I was entrusted with the responsibility of Union Minister of State for Personnel, Public looking after the maintenance of the IIPA Grievances and Pensions, Shri V Narayansamy website. Now I look after the designing, at that time. layout and coding for the website i.e. www. iipa.org.in and sub-webpages which are What I have been doing all integrated in the IIPA site including Things have changed again this year, the e-Sangrah (Digital Knowledge Repository) incumbent Director of IIPA, Shri SN Tripathi of IIPA Library and Ambedkar Chair had a different plan for revamping the IIPA Social Justice website. Besides, resolving Shambu Nath Roy website. Under his supervision and guidance, the technical issues related to the web Web Administrator Computer Section, IIPA I had to give a makeover to the existing static servers and assisting computer centre of the website. Now, the new website as envisioned institute, I have to regularly upload updates by our Director is a responsive and an and data received from different sections/faculties of the interactive site. It is a one-stop digital platform to access institute with the approval of the competent authority. authentic data produced and created in IIPA by people associated with the Institute. The new website has many What I did more features which were missing from our earlier site, The IIPA website was first created in 2007. At that time the including myIIPA, news gallery and an integrated Twitter work related to designing and coding was mostly outsourced. feed of IIPA. It has all archives including library knowledge But since 2010, I have been looking after the everyday repository 

Revamped IIPA website

8 l IIPA Digest l July - September 2019 Upfront Newsmakers of the month

APPPA had been ‘captivating’-mostly exhilarating: 44th Programme Directors What was so special about the 44th completion of lectures of APPPA as APPPA programme according to you? per timelines. ‘External’ challenges What makes APPPA special is its such aslogistics issues, visits ‘Rainbow’ character as it offers all outside Delhi/foreign countries the colours of the spectrum, not were suitably and promptly only in terms of star speakers like handled by Program Director and Nobel laureate Shri Kailash Satyarthi, Registrar, as and when the situation Ambassador of USA to India Mr. Kenneth so warranted. Likewise, we had I. Juster, India’s former Ambassador identified some substitutes of guest Prof. Ashok Vishandass Dr Kusumlata speakers if they were not available to Canada Shri Vishnu Prakash, but Programme Director Programme Co-Director also variety of streams covered in the as per our schedule. curriculum besides the diversity in the background of Participants. Apart from this, new streams such How did you overcome those challenges? as ‘Sustainable Agriculture and Risk Management’ and ‘Disaster A flagship Programme like APPPA hogs the limelight and Sustainable Development’ aroused a lot of interest amongst and various stakeholders dissect the Programme through the participants. Also participants were afforded opportunities microscope. Based on 360 degree feedback, we objectively to work in groups for the presentations, preparation of carried out certain modifications in 44th APPPA with the sole group reports which demonstrated creative abilities of the consideration of improving the Programme. The ‘tyranny of Participants. Meticulous planning of lectures of various streams, reforms’ arises from the fact that those who gain from the analytical work for the dissertations, punctuated by visits to reforms tend to forget gains and those who lose tend to be other important organizations-both within and outside the vengeful. Notwithstanding vengeance of some, we continued country, demonstration of India’s Fire Power at Pokhran, made to carry out modifications in the larger interest of APPPA, APPPA very unique. remained polite but firm and objective. Lateral thinking, How did you manage to conduct the programme successfully? patience to logically analyse counter narratives put forward by APPPA had been ‘captivating’-mostly exhilarating, sometimes various stakeholders, impartiality and persuasion helped not intimidating but always challenging. This was so because 40 only in overcoming challenges but also added value to 44th Participants brought with them a total of over 800 years of APPPA, made it more fun filled learning and pleasant. experience and they used to put diverse demands on Prof. Ashok Was the outcome of the programme satisfactory and what is / Dr. Kusum which were sometimes infeasible. We, the Program your takeaway? Director/Co-Director made a simple rule for ourselves and that As various components of the Programme were well received by was always put ‘thinking caps’ on our heads. We treated all the the Participants enthusiastically, from beginning till the end, it Participants equally in an impartial, transparent and objective was more than satisfactory. Indeed, it was a delightful learning manner regardless of the positions they held just before joining experience. Our takeaway from APPPA is that the Programme APPPA. We took measures to make APPPA fun filled learning, was intellectually stimulating, professionally rewarding and arranged visits to India’s Fire Power demonstration at Pokhran, personally fulfilling. heritage walk to wall city, visit to the World Bank. These visits What is your advice for the next programme director, co- were in addition to usual Foreign visits, rural and urban areas director and 45th APPPA participants? visits, Forward Area tours to Leh, J & K etc. Inviting star guest Our suggestion to the Participants is to ‘off load’ the baggage of speakers like Nobel laureate, besides assigning due weightage to the positions (designations) they were holding before joining relevance of topics (contents) and quality of speakers also helped APPPA, put themselves in the mould of a ‘student’ and that would us to make the Programme productive and exciting. help them to take away more in terms of their learning, augment How were the challenges that you faced during the programme? their domain knowledge and sharpen the administrative skills. Challenges that we faced could be broadly put in two camps To our illustrious successors i.e. new Program Director/Co- viz. internal and external. Internal challenges i.e. from the Director, may we tender three simple advices? Firstly, treat Participants and Faculty were far more complex compared to every APPPA Participant equally, without any prejudice (for or those of external ones which emanated from guest speakers and against) to anything else whatsoever s/he might have attained/ logistics. As far as Participants, forty in number, were concerned, held positions in the past. Secondly, concede gracefully what is they brought with them a total of over 800 years of experience doable if it is likely to improve the Programme and at the same and they come out with certain demands which were sometimes time, convey politely but firmly ‘no’ to things that are untenable. infeasible. We, the Program Director/Co-Director had always Thirdly, never be afraid of vengeance of any stakeholder(s) while put ‘thinking caps’ on our heads, gracefully agreed to their carrying out ‘mid-course correction’, provided these changes are viable demands/suggestions, politely but firmly said no to things in the larger interest of improving the APPPA. Let us be mentally that were untenable, and treated all the Participants equally ready that those who gain from the reforms might forget gains without any prejudice whatsoever. With regard to the Faculty, and those who lose tend to be vengeful. In any case, carry out the some of them had competing demands on their time as they ‘reforms’ in APPPA, no matter how small these may be, so as to had to meet their ‘other commitments’ which led to delays in further add value to the Programme 

July - September 2019 l IIPA Digest l 9 APPPA Lead story

APPPA Continues to be Popular amongst the Officers for the last 44 Years : Programme Directors

he forty fourth APPPA, a customised ten months’ been largely topical and useful with some brilliant sparks of pogramme for senior officers of the All India and innovative thinking. TCentral Services including the Defence services, commenced The rural, urban and foreign visits were add-ons that on July 2, 2018 which concluded with a convocation on have generated considerable, high quality inputs from the April 30th, 2019 when Lieutenant General, Abhay Krishna, General Officer Commanding-in-Chief, Central Command participants in their presentations that showed quick and easy was the Chief Guest. Shri T.N. Chaturvedi, Chairman, appreciation of complex micro issues. The rural and urban IIPA and former Governor of Karnataka and Kerala, Shri field study engagements with state governments sensitised Shekhar Dutt, Vice-President, IIPA and former Governor of the participants with socio-economic realities of rural and Chhattisgarh and Shri S.N. Tripathi, Director, IIPA graced the urban areas. occasion. Prof. Ashok Vishandass, Programme Director and The foreign study tour comprised about two weeks’ visits rd Dr Kusumlata, Programme Co-Director, participants of 43 abroad in developing and developed countries, rounded- and 44th APPPA, faculty and senior administrative staff were off the training engagement by providing a comparative present during the convocation. perspective on governance processes domestically and The purpose of APPPA has been to enhance the sensibilities, globally. This component gave the participants an exposure sensitivities and capabilities of participants to explore to the administrative practices to draw lessons from the innovative options and choices in public policy formulation, countries visited. On their return, the participants presented analysis and implementation. It sought to inculcate an attitude various facets covered during the foreign visits and brought that augments efficiency and service orientation towards rich experience with them, which is of immense value in citizens. The APPPA enabled the participants to renew their terms of learning. domain knowledge and sharpen administrative skills and presented a total package of agriculture, economic, social, Another meaningful and fun-filled exercise was ‘experiential gender development, the underprivileged and governance, learnings’ which promoted mutual sharing of experiences, political and administrative knowledge. Apart from these, expertise and provided opportunity for peer learning. In the dissertation themes selected by the participants have the experiential presentations, the focus basically has been

Participants with dignitaries after 44th APPPA convocation ceremony

10 l IIPA Digest l July - September 2019 APPPA Lead story on specific situation an officer had faced at some point in his over 800 years of experience and Prof. Ashok / Dr. Kusum or her career. These presentations highlighted innovations were called upon to always put ‘thinking caps’ on their in the internal administration or in the field, best practices heads to make the programme interesting and useful to a in organisational leadership and project manning and heterogonous group. Just as in the case of Indian society, implementation. diversity of the participants in this programme has been its great strength and particularly the mingling up of the Recognising that division of work ought not to lead to Civilian and Defence officials. This served a very important division of knowledge, Prof. Ashok / Dr. Kusum organised a role and provided window into the lives and careers of two trip to Pokhran, the first time ever, for all the participants to very different arms of Government. Likewise, the variety see for themselves India’s fire power demonstration. Another of participants in various Services also lent a great flavour first time event was an interaction of APPPA participants to this programme. with a Nobel Laureate, Shri Kailash Satyarthi, when he delivered a very engaging lecture in January, 2019. A new We, the Programme Director/Co-Director can say that stream ‘Sustainable Agriculture and Risk Management’ was participants were no strangers. They were friends we had never met earlier. It seemed like yesterday that we had all introduced for the first time in 44th APPPA to familiarise sat in my IIPA and had an ice-breaking session and with participants with agriculture sector which is the life blood of the blink of an eye, we were here on the last day of the 44th Indian economy. APPPA, and yet, between the yesterday of the July 2nd, 2018 As a part of non-credit inputs, we had special lecture sessions and today of the April 30, 2019, there were so many heartbeats by eminent speakers on some important and diverse topics and memories. by luminaries in their respective fields. They included former That APPPA continues to be popular amongst the officers for Cabinet Secretary, Foreign Secretary, Finance Secretary, the last 44 years bears a testimony to the fact that it has kept ambassadors to a few countries, and a galaxy of serving and pace with the time. I am sure that APPPA would continuously retired Secretaries to the Government of India. strive to be ahead of times and bring considerable value to The APPPA programme had started with a big bang the institute, the society and to the nation. At the end of the and maintained its momentum all across – different round, I can say with pride that the programme turned out modules, streams, assignments and an M. Phil. Research to be professionally rewarding, intellectually stimulating and Dissertation. It was ‘captivating’-mostly exhilarating, personally fulfilling to faculty and participants alike. sometimes intimidating but always challenging. This was (Inputs Credit: Prof Ashok Vishandass, Programme so because 40 Participants brought with them a total of Director and Dr Kusum Lata, Programme Co-Director) 

44th APPPA participants with IIPA Director, Programme Director and Programme Co-Director

July - September 2019 l IIPA Digest l 11 Gallery

Shri S N Tripathi, Director, IIPA and Shri Amitabh Ranjan, Registrar, IIPA ‘‘call on the Hon’ble Vice President of India, Shri M Venkaiah Naidu.

Shri S N Tripathi, Director, IIPA calls on the Hon’ble Minister Dr Jitendra Singh, MoS (Independent Charge) for the Ministry of Development of North Eastern Region and Minister of State for Prime Minister’s Office; Personnel, Public Grievances and Pensions; Department of Atomic Energy and Department of Space

Prof. Suresh Misra receiving Hon’ble Union Minister of Consumer Affairs, Food & Public Distribution, Shri Ram Vilas Paswan during his visit to National Consumer Helpline in IIPA.

12 l IIPA Digest l July - September 2019 ‘‘ Gallery

Shri S N Tripathi, Director, IIPA welcoming the guest of honour Lieutenant General Abhay Krishna, ‘‘ PVSM, UYSM, AVSM, SM, VSM, General Officer Commanding- in-Chief, the Central Command before the 44th APPPA convocation ceremony.

(L-R) Prof VK Sharma, Ambassador of Tunisia H E Mr Lakhal, Joint Secretary, MEA (ITEC) Ms Devyani and Dr Charru Malhotra welcoming the guest of honour.

Prof Suresh Misra welcoming Hon’ble Governor of Tamil Nadu, Shri Banwarilal Purohit during inauguration of IIPA’s national seminar on Consumer Protection and Awareness in Chennai ‘‘ July - September 2019 l IIPA Digest l 13 Gallery

A four-member delegation from Mongolia comprising Mr. Baldan Baatarzorig, Chairman, Civil Services of Council of Mongolia, His ‘‘ Excellency Mr. Gonchig Ganbold, Ambassador of Mongolia to India, Mr. Dorj Demchigsuren, officer- in-charge of Strategic Planning and Policy, and Mr. Horchin Gan-Ochir, Governor Office Manager visited IIPA.

Prof. Aroon Manoharan, Associate Professor, Department of Public Policy and Public Affairs, University of Massachusetts, Boston visited IIPA on July 31, 2019 to meet Director, Shri S N Tripathi, and Dr. Charru Malhotra.

The Secretary of the Ministry of Tribal Affairs (MoTA) met Shri S N Tripathi, Director, IIPA along with Shri Amitabh Ranjan, Registrar, IIPA and coordinator of Centre of Excellence for Tribal Affairs, Dr Nupur Tiwary to discuss the future Agenda of the Centre.

On the occasion of GuruPurnima, Director IIPA invited IIPA faculty members for an interactive session over the tea. During the conversation, he inspired the members to keep performing better and better.

14 l IIPA Digest l July - September 2019 ‘‘ Gallery

IIPA celebrated 73 years of Independence Day on August 15, 2019. Tricolur was hoisted in IIPA ‘‘ premises by the Director of IIPA, Shri S N Tripathi. Faculty and staff in the campus attended the ceremony.

Director IIPA Shri S N Tripathi conducted a session on “Secretariat Reforms” on 22nd NCeG 2019, Shillong.

Ambassador of Cambodia, H E Ung Sean visited IIPA on August 2, 2019 to participate in the vale- dictory function of Training Pro- gramme for Cambodian officers on HR Analytics. Director, South MEA, Mr S Inbasekar, IFS, also participated in the function.

Prof Suresh Misra met Lt Governor of Puducherry, Dr Kiran Bedi, IPS (Retd.) during Independence Day celebration on August 15, 2019.

‘‘ July - September 2019 l IIPA Digest l 15 Institute Watch

Programme for IRS (IT) officers in Europe A week-long orientation programme of Indian Revenue Service (Income Tax) Officers was organised in Netherlands, France and Switzerland from May 1-8, 2019. It was sponsored by NADT (National Academy of Direct Taxes), Nagpur. As part of the program, 163 promoted IRS officers in the rank of Assistant Commissioner of Income Tax and 05 faculty members from NADT Nagpur visited the following places (i) Netherlands- International Business School in Hague, (ii) France – ENA (National School of Administration), Paris, (iii) Switzerland - Swiss Business School. The programme was coordinated by Dr. Charru Malhotra and Dr. G. Mohapatra. Programme for GCS officers of NITI Aayog A two- week training programme for GCS Officers of NITI Aayog Batch-III was organised from May 13-24, 2019. It was sponsored by NITI Aayog, Government of India, New Delhi. The objective of the programme was to acquire and update knowledge about the dominant domestic and international issues in the related areas. Programme coordinators were Prof. Geethanjali Nataraj and Prof. Govinda Bhattacharjee.

Management Development Programme for Judicial Officers of UP The Management Development Programme (MDP) for Judicial Officers of Uttar Pradesh was organised from May 6-10, May 13-17 and May 20-24, 2019 respectively. It was sponsored by the Law Department, State Government of Uttar Pradesh Judicial Training and Research Institute. The objective of the programme was to bring about management development with regard to the different behavioural dimensions that have far reaching significance in the direction of organisational effectiveness. Dr. Surabhi Pandey was the programme coordinator.

16 l IIPA Digest l July - September 2019 Institute Watch

Programme on Innovations in Organisational Management International Capacity Building Programme on Innovations in Organisational Management was organised from June 20- 24, 2019 in collaboration with Crawford School of Public Policy Australia. The programme was coordinated by Dr Saket Bihari.

Workshop on Gender Equality at Workplace One-day workshop on Gender Equality at Workplace was organised on June 7, 2019. It was sponsored by the Department of Public Enterprises, Government of India. Dr. Neetu Jain and Dr. Amit Kumar Singh coordinated the programme.

Programme for Presidents and Members of the District Consumer Forums The106 th Orientation Training Programme for the Presidents and Members of the District Consumer Forums was organised by the Centre for Consumer Studies from June 17- 21, 2019. The programme was sponsored by the Department of Consumer Affairs, GoI. The programme was coordinated by Prof. Suresh Misra and Dr. Sapna Chadah.

Programme on Climate Smart Governance A two- week Faculty Development Programme on Climate Smart Governance was organised from June 17-28, 2019. It was sponsored by the Department of Science and Technology. The main objective of the programme was to understand the basic science behind the climate change. Prof. Vinod K. Sharma and Dr. Shyamli Singh coordinated the programme.

Programme for Government officers of Central Tibetan Administration A ten-day residential Programme for Government officers of Central Tibetan Administration was organised from June 17- 26, 2019. It was sponsored by Public Service Commission. The objective of the training programme was to develop women leadership with regard to the various organisational behavioural aspects. The programme was coordinated by Dr Surabhi Pandey 

July - September 2019 l IIPA Digest l 17 Institute Watch

45th APPPA inaugurated The forty-fifth Advanced Professional Programme in Public Administration (APPPA) — the customised 10-month-long programme for senior officers of the All India and Central Services including the Armed Forces—commenced on July 1, 2019 at IIPA. Sponsored by the Ministry of Personnel, Public Grievances and Pensions, the 45th APPPA is scheduled to conclude on April 30, 2020. Shri T.N. Chaturvedi, Chairman of IIPA inaugurated the programme. Shri Shekhar Dutt, Vice Chairman, IIPA presented the opening remarks. Shri SN Tripathi, Director, IIPA presented the welcome address. Prof. Govind Bhattacharjee, Programme Director, highlighted the content, design and methodology of the programme; and Dr. Neetu Jain, Programme Co-Director, proposed the vote of thanks. The following books were also released during the event. They are: (i) India - resurgent & resilient by Prof Govind Bhattacharjee (ii) A Report on Impact Assessment of NKN by Dr Charru Malhotra (iii) Report on review of work processes and structure of Ministry of Home Affairs by Dr Neetu Jain & Dr Surabhi Pandey (iv) Issues and challenges in RCEP: An Indian perspective by Prof Geethanjali Nataraj & Ms Garima Sahdev.

Programme for Afghan Delegation Experience sharing programme for Afghan delegation on Public Governance and Advocacy was organised from July 2-10, 2019. The programme was coordinated by Dr VN Alok.

Programme for Cambodian Senate’s HR A one-week training programme on Fundamentals of Human Resources Analytics for officials of Cambodian senate's HR department was organised from 29 July - 2 August, 2019. It was sponsored by ITEC Division of the Ministry of External Affairs, Government of India. 15 senior officers from Cambodia participated in the programme led by Mr Nop Kuch, Director of HRD Department, The Senate of the Kingdom of Cambodia. Dr. Neetu Jain and Prof. Vinod K. Sharma were the programme coordinators.

Programme for Russian Delegates Training Programme for Russian Delegates on Project and Training Risk Management was organised from July 8-19, 2019. It was sponsored by ITEC Division, MEA, Government of India. Dr. Roma Mitra Debnath and Dr. Pawan K. Taneja coordinated the programme.

Workshop on Consumer Protection and Empowerment A two-day workshop on “Consumer Protection and Empowerment of Panchayati Raj Institutions, Rural Development Officials and Service Providers” was organised by the Centre for Consumer Studies,IIPA from July 5-6, 2019 at Hapur in collaboration with the regional training centre, Ghaziabad of SIRD Lucknow, Uttar Pradesh. The programme was sponsored by the Department of Consumer Affairs, Government of India. It was inaugurated by Ms. Babita Singh, Block Pramukh, Block Panchayat, Hapur. It was coordinated by Prof Suresh Misra and Dr. Sapna Chadah.

18 l IIPA Digest l July - September 2019 Institute Watch

Programme for Heads and Members of VCOs/ NGOs on Consumer Protection & Welfare The Centre for Consumer Studies, IIPA organised the 16th Training of Trainers Programme for the Heads and Members of VCOs/NGOs on Consumer Protection and Consumer Welfare from July 8-12, 2019 at IIPA. The Department of Consumer Affairs, Government of India sponsored the programme. Prof. Suresh Misra and Dr. Mamta Pathania coordinated the programme.

Programme on Integrated Urban Water System Management Centre for Urban Studies, IIPA conducted a three-day programme under Integrated Capacity Building with the support from Ministry of Housing and Urban Affairs, Government of India, and Government of Arunachal Pradesh at Itanagar on July 2, 2019. 46 participants from engineering, town planning and social science background representing departments of Urban Development, Public Health and Engineering and Urban Local Bodies participated .The programme was coordinated by Prof KK Pandey and Dr. Kusum Lata.

Workshop for Officers of Fertilizers Department A customised workshop for officers of the Department of Fertilizers, Government of India was organised on July 13, 2019 which was attended by a cross section of officers of the Department, right from the level of Fertilizers Secretary, Shri Chhabilendra Roul to Section Officers. Prof Ashok Vishandass and Dr Surbhi Pandey coordinated the workshop.

Management Development Programme for Judicial Officers of UP The Management Development Programme (MDP) for Judicial Officers of Uttar Pradesh was organised from July 8-12 and July 22-26, 2019 respectively. It was sponsored by the Law Department, State Government of Uttar Pradesh Judicial Training and Research Institute. Dr. Surabhi Pandey was the programme coordinator.

Special lecture- Paradise Regained: A Review of the Impact of the Big Decision IIPA started the Special Lecture Series on current and relevant themes with the First Lecture on “Paradise Regained: A Review of the Impact of the Big Decision” by Lt Gen Syed Ata Hasnain organised on August 26, 2019. The lecture was presided by Shri T.N. Chaturvedi, Chairman, IIPA. Speaking on the theme, Lt Gen Hasnain said that the general perception in the Indian public’s mind is that the abrogation of Articles 35A and 370 had led to a situation where the J&K issue is done and dusted. That is furthest from the truth although it is currently advantageous to India, at least temporarily. Shri T.N. Chaturvedi, Chairman IIPA in his presidential remarks said that the Government of India was aware of the fact that the stalemate existed this long in J&K due to the absence of strategic policy. Besides stabilizing the situation in J&K, a lot of things are required to be done, which requires a long term strategy has to be devised. Shri SN Tripathi, Director, IIPA was also present during the occasion. The lecture was coordinated by Dr Sapna Chadah.

July - September 2019 l IIPA Digest l 19 Institute Watch

Programme for Municipal/Urban Sector Officers Centre for Urban Studies (CUS), IIPA organised a training programme on project management for urban missions for municipal/ urban sector officers from national capital territory of Delhi from August 6-8, 2019. The programme was coordinated by Dr KK Pandey, Dr Sachin Chowdhry and Dr Amit Singh.

Programme for probationers of IP& TA & FS Training Programme on Public Administration for the probationers of Indian Posts and Telecommunication Accounts and Finance Service was organised from August 26-30, 2019. It was sponsored by the National Institute of Communication Finance, Ministry of Communication, Department of Telecommunication, Government of India, New Delhi. Prof. C. Sheela Reddy and Dr. Mamta Pathania were programme coordinators.

Programme for the Presidents and Members of District Consumer Forums The 107th Orientation Training Programme for the Presidents and Members of the District Consumer Forums was organised by the Centre for Consumer Studies, Indian Institute of Public Administration, New Delhi from August 26-30, 2019. It was sponsored by the Department of Consumer Affairs, GoI. The programme was inaugurated by Shri S. N. Tripathi, Director, IIPA, and was coordinated by Prof. Suresh Misra and Dr. Sapna Chadah.

Training Programme on Financial Management in Scientific Organisations The 8th training programme on Financial Management in Scientific Organisations was organised from August 19-23, 2019. It was sponsored by the Department of Science and Technology, Government of India, New Delhi. Dr Pawan K Taneja coordinated the programme.

Advanced Leadership Programme The 8th Advanced Leadership Programme for Corporate Executives Leadership for Business Excellence in the Global Economy was organised from August 19 to September 17, 2019 in collaboration with Swiss Business School and Hertie School of Governance, Germany. Dr. Neetu Jain and Dr. Sachin Chowdhry coordinated the programme.

Management Development Programme for Judicial Officers of UP The Management Development Programme (MDP) for Judicial Officers of Uttar Pradesh was organised from August 5-9 and August 19-23 and August 26-30, 2019 respectively. It was sponsored by the Law Department, State Government of Uttar Pradesh Judicial Training and Research Institute. Director, IIPA, Shri S.N. Tripathi and course coordinator Dr. Surabhi Pandey along with team IIPA congratulated all the judicial officers, who were promoted to the next level of Addl. District Judge (ADJ) during the training programme 

20 l IIPA Digest l July - September 2019 News from Branches

Jammu and Kashmir Regional Branch • The branch organised a lecture on “India’s Preparedness to Counter Unconventional Warfare Threats/Challenges” which was delivered by Dr Sudershan Kumar, Former Director General DRDO, Ministry of Defence, GOI on May 20, 2019. Dr S.S. Bloeria, IAS (Retd) Former Chief Secretary J&K was the Guest of Honor while Dr. Ashok Bhan, IPS (Retd) Former DGP presided over the function. The lecture was organised under the guidance of Er J B S Johar, Vice Chairman and Sameer Rekhi Hony Secretary. Dr. Anil Gupta, Joint Secretary IIPA conducted the proceedings of the function and presented the formal vote of thanks. • The branch organised a one-day seminar on “Monetary Policy” on May 14, 2019 in collaboration with Reserve Bank of India. The welcome address was given by Prof. R.L. Bhatt, Department of Economics, Central University of Jammu. The formal vote of thanks was given by Dr Komal Nagar, Joint Director (Seminars), IIPA J&K Regional Branch. The lecture was organised under the guidance of Er J B S Johar, Honorary Secretary and Sameer Rekhi.

Rajasthan Regional Branch • The branch in collaboration with Management Development Academy, Centre for Administrative Change and Prakrat Bharti Academy organised a lecture on “Demography and Democracy” on May 16, 2019 in which Prof. D. K. Kothari of Harvard University was the keynote speaker. On May 17, 2019, Prof. B. M. Sharma, former Chairman, Rajasthan Public Service Commission dwelt on certain salient nuances of the "Ethos of India's Democracy”. On 19 May, Prof. C S Barla, a World Bank expert, discussed the Current Scenario in Indian Economy and suggested the road ahead for strengthening the national economy. All the above lectures were presided over by Prof. Ramesh K Arora, Chairman of the branch. Bihar Regional Branch • On the occasion of commemoration of World Environment Day, the branch organised a seminar on "Environmental Awareness Among Rural People" in collaboration with Department of Political Science, R. N. College, Hajipur on June 4, 2019 in the Auditorium of the college. The function was presided over by Dr Vibhash Kumar Yadav, a senior IIPA member and Principal, RN College, Hajipur. Prof. S. P. Singh, IIPA Member, Dean, Faculty of Social Sciences, Chanakya National Law University, Patna was the main speaker on the occasion. All guest participated in the 'Plantation Drive' organised by Dr Kumar Amrendra Narain, IIPA Member, NSS Programme Officer of RN College unit and planted as many as hundred saplings in the campus of the College. Tirupati Local Branch • The branch along with Rayalaseema Economic Association jointly organised a lecture on “World Day to Combat Densification and Drought” on June 17, 2019. Prof A Ranga Reddy, Chairman of the branch presided over the function and Dr A Samanthakamini, Secretary welcomed the guests. During the function, Prof T Girdhar Krishna, Head, Department of Soil and Agriculture Chemistry, SV Agriculture College Tirupati highlighted on the Need of bold reforms for checking desertification and drought in India. Prof. MS Soundarajan, former Associate Dean, Agriculture College, Nandyal, Ramayanam Jagadesh Rao, Department of Geology and former Principal, SVU College. Shri M Gopal Reddy, Farmer’s Activist, Prof C Sujathamma, Department of Geology, Sri Padmavathi Women’s College, presented their varied views on the subject.

Tirupattur Local Branch • The branch in association with Rotary Club and Lupin Company jointly organised a free medical camp on May 22, 2019 on Bone Mineral Density at LS Hospital, Tirupattur. Agri C Veerabadran, Chairman of the branch presided over the function and Rtn. N.I.S. Shawjakhan, President, Rotary Club welcomed the guest. Dr Leela Subramanian explained the importance of health awareness and recommended regular checkup while Rtn. KM Subramanian, Secretary of the branch proposed the vote of thanks. About 110 patients were benefitted out of the medical camp

July - September 2019 l IIPA Digest l 21 News from Branches

Tamil Nadu Regional Branch • The branch organised a monthly meeting on the topic “Water Management” on July 20, 2019 at Tower's Club, Anna Nagar, Chennai. The special address was delivered by Dr.R.Saravanan. Associate Professor, Water Resources Centre, Anna University, Chennai. Thiru.S.S.Jawahar. IAS (Rtd), Hony Secretary of the branch welcomed the gathering and introduced the Chief Guest. Thiru.P.R.Shampath. IAS (Retd), President of the branch, in his presidential address stated that failure to address the rain water harvesting and restoration of existing water bodies will lead to a major catastrophe. Dr. D. Jothi Jagarajan IAS Retd Vice Chairman IIPA TNRB Chennai proposed a vote of thanks.

J&K Regional Branch • The branch organised a lecture on “Holistic Approach for Health & Happiness” by Dr Jaipal Singh, MD, ex-Professor & Head Department of Medicine, Govt Medical College & SMGS Hospital, Jammu on June 26, 2019. The lecture was followed by lively interaction and Er J.B.S.Johar, Vice Chairman of the branch who also presided over the function. Dr Jaipal spoke extensively on the topic and gave the audience practical tips for stress free healthy living. Earlier Mr. Vikrant Kuthiala delivered the welcome address and Mr Vinod Malhotra, former Development Commissioner J&K presented the formal vote of thanks. Tirupati Local Branch The branch organised a lecture on ‘Hire and Fire Policy’ need of the hour in education and also stop political parties’ intervention on July 31, 2019 in the seminar hall of the Department of Adult and Continuing Education, Sri Venkateswara University, Tirupati. Prof V Uma, i/c Vice-Chancellor, Sri Padmavathi Mahila University presented a brief summary. Prof T Kumaraswamy, Principal, Institute of Advanced Studies in Education, Sri Venkateswara University, Tirupati presented his views on ‘Man Power Planning’. Prof MC Reddeppa Reddy, UGC emeritus Fellow, Department of Adult and Continuing Education, Sri Venkateswara University, Tirupati highlighted on multi-displinary courses. Prof MA Hussain, Department of Political Science and Public Administration, SV University, Tirupati focussed on left to right education. Dr C Swarajya Lakshmi, former Principal, SPW Degree College highlighted about the quality of education. Prof A Ranga Reddy, Chairman of the branch shared his personal experience on the topic. Madhya Pradesh and Chhattisgarh Regional Branch The branch organised a seminar on “The New Education Policy” with special reference to school education. The Principal Secretary School Education, Smt. Rashmi Arun Shami was the main speaker. Smt Shami pointed out the main recommendations of the committee and also conveyed state government’s thoughts on the subject. • The second seminar organised by the branch was in collaboration with the School of Management Studies, Bastar Vishwa Vidyalaya, Jagdalpur on August 29, 2019. The topic of the seminar was “Sustainable Development Goals: Challenges and Achievements in Bastar Region”. Vice chancellor Shri S. K. Singh presided over the seminar. Over 150 students and others attended the seminar.

Bihar Regional Branch The branch organised a panel discussion on "Evolution of Public Administration in Bihar" on August 11, 2019. The panel discussion

22 l IIPA Digest l July - September 2019 News from Branches

was presided over by Sri A V Sinha, IAS (Retd). Other panelists were Dr Ashok Kumar, Member, Bihar State University Service Commission, Er J K Singh, Chairman of the Branch, Dr Nihora Prasad Yadav of Political Science, R K D College, Patna (Retd), Dr Henna Tabassum, Head, P G Department of Sociology, A N College, Patna, Dr Archana Kumari, P G Department of Political Science, R N College, Hajipur, Sri Adweetiye Sinha, UGC NET qualified in Political Science and Dr R K Verma, Hony. Secretary of the branch. The panelists expressed their views and facts on the topic.

Telangana & Andhra Pradesh Regional Branch The branch organised a National Symposium on “Reforms in Revenue Administration – with special focus on Land Titles and Rights” in collaboration with the Department of Public Administration, Dr. B.R. Ambedkar Open University, Hyderabad. Prof. Madabhushi Sridhar, Former Central Information Commissioner, New Delhi, was the Chief Guest. Sri. M. Gopal Krishna, IAS (Retd.), Chairman of the branch and Prof. T. Papi Reddy, Chairman, Telangana State Council of Higher Education, Govt. of Telangana were the Guests of Honour. Deliberations of the symposium will be sent to Telangana Government for effective implementation of policies.

Puducherry Local Branch The branch in collaboration with Pondicherry University School of Management conducted a seminar on “Public Administration and People Management in the recent scenario” and organised a “Golden Jubilee Award Programme” on August 23, 2019. Dr Kiran Bedi, IPS (Retd.), Hon’ble Lt Governor of Puducherry was the chief guest. Dr Bedi was awarded with Paul H Appleby Award by Prof Gurmeet Singh, Vice-Chancellor, Pondicherry University. Dr RR Dhanapall, Chairman of the branch gave the presidential address and Prof B Charumathi, Department of Management Studies, Pondicherry University presented the theme paper.

Howrah Local Branch The branch organised a seminar on “Water Management in Agricultural Sector” on July 27, 2019. Rtn DK Das, Chairman of the branch presided over the event. Prof Asish Ray, General Secretary of the branch welcomed the guest. During the seminar he said that an alarming situation has developed in different parts of India especially in agricultural sector after the sharp decline of rain water. Dr Kalyan Chakraborti, Professor, Kalyani Krishi Viswavidyalaya, West Bengal delivered keynote address. He explained the traditional and modern method of water management in the agricultural sector. Shri RM Bandyopadhyay gave the vote of thanks.

Burdwan Local Branch The branch organised a lecture meeting on “Policy of Reservation” on August 16, 2019 at the UGC-Academic Staff College. Dr Soroshimohan Dan, Acting Chairman of the branch introduced the theme. Six speakers shared their views on the above topic. Dr Bijoy Chand, Honorary Secretary of the branch summed up the entire discussion. He was of the opinion that it was high time the reservation policy was reviewed in its entirety. 

July - September 2019 l IIPA Digest l 23 Governance @ Work

NCH resolving complaints of consumer In a written reply to Rajya Sabha recently, the Ministry of Consumer Affairs, Food & Public Distribution has stated that as per the information received from the National Consumer Helpline (NCH), the details of grievances registered and resolved for the last two financial years and the current year is as under:

April 2017-March 2018 April 2018-March 2019 April 2019 and May 2019 Mode Complaints Complaints Complaints Complaints Complaints Complaint Registered resolved Registered resolved** Registered resolved** Web 128737 95,456 147661 93981 29192 15937 NCH 2029 1326 5459 3873 8960 4743 UMA NA NA 9621 6311 3216 1724 — UMANG App grievances are handled by NCH from 15th November 2018 onwards. — Grievances of March 2019, April 2019 & May 2019 are still ‘in progress’. — The grievances registered at NCH are taken up with the concerned company / agency, etc., for disposal and the Companies are given a time of two months to resolve the grievances. e-Governance initiatives for ST welfare schemes launched Shri Arjun Munda, Union Minister for Tribal Affairs launched the “e-governance initiatives for ST Welfare schemes” at a function organised by the Ministry of Tribal Affairs. Shri Munda applauded the teamwork efforts of the Ministry of Tribal Affairs for these e-governance initiatives for Scheduled Tribes Welfare schemes and said that as per the “Sabka Saath, Sabka Vikas and Sabka Vishwas”, these e-governance initiatives will serve their purpose of the betterment of tribal communities across the nation. He called upon the officials of Ministry of Tribal Affairs to prepare a Databank of the previous Smt. Renuka Singh Saruta, Minister of State for Tribal Affairs, beneficiaries of the schemes of the ministry on a priority basis. Ms. Anusuiya Uikey, Vice Chairperson, NCST, Shri Ramesh He emphasised that the officials of the ministry have to achieve Chand Meena, Chairperson, TRIFED and Shri Deepak the target of completion of its tasks before time. Khandekar, Secretary, Minister of Tribal Affairs were present. Ministry of Tribal Affairs has developed online portals namely DBT Tribal (https://dbttribal.gov.in/) and NGO NITI Aayog reconstituted Grants Online Application & Tracking System (https:// The Government of ngograntsmota.gov.in/) for bringing in greater e-Governance India has reconstituted in implementation of welfare schemes for STs. Ministry has NITI Aayog. Prime further developed module for verification of students by Minister, Shri Narendra Universities and Colleges under Fellowship scheme and Modi has approved Grievance Module for all stake holders including beneficiary the re-constitution of students in 03 Central Sector schemes and Institutions. National Institution The NGO portal, developed for implementing scheme of for Transforming India Aid to Voluntary Organisations working for the welfare of (NITI) Aayog as follows: STs, has been fully revamped & redesigned with simplified (i) Chairperson would be Application form, Inspection Report and Fund Processing the Prime Minister, (ii) Vice-Chairperson would be Dr. module. The portal has been re-opened for FY 2019-20 for Rajiv Kumar, and (iii) Full-Time Members would be Shri NGOs and States for online application. V.K. Saraswat, Prof. Ramesh Chand and Dr. V.K. Paul 

24 l IIPA Digest l July - September 2019 Governance @ Work

Dr Jitendra Singh inaugurates Integrated Grievance music and culinary art, village tourism, eco-tourism, etc. Cell & Call Center of Department of Pensions The scheme of Mechanism for Marketing of Minor Forest The Union Minister of State Produce (MFP) through Minimum Support Price (MSP) and (Independent Charge) of Development of Value Chain for MFP covers various activi- the Ministry of Develop- ties including procurement of MFPs when their market price ment of North Eastern Re- falls below their notified MSP, setting up/expansion of storage facilities, expanding the knowledge base on MFP, training for gion (DoNER), MoS PMO, sustainable collection, value addition, etc. The activities in- Personnel, Public Griev- volving expanding knowledge base, training for sustainable ances & Pensions, Atomic collection, value addition, etc. are done through by the Min- Energy and Space, Dr Ji- istry and the Central Government bears 100% of the expen- tendra Singh has recently diture incurred for these activities. inaugurated the Integrated While there is no proposal to introduce a separate scheme/ Grievance Cell & Call Cen- Dr Jitendra Singh policy on this matter, Ministry of Tribal Affairs desired to Union Minister of State ter for Pensioners set up by brand the activities being undertaken by it under the exist- (Independent Charge) of the the Department of Pension ing scheme of Mechanism for Marketing of Minor Forest Ministry of Development of and Pensioners Welfare. The Produce (MFP) through Minimum Support Price (MSP) and North Eastern Region (DoNER), Center has been launched MoS PMO, Personnel, Public Development of Value Chain for MFP as “Van Dhan Vikas Grievances & Pensions, Atomic for Central Government Karyakram”. Van Dhan Vikas Karyakram is a training and Energy and Space pensioners at Janpath Bha- development of value chain components of the scheme of wan in New Delhi. The Sec- Mechanism for Marketing of Minor Forest Produce (MFP) retary, DARPG and Department of Pension and Pensioners through Minimum Support Price (MSP) and Development of Welfare, Shri K. V. Eapen and senior officers of the Depart- Value Chain for MFP. Government is also formulating Five ment were also present on the occasion. Year Vision plan for overall development of the tribals for the Keeping in view the great discomfort experienced by very se- next five years. nior and ailing Pensioners in queuing up outside Banks in the month of November to give their Life Certificate, the Depart- Establishment of India International Skill Centres ment undertook a path breaking initiative: Involve Pension- ers' Associations in 8 cities on a pilot basis and obtain ‘Digital In a written reply to Rajya Sabha recently, Minister of State Life certificate From Home’ of such Pensioners. A major step for Skill Development and towards Digitization was the ‘Bhavishya’ software, indige- Entrepreneurship Shri Raj nously made by the Department of Pensions and meant to be Kumar Singh has stated that a common platform for processing of pension cases on this The India International Skill platform by all civil Ministries and Departments of Govern- Centres (IISC) program was ment of India. This software brought on a common platform launched as a pilot opera- all the stakeholders who were till date decentralized on to a tional in 14 centres in the single platform. country. A total of 583 stu- dents were trained in these New Schemes for Tribals centres. The IISCs at present In a written reply to Lok Sabha recently, the Union Minister Shri Raj Kumar Singh and is the form of a future Minister of State for of Tribal Affairs Shri Arjun Munda network model have the fol- stated that the schemes of the Min- Skill Development and Entrepreneurship lowing as their focus: istry of Tribal Affairs are demand • Counselling and guid- driven and funding are made in ance along with Foreign Em- various sectors including for em- ployment Support for employment opportunities in the ployment-cum-income generation overseas market, information on the required skill set, and covers activities such as estab- lishment of Agro/Forest/Natural minimum wages etc. to the potential emigrants. Resource based micro / village in- • Skill Testing & certification aligned with employer stan- Shri Arjun Munda dustries through training of tribal dards Union Minister of Tribal cooperatives, SHGs and individu- • Incremental skill training & Pre-Departure Orientation Affairs al entrepreneurs, promotion and Training (PDOT) skill development in traditional • To focus on emerging opportunities in all regions of the tribal culture areas like tribal jewellery, painting, dance forms, world 

July - September 2019 l IIPA Digest l 25 Governance @ Work

Fourteen Senior Civil Service officers in respect of their batch, cadre, present posting, pay Officials of Mongolia to be Trained scale, qualification and superannuation with their overall in IIPA: Dr Jitendra Singh cadre strength with search features. The Civil list has been A Mongolian delegation-led by the linked with the ER sheets. The List has been designed Chairman, Civil Service Council of through DoPT, which gives multiple search options to the Mongolia, Mr. B. Baatarzorig, met users. The Department of Personnel and Training is the the Union Minister of State for Ministry of Development of cadre controlling authority of IAS officers and the Civil List North Eastern Region (I/C), MoS PMO, Personnel, Public is prepared with the help of inputs received from the States Grievances and Pensions, Atomic Energy and Space, Dr Cadres. The e-IAS Civil list is also available on the website Jitendra Singh. of the Ministry at http:persmin.nic.in under the link https:// Welcoming the delegation, Dr Jitendra Singh said easy.nic.in/civilListIAS/YrCurr/StartCL.htm that India greatly values its close and friendly relations with Speaking about the advantages of this Civil list, Dr Singh said Mongolia. He said that India and Mongolia are connected by that it will also facilitate the Information Commissions as the Buddhist linkages and centuries of historical connections. The information demanded by RTI activists about the officers Minister said that both countries enjoy a broad convergence is already in public domain that too with multiple search of long-term political, economic and strategic interests. He options. He added that DoPT being the HR wing of the said that Indian support to human resource development of government, it will also facilitate in research and comparative Mongolia is a matter of great pride for us. Dr Jitendra Singh data analysis based on many parameters such as age, sex. expressed happiness over the fact that the MoU between the educational qualifications etc. It will also assist in the human Union Public Service Commission (UPSC) and Civil Service resource management of the Government to ensure that Council of Mongolia (CSC) has been signed on July 3, 2019. the services of these officers are utilized to the best of their He said that a programme for training of 14 senior civil service abilities, the Minister said. officials titled “Local governance with focus on new areas of The Secretary, DoPT, Dr C Chandramouli, said that this list Administration” would be held at Indian Institute of Public contains information about 5,104 IAS officers. He said that Administration (IIPA) later this year. The DoPT Secretary, Dr this will not only help in the day to day administration, but C Chandramouli and senior officers were also present on the also help in research, as lot of demographics are available. He occasion. added that this is in line with PM’s emphasis on ‘Digital India’ and ‘ease of living’. He disclosed that by the end of this year, e-Civil List-2019 of the IAS Officers almost all departments will be on e-HRMS, which means information related to their service book, LTC, among others The Union Minister of State (Independent Charge) for Development of North Eastern Region (DoNER), MoS PMO, will be available electronically. This will also assist in predicting Personnel, Public Grievances, Pensions, Atomic Energy and the number of vacancies, he added. The Secretary also briefed Space, Dr Jitendra Singh launched the e-Civil List-2019 of the the Minister about the dashboard of DoPT which gives entire IAS Officers. This is the 64th edition of Civil list and for the first functioning of this department available on dashboard. The time, the Civil list contains photographs of the IAS officers. Secretary, DARPG, Shri K. V. Eapen and senior officers of the The IAS Civil list contains vital information in respect of Ministry were also present on the occasion.

26 l IIPA Digest l July - September 2019 Governance @ Work

Policy for Lateral Entry in Bureaucracy In a written reply to Lok Sabha, Dr Jitendra Singh, Union Minister of State (Independent Charge) Development of North-Eastern Region (DoNER), MoS PMO, Personnel, Public Grievances & Pensions, Atomic Energy and Space stated that the government has, from time to time, appointed some prominent persons for specific assignments in government, keeping in view their specialized knowledge and expertise in the domain area. NITI Aayog, in its three year Action Agenda, and the Sectoral Group of Secretaries (SGoS) on Governance, in its report submitted in February 2017, have recommended for induction of personnel in the middle and senior management level in the Government. Based on this, it has been decided, in principle, to appoint outside experts to 10 positions of Joint Secretary in identified Ministries/Departments and 40 positions at Deputy Secretary/Director level. Advertisement inviting application from individuals for the post of Joint Secretary in ten identified Ministries/ Departments was issued by DoP&T. The entire selection process of the candidates was entrusted to Union Public Service Commission (UPSC). The UPSC, after conducting the selection process, has recommended nine individuals for appointment as Joint Secretary in nine identified Ministries/ Departments. No adverse effect on the morale of the civil servants has resulted from lateral recruitment. Lateral Overhauling the Bureaucracy Entry In a written reply to Lok Sabha, Dr Jitendra Singh, Union Minister of State (Independent Charge) Development of North-Eastern Region (DoNER), MoS PMO, Personnel, Public Grievances & Pensions, Atomic Energy and Space stated that in keeping with the principle of ‘Reform, Perform and Transform’, the government has taken several measures to reform bureaucracy. Issue of provisional appointment orders on receipt of duly filled attestation form and self declaration by candidates pending police verification of character and antecedents, streamlining the system of posting at senior levels with due regard to integrity and merit, strengthening performance appraisal system of civil servants, UPSC strengthening of vigilance system, amendment of All India Services (Disciplinary and Appeal) Rules to provide for specific ‘timeline’ for completing enquiry against officers of All India Service (AIS) in a time bound manner and adequate safeguard against arbitrary suspension of All India Service (AIS) officers, discontinuation of interviews for lower level posts, removing dead-wood from bureaucracy (i.e. those found ineffective and non- performing are to be compulsorily retired), are some of the reforms made in the recent past. Some prominent persons have been appointed earlier also on lateral entry basis to man specific assignments from time to time. This includes among others, appointment of Dr. Manmohan Singh, Dr. Montek Singh Ahluwalia, Shri Vijay Kelkar, Shri BimalJalan, Shri Shankar Acharya, Shri Rakesh Mohan, Shri Arvind Virmani, Shri Arvind Panagariya, Shri Arvind Subramanian, Shri Vaidya Rajesh Kotecha, Shri Parameswaran Iyer, Shri Ram Vinay Shahi, Shri R. Ramanan and Dr. Sekhar Bonu. No adverse effect on the morale of the civil servants has resulted from lateral recruitments. The entry in Government run educational cadre at Assistant/Associate/Professor is open to all individuals who are fulfilling the required eligibility criteria independent of whether the person is currently within the educational institution or not.  -Source: PIB

July - September 2019 l IIPA Digest l 27 Civil Services in India Opinion

Reforming Civil Services in India - The Most Urgent Need of the Hour

Recent induction 9 joint secretaries by the Government of India through lateral entry into higher civil services has generated a raging debate in the country about the desirability of such a move. It is generally agreed that the existing structure of bureaucracy has miserably failed to deliver and that it is dated, dysfunctional and in urgent need of radical reforms. The paper examines the bureaucratic systems in different parts of the world and how they have reformed and transformed themselves. Drawing a clear distinction between bureaucratic systems in developing and developed countries, and pointing out the gap between expectation and reality, the paper argues for transformational reforms of our bureaucracy. Lateral Entry into Civil Services Opens Pandora’s Box n June 2018, the Department of Personnel and Training, IGovernment of India, notified the recruitment for 10 posts of Joint Secretaries through “lateral entry” from the open market for a fixed tenure of three years in the ministries/ departments of revenue, financial services, economic affairs, agriculture, road transport, shipping, environment & forest and civil aviation & commerce. They are to be responsible for policy formulation and implementation as well as for Prof. Govinda Bhattacharjee the administration of government programmes. As per the criteria fixed by the government, the applicants needed to be of bureaucracy, which a career bureaucrat knows too well, only a 40+ old graduate with at least 15 years of experience in and hence thinks several times before putting his signature 1 the respective domain areas. The job profile called for a high on any file. degree of specialisation and expertise. The response to the notification was, however, rather muted. The notification opened a Pandora’s Box and created expected It attracted 6077 applicants, but not the kind of expertise nervousness and a sense of unease among the existing the government was expecting. Government shortlisted 89 members of bureaucracy. The posts hitherto have always been candidates and finally appointed nine to positions as Joint filled from among the existing civil servants and dominated Secretaries. by the IAS who enjoy an advantage of two-years over their There are about 5,004 Indian Administrative Service (IAS) colleagues from other services in empanelment for higher officers in the country against the strength of 6,500; so there level posts in the Central Government; they cried foul saying is a shortage of 1500. At the level of Joint Secretaries there that it will demoralise the civil servants and thwart the best are about 450 posts and manning of 10 posts by non-career talents from joining the civil services. The political opposition bureaucrats will hardly make any dent into the structure as well as the left liberal intelligentsia screamed that it was an and functioning of the existing system which many regard, attempt by the Hindu nationalist government to politicise and with good reason, as the biggest obstacle to reforms. Indian saffronise the bureaucracy and to induct their favourites into bureaucracy has been adjudged as the steel frame that ensures key decision-making positions through the backdoor, while continuity of administration in the midst of shifting political the reformists asserted it was essential to usher in expertise landscape and ever-changing equations of electoral polity in and specialisation lacked by the IAS to accelerate the growth a country marred and marked by scams, corruption and lack of the nation and facilitate its integration into the 21st century of ethics and professionalism in every sphere. Bureaucracy in global economy needed to transform the country into an India has often been cited as the Asia’s most inefficient, and a economic superpower. Some bureaucrats pointed out, not nightmare for businesses.2 It has been equated with our “Chalta without reason, that the fixed tenure of the lateral entrants, as Hai” attitude that stubbornly resists reforms of an archaic advertised, may wreak havoc on the concept of accountability system in which accountability has been relegated to a distant

1“Bureaucrats unhappy over Govt’s lateral entry move, call for reforms in policy”, Hindustan Times, New Delhi, June 12, 2018.

28 l IIPA Digest l July - September 2019 Civil Services in India Opinion

goalpost, barely visible. As bureaucrats performance-oriented, adaptive and Gulzar Natarajan and Duvvuri fast-moving structure, with expert Subbarao observed insightfully in an domain-knowledge and ability to article, “Many people will find the very decide and act on the basis real-time idea of the IAS leading the fight against information and technology-aided “chalta hai” preposterous. The IAS is, inputs being the essential prerequisites. in fact, seen as the embodiment of all It is not true that the traditional that is wrong in the country. It is at bureaucracy in India has not delivered; centre of the callousness, venality and on the contrary, it has successfully corruption that define our governance. guided the nation through its difficult To believe that the IAS will fight to bring down a system transition years post-independence, helped maintain the that it carefully built and nurtured over the years to further unity and integrity of the nation and guided it in negotiating its narrow self-interest is simply ludicrous. Regrettably, this the economic reforms during the 1990s. But the existing report card of the IAS is not without basis.”3 structure of Indian bureaucracy seems to be falling out of sync Entry into civil services is only through India’s Civil Services with the modern times which requires specialised knowledge Examination conducted by the Union Public Service and expertise. Taking the Civil Services Examination requires Commission (UPSC). This, arguably, is one of the toughest no specialised knowledge in any area – a graduation in any and most competitive examinations in the world and it subject is the only eligibility. The administration of the continues to attract the best and brightest of the Indian youth. country is run through various services like the administrative To its credit, UPSC has always maintained the sanctity of the service, police service, foreign service, revenue services, audit recruitment process, and kept it free from interference of the and accounts service, etc. The single examination is the route politicians. Those entering civil services, especially the IAS, of entry to all these services of which every service other are exposed to diverse field experiences at the grassroots level than the IAS requires specialised knowledge and skill, which to comprehend its challenges, and take appropriate decisions. are imparted through a two-year long training at specialised But perverse incentives, readiness on the part of the officers institutes belonging to the different services which also to comply with the wishes of their political masters, trading includes on-job training for extended periods. IAS is the only of professional ethics in exchange for rewards and lack of service that is considered generalist nature and its training specialisation have eroded their effectiveness for a long time. is accordingly broad-based in which officers are imparted Viewed in that context, the move by the Government to induct instruction in multiple areas, in keeping with the requirement officers through lateral entry may be a long overdue measure of dealing with general administration that often requires that might act as a catalyst for more fundamental reforms of cutting across disciplinary boundaries including managing the civil services - by focussing on outcomes rather than on politicians at various tiers of administration with whom the procedures, and by making career civil servants compete with officers have to interact on a daily basis. the domain experts in various fields. Among all the civil services, IAS as a group is the most The principles of traditional bureaucracy to manage large powerful and has a quasi-monopolistic hold on senior organisations including states originated with Max Weber’s management positions in all departments and ministries. (1864-1920) ideas. Weber thought of bureaucracy as a rule- As a consequence, the revenue secretary of the country does based, defined hierarchy of offices with specified areas of not automatically come from the revenue services with the competence and authority assigned to officials at each level, requisite expertise, the Comptroller & Auditor General of based only on their technical expertise and specialisation, India who presides over the highly technical Indian Audit which also provided a career to the officials. It distinguished and Accounts Department does not come from the audit clearly between their private and public roles and was founded and accounts service, or the Information and Broadcasting on the edifice of specialised knowledge and the rule of law. secretary does not come from the information service - they The structure of this traditional bureaucracy was suited for all come from the IAS. Similarly the defence secretary does industrial society ushered in Europe by the first two Industrial not belong to defence services, the agriculture secretary is not Revolutions between the late nineteenth and early twentieth necessarily an agricultural scientist, the health secretary is not centuries. However, in the fast changing, information-rich, a health professional, and the law secretary is not from the knowledge-driven, globally connected, complex and flat legal fraternity – they are all from the IAS. Such a near total world of 21st century, this structure of the “ancient regime” monopoly of all senior positions in the government always has been showing increasing signs of ageing and dysfunction, breeds complacency, disincentivises acquisition of higher making it imperative to replace this old model by a flexible, skills, inhibits innovative thinking and inflow of new ideas from

2 Wall Street Journal, January 13, 2012, https://blogs.wsj.com/indiarealtime/2012/01/13/indias-bureaucracy-a-nightmare/, accessed 20/05/2018. 3 “Changing chalta hai”, The Indian Express, December 30, 2017.

July - September 2019 l IIPA Digest l 29 Civil Services in India Opinion

a certain benchmark. This system encourages status quo and discourages reform and innovation. If the government is serious about reforming the civil services, it must recruit through lateral entry in hundreds, not in tens. Only then career civil servants together with expert knowledge of lateral entrants can provide adequate synergies to policy formulation and implementation dynamics. Lateral entry can bring fresh ideas, unique perspective and innovation and life into an otherwise moribund civil service apparatus that has become outside. The officers, assured of automatic elevation to completely dysfunctional over time. highest posts in the administration regardless of their past This was also the idea of the government as the Minister of performance, knowledge and experience in a particular field, State for Personnel, Mr. Jitendra Singh, said in Parliament: often perform below par and fail to discharge their role in the "The decision for lateral entry at joint secretary level is based best public interest, but nevertheless enjoy the protection of on the recommendations of the sectoral group of secretaries their guardian angels among the ruling political class. They are (SGoS) on governance, in view of the need for bringing in charatcterised by what the World Bank calls “Patrimonialism” fresh ideas, new approaches to governance and to augment (monopoly of power and discretion without accountability the availability of personnel at JS level and not because of any and transparency). conclusion that Indian bureaucracy is inefficient."4 th On 15 August 2017, commemorating seven decades of Most bureaucrats - senior and junior alike - were expectedly our Independence, from the ramparts of the Red Fort, the nervous. One ex-bureaucrat wrote, “It is only a generalist with Prime Minister exhorted the nation, “I invoke team India rich experience in public administration who can visualise, to run for a new India by 2022. By then the poor shall have see through, and articulate macro perspectives. Besides, she concrete houses, the farmer shall double his income, youths has sufficient experience of working at the village, district and and women will get ample opportunities - an India free of state level. She understands how policies are implemented casteism, terrorism, corruption, nepotism, a clean India.” and the shortcomings of various policies.”5 He is only partly Unfortunately, the machinery he has at his disposal for right, grassroots experience is undoubtedly invaluable, but delivering all these – the steel frame of Indian bureaucracy- does not equip one to deal with the demands and incredible is an unlikely vehicle to herald in a new India of the Prime complexities of socio-economic transformation in the 21st Minister’s dreams. Lateral recruitment of 9 joint secretaries century where specialisation and expertise are the sine qua is hardly any reform of civil services, and without bringing non of progress. Grassroots experience at the micro level in more substantial civil services reform, every other reform can even be a disadvantage – it can blind one to the macro initiatives of the government will be doomed to sub-optimal possibilities and conditions and their interlinkages, without delivery. This remains the last bastion of privileges in a country which one can only move in a blind alley or go down a of underprivileged multitudes and the most formidable slippery slope. obstacles to reform, growth and rapid development. In a candid presentation “The Planning Era in India: A Lateral entry into the government is not a new concept; Retrospective" made before the PM, Niti Aayog had observed, it has been tried before but has been restricted mostly to “only proper Analysis and assessment of proposed policies recruitment in economic posts only, like Manmohan Singh, by experts and specialists can help us anticipate unintended Montek Ahluwalia, Vijay Kelkar, Bimal Jalan, Shankar consequences of policies….It is also very important to Acharya, Rakesh Mohan, Raghuram Rajan, Arvind Virmani, induct more and more experts from different areas in the Arvind Panagariya or Arvind Subramanian, and all of them Government. Increased complexity of the economy meant have contributed significantly in India’s economic progress. that as a general rule it is no longer possible for generalists There have been few others also – like M S Swaminathan, to learn any new subject within matter of weeks or even V Krishnamurthy or Sam Pitroda whose performances had m ont h s .” 6 been far superior to that of any career bureaucrat, but this was the first time that some posts outside the economic India probably is the only country in the world where an arena have been advertised for lateral entry. In our scheme officer can successively look after labour and employment, of things, a Joint Secretary is appointed based on seniority agriculture, telecommunication, statistics, commerce and cum merit, merit being decided by her performance as finance. The system assumes that the officer has superhuman reflected in the Annual Performance Appraisal Report above abilities to master all the specialised knowledge necessary 4“Proposal for lateral entry not because bureaucracy is inefficient: Government”, The Economic Times, July 26, 2018. 5Sudeep Singh Dhillon, “Lateral Entry Can Crush the Steel Frame of India”, Livemint, July 04, 2018. 6http://www.niti.gov.in/content/planning-era-india-retrospective-presentation-prime-minister-narendra-modi, accessed 20/08/2018. 7Naresh Chandra Saxena, “Has the IAS failed the Nation: An Insider’s View”, EPW, June 23, 2018.

30 l IIPA Digest l July - September 2019 Civil Services in India Opinion to run these departments / ministries in the complex Doing Business (currently 130/189) and Global Corruption external environment and deliver the intended outcomes Perception Index (79/176) will be unlikely to improve much of government’s policies in these diverse areas with equal without radical reforms in this area. efficiency and effectiveness. As another former bureaucrat Across the globe, civil service structures and systems vary wrote, “A high degree of professionalism ought to be the widely from country to country, in terms of recruitment, dominant characteristic of a modern bureaucracy. The fatal powers, privileges and responsibilities. Many countries and failing of the Indian bureaucracy has been its low level of regions, like the UK, Scandinavia, Italy, and Portugal have professional competence. The IAS officers spend more than no upper age limit for recruitment into civil service, while in half of their tenure on policy desks where domain knowledge 7 others, the age limit varies from 28 years for France to 50 years is a vital prerequisite.” There is no institutional mechanism to to Belgium and Ireland. But all countries assign weightage train her for a job that requires highly specialised knowledge. to experience in manning higher positions in civil services, The system of periodic training an officer is made to undergo and unlike in India, higher civil service positions are open to from time to time is hardly adequate to cater to this deficiency. competition from the private sector and experts outside the government. In the UK, Ireland and EU countries, experience Experiences of Other Countries and Our gained in both the civil service and the private sector is taken Attempts at Reform into account when appointments are made in senior positions. In their much-acclaimed book Why Nations Fail: The Almost all countries follow a merit-based system, but political Origins of Power, Prosperity, and Poverty published in 2012, appointments in senior positions are also common, as in MIT economist Daron Acemoglu and political scientist the USA. There is no formal centralised competitive exam James Robinson of the University of Chicago argued in the Netherlands and Germany; each authority recruits that the failure and success of nations and why they take autonomously. For the UK civil services, recruitment is based different developmental paths cannot be explained in terms on a decentralised, merit-based, open competitive procedure; of geography, climate, culture, religion, or the vision or more than 30% of civil senior civil service positions at the top inadequacy of their leaders, but by the inherent strength and three levels are filled up from the open market. inclusiveness of their economic and political institutions. In most Western democratic countries except France, and Drawing lessons from the history of countries spread among in the USA, equivalent higher positions are held by political different continents in times ancient and modern, they appointees. In the UK too, Secretarial positions are held by surmised that when a large number of citizens have a decisive politicians; there is no counterparts to our Collectors/ DMs. say in political and economic decision-making, as opposed to In France the Collectors and Secretaries are semi-political; a small band of people who control all political and economic they have a right to contest elections and if elected, to go on institutions in a country, there are greater chances of that deputation from the parent service. In US, certain senior civil country promoting economic prosperity for its people and service positions, including some heads of diplomatic missions assuming a political leadership among nations. This is because and executive agencies are filled by political appointees. UK inclusive economic and political institutions are based on had opened the civil service positions to people from the incentive structures that facilitate the flourishing of talents private sector and civil society, and provides encouragement and rewarding of creative ideas which alone can unleash the to civil servants to have stints in these sectors.8 creative potential of people and lift the country from poverty, backwardness and bankruptcy of ideas. Position-based Senior Executive Service (SES) exist in Australia, Belgium, New Zealand, UK, USA and Netherlands. Nowhere in the world does administration function like in The appointments to top positions are made from a wider pool our subcontinent where feudalism, poverty and exploitation comprising civil servants as well as private sector professionals coexist with a colonial mind-set as they have for centuries, with relevant domain knowledge and experience, where mired in a time-warp that holds all development and openness and competition remain the basic strength of the growth at bay. Our colonial rulers have long since disbanded system that ensures that only the best candidate is selected the structure and unless we succeed in reforming and for a job, unlike in India where the private sector is debarred restructuring of our civil services by effecting radical reforms from competing for senior positions within the government in it, we shall always find ourselves constrained to remain as a rule, making it impossible for lateral entrants to bring where we are, being unable to rise economically, socially or in their ideas, innovation and work ethics into government politically. In other words, we shall always remain a lower processes which are slow, non-responsive and non-adaptive. middle income country, without much say in global affairs, Such a closed system only perpetuates lethargy, slothfulness if we cannot overcome this last frontier that is holding us and complacence while precluding any opportunity for back. Our positions in the Human Development Index (130 renewal and revitalisation. The standard argument is that among 188 countries), Per Capita GDP (122/183), Ease of such an open competition will demoralise the cadre officers

8http://arc.gov.in/10th/ARC_10thReport_Ch3.pdf, accessed 25/08/2018

July - September 2019 l IIPA Digest l 31 Civil Services in India Opinion

and drive talent away. The international Educational Administration, Personnel experience, however, proves otherwise. The Administration, Financial Administration, fear for competition in fact leads to continuous Defence Administration and Internal Security renewal and upgradation of knowledge and and Planning, and also broadly indicated the skills of the existing civil servants. In the knowledge and specialisation required for American SES, only 10% of the positions are staffing posts in each of these areas, the lectionse filled up by outsiders, while in Australia, it is of personnel to which was to be made through around 14% while outsiders from open market a mid-career competitive examination. Needless constitute only 20% of South Korea’s career- to say, nothing even remotely resembling this based SES. Career based SES exists mostly in ever got implemented. India, France, Italy, Japan, Malaysia and Spain. Four decades later, the Hota Committee on Civil Services There have been many attempts to reform this decrepit Reforms (2004) recommended that domain assignment and outdated structure, but the powerful IAS lobby has should be introduced for civil servants to encourage always succeeded in stonewalling all such efforts. All that acquisition of skills, professional excellence and career has been achieved is reforming the structure and syllabi of planning.9 It had also recommended that empanelment the Civil Services Examination from time to time, which and posting of Joint Secretaries, Additional Secretaries and is inconsequential as the need for specialisation was never Secretaries should be carried out through domain assignment, recognised. A plethora of Committees have been appointed competitive selection and matching of available skills with the to suggest reforms of the Civil Services, and it is beyond job requirements. Again nothing was done. As the Second the scope of this article to go into the recommendations of ARC noted (2008), “The framework, systems and methods of each. We shall discuss the recommendations of only three functioning of the civil services based on the Whitehall model 10 of these: the First and the Second Administrative Reforms of the mid-nineteenth century remains largely unchanged.” Commissions (ARC) and the Hota Committee – to see how The Second ARC also recognised the need for developing things have remained unchanged over decades, or the more “Domain Competency” to meet the increasingly complex they changed, the more they remained the same. They remain challenges of modern administration: “This would mean much more so even now. that civil servants - especially in policy making positions - should possesses in-depth knowledge of the sector acquired The First ARC (1966) had recognised the need for through academic qualifications, field experience, managerial specialisation as the functions of government had become exposure, training and self-study.….. Assigning specific diversified. It distinguished between the two categories of domains to civil servants early in their career and retaining senior management posts: viz. posts within the functional them in the assigned domain is a key consideration in the area which should be staffed by the relevant functional cadre Commission’s proposals for civil service reform.” But this and posts outside the functional area for which the required domain competence has remained as elusive as ever. functional experience may be sourced from other specialised The Sixth Central Pay Commission (2006) also emphasised services as well, allowing for horizontal mobility from one that for manning senior management positions in the specialised area to another. It noted that the only service Government of India, competition can be infused by opening that was not functional but occupied most of the higher up the senior management cadre to all existing Services and posts in the civil services was the IAS, and recommended through lateral entry by opening the senior management that the IAS should be converted into a functional service. cadre to aspirants from the private sector who can bring new In line with its philosophy of organising the administrative skills into government. While the former mechanism is in machinery along functional lines and inducting talent from place only theoretically, as there is hardly any non-IAS officer all sources, it identified eight broad areas of specialisation at the Secretary level and very few at the next two lower levels into which the services should be organised, viz. Economic compared to the IAS because of a mindless empanelment Administration, Industrial Administration, Agricultural system in place that gives undue advantage to the IAS, lateral and Rural Development Administration, Social and entry into civil services has practically been a non-starter so

9Earlier, the Surinder Nath Committee (2003) also suggested development of domain expertise by each officer in a maximum of three of the following 11 domains – Agriculture and Rural Development; Social Sectors (Education, Health, Tribal Welfare, etc.); Culture and Information; Natural Resources Management including Environment (green side); Energy and Environment (brown side); Communication Systems and Connectivity Infrastructure; Public Finance and Finance Management; Industry and Trade; Domestic Affairs and Defence; Housing and Urban Affairs; Personnel and General Administration. The report as not implemented by the Govt. 10http://arc.gov.in/10th/arc_10threport_ch2.pdf, accessed 30/08/2018. 11A plethora of Committees to suggest reform of civil services have been appointed from time to time, including the A D Gorwala Committee (1951), Ramaswa- mi Mudaliar Committee (1956), V T Krishnamachari Committee (1962), D S Kothari Committee (1976), Satish Chandra Committee (1989), Yoginder Alagh Committee (2001), Yugandhar Committee (2003), Surinder Nath Committee (2003) dealing with various aspects of civil services like recruitment, training, transfer etc. While some changes have been effected in these areas, no major structural changes have taken place in the civil services ever since independence, while the standards of public life has continued to nosedive.

32 l IIPA Digest l July - September 2019 Civil Services in India Opinion far due to stiff resistance from the IAS. The institutionalisation Asia, Africa, Latin America and Middle East from the dark of induction of outside talent into the government is still legacy of imperial exploitation. The reconstruction of the extremely inchoate.11 ravaged economy and poverty and illiteracy were the most In contrast, federal civil service and higher positions in formidable challenge faced by the governments of these the US are filled by officers who are often lateral entrants. countries. Most, like India, embarked upon a path of planned The U.S. civil service includes the “Competitive service” development. But most of the structures they adopted were and the “Excepted service”. While majority of civil service borrowed from their colonial rulers - either as the legacy of appointments fall under the Competitive Service and are the past or imitation of the West. These were not rooted in made through competitive examinations conducted by the their realities. Office of Personnel Management, certain categories in the The almost unlimited power of bureaucracy in these Diplomatic Service, the FBI, and other National Security countries emanated from their past legacy. Their imperial positions are made under the Excepted Services, especially masters were seated far away from where their directives and those having national security and/or intelligence functions orders were to be implemented by the bureaucracy, and given like the CIA, GBI, NSA, NCIS or Foreign Service positions. the distance and the long time needed for communication, Although merit basis, they have their own hiring systems and the imperial masters were forced to give the bureaucracy a evaluation criteria outside the Competitive Civil Services. In total free hand. As Ferrel Heady said, “The colonial version addition, there are Senior Executive Service (SES) which are of British, French, or any other system of administration was non-competitive, senior leadership positions filled by career suited to the requirements of colonial government rather than employees or political appointees. Unlike the Indian, French government at home…Remnants of these bureaucratic traits or British civil services, the US civil service is not career-based, have inevitably carried over to the successor bureaucracies in the historical orientation being towards shorter-term or the new states.”13 programme - staffing for specific government programmes.12 Thus, in these newly independent countries struggling for The experimentation with career rather than programme led survival, the task of socio-economic development fell upon to the creation of Senior Executive Service (SES) in 1978. a bureaucracy that learnt only to carry out the order of their However, after so many years, the SES has been receiving imperial masters but had no idea of nation building. The mixed evaluations, and there its efficacy is being questioned. political leadership was inexperienced and immature and In Canada, hiring (or selection) of civil servants is typically weak, and this was how bureaucracy became powerful. They done through a competitive process that is either external continued to run the administration in the old style, as if there (open) or an internal (from among the existing employees). was an imperial power, and did not know what was required for The Canadian Civil Service has made significant efforts to building a new nation. The administrative mechanism became reflect the gender balance, linguistic, and ethnic diversity in centralised, there was no concept of popular participation Canada. Recruitment System of Canada Civil Service is based and the information machinery for communicating with the on quota like in India. people and getting their feedback was extremely weak. This In Italy the Senior Civil Service or “la dirigenza” constitute the only increased what is known as 'formalism' - discrepancy top and middle management in national or local governmental between the theory and the practice, as defined by Fred W offices. The two top-level positions are identified in each Riggs as the “extent to which a discrepancy exists between the ministry as Management positions and are filled in through prescriptive and the descriptive, between formal and effective open competitions. A senior executive signs two contracts: a power, between the impression given by constitution, laws fixed-term contracts for 3-5 years on completion of which, and regulations, organisations charts and statistics, and actual 14 he or she can move to a higher position depending upon the practices and facts of government and society.” The gap was assessment of performance. Mobility remains an important so wide that it permeated, pervaded, subverted and corrupted concept in Italy. Executives are encouraged to work in the every aspect of governance and administration. Corruption private sector or international organisations, and also as became a defining characteristics of the administrative researchers in Public Administration College with the right systems in these countries. to return. The developed countries, on the contrary, have adapted the structure and methods of their administrative apparatus to Bureaucracy as Inherited Legacy of Colonialism the changing needs and priorities of a dynamically changing in Developing Countries society. The changed paradigm called for focus towards The Second World War sounded the death knell of colonialism environment and urbanisation while attempting to provide and with that a number of independent countries emerged in better housing, healthcare, sanitation and civic amenities and

12Huddleston, Mark W. & William W. Boyer, The Higher Civil Service in the United States: Quest for Reform, University of Pittsburgh Press, London, 1996, p. 23. 13Heady, Ferrel, Public Administration, A Comparative Perspective, Marcel Dekkar, New York, 2001, VI Edition, p. 300. 14Comparative Study on the Local Public Administration in Asian and Pacific Countries, EROPA Local Government Center, Indiana University, 2010, p. 211.

July - September 2019 l IIPA Digest l 33 Civil Services in India Opinion improved services to the citizens, while developing countries a later stage. Appointing an agriculturist, a defence personnel, are still struggling to address the basic necessities of life like a doctor or an economist as secretaries of their respective providing food, shelter and literacy. While administration departments is still anathema in country; in fact, that is one in developed countries became responsive, receptive and reason why we are likely to remain ever-developing and not participative as a result of their changed paradigm, and to graduate into the developed category. Unlike a developing could focus on solving the problems of individuals, the country, a developed country encourages and establishes a administration in developing countries remained trapped in structure to involve people in the process of decision making the plethora of mindless rules and regulations, a vestige of the in some way, and hence can respond to their aspirations and control-command mindset taught by the colonial masters. problems. This reduces the gap between theory and practice Even when the political dispensations took initiatives to – and their system imbibe administrative realism to much dismantle this archaic and dated structure, the bureaucracy larger degrees, enforcing the rule of law and bringing fairness was putting stubborn resistance to change, arising from the and procedural simplicity, so that every common citizens fear of losing their powers, an attitude their colonial masters can easily comprehend and follow these rules, in a self- had bequeathed to them. regulated feedback mechanism that reinforces fairness and transparency. In fact, the structure of bureaucracy in a country tells a lot about the stage of its development. Developed countries The concept that the state should play an all-pervasive, have grown by changing the structure of their administrative controlling role in all activities including economic activities machinery by focussing on efficiency and management, of people belonged to the late 19th Century and three quarters leveraging technology to reduce corruption and improve of the 20th Century. The guiding philosophy of the state in transparency, and rationalising the bureaucratic structure 21st century is that the state should withdraw from economic to optimise delivery and output. As Ferrel Heady said, “the activities and its role should be that of a facilitator, to create public services of a modernized political system will be large and sustain conditions in which those activities can thrive scale, complex and instrumental in the sense that its mission and prosper. Recurring political crisis and instability and is understood to be that of carrying out the policies of the weak governance always tend to strengthen bureaucracy. political decision makers”.15 Thus political decision-makers Thus, bureaucracy became extremely powerful in France who have a stake in delivering their promises within the time compared to other countries in Europe, because of the at their disposal, should have a say in appointing personnel, discontinuity in French politics and its oscillations between at least some key personnel to posts considered vital for the republicanism and monarchy. Thus, by the time the Fifth delivery of their promises to the electorate. All developed Republic was established, the administrative machinery countries have integrated this practice in their administration inherited an enormous public sector and vast powers for where career civil servants working at the operational levels economic control. Civil servants in France today wield wide co-exist and cooperate with experts and subject specialists powers, enjoy immunity from lawsuits for their acts, play a appointed at the tactical and strategic positions. Their crucial role in public policy, security of lifelong tenure along administrative systems thus reflect greater democratisation with high respect and status in society and a lot of political and decentralisation, with administrative authority being freedom – they can even take part in party politics and run widely dispersed over a number of hierarchical levels, with for elections, and if elected can join their elected offices, with middle and lower levels also exercising considerable decision- the right to return to civil services later. making powers. In a developing country, on the contrary, authority tends to be concentrated towards the top echelons In India, the civil servants enjoy very little political freedom, of bureaucracy and administration, and lower levels look but as regards powers and control, they will beat France hands forward to the top levels even for deciding on petty matters. down. This can be directly related to the erosion of Central A developed country believes in specialisation - both in terms political authority during the 1980s and 1990s, and the of superior functional knowledge and experience - of its corruption of political class in general and their ascendency bureaucrats for the tasks they are supposed to execute, while to power in the states during those period. The virus of we still believe that in an increasingly complex world where corruption, crony capitalism and the unholy nexus between specialised domain knowledge has become indispensable, politicians, contractors and bureaucracy that has been eating subjects like agriculture, defence, revenue, finance, healthcare, into the innards of our body politic ever since was bred and etc. can be effectively managed by generalist secretaries who nurtured during that period and now pervade the entire have spent their entire careers being rotated among sundry system. To cleanse it in a Herculean task, if not impossible. departments and never being groomed along a carefully It might be easier to dismantle the edifice of bureaucracy and planned path to develop specialisation in an area they would redesign it to the needs of a “New India” the Prime Minister be likely to oversee and provide leadership and guidance to at wants so badly.

15Heady, Ferrel, Public Administration, A Comparative Perspective, Marcel Dekkar, New York, 2001, VI Edition, p. 190. 16 Mihir S Sharma, “End the IAS”, Business Standard, June 5, 2015.

34 l IIPA Digest l July - September 2019 Civil Services in India Opinion

The British left the civil services as perhaps its most important to reform itself. When the government initiated a process of legacy, other than the Partition. The independent India guided a 360-degree evaluation in order to bring in a semblance by Pandit Nehru who believed in institutions of the British Raj of accountability and merit, it was up in arms against the and a centralising authority, and himself created an institution system as being unfair, since it curtailed the automatic right – the Planning Commission - that held back our growth for to promotions to the highest executive positions under a seven decades, retained the structure, functions and design ministry irrespective of performance and public perception. of the then Indian Civil Services almost unchanged. As It wants to remain unaccountable and under-informed while Columnist Mihir Sharma wrote about the farcical nature retaining all its powers and privileges, averse to take risks and of this decision, “We, the world's fastest-growing economy lacking in vision as well as imagination. and its largest democracy, have a state structure basically As a research study by Carnegie Endowment for International unchanged from the extractive system set up to rule a vast, 17 pastoral country on behalf of a distant island nation. We have Peace (September 2016) by Milan Vaishnav and Saksham a twice-born bureaucracy that holds so much power. Why? Khosla have noted, “the IAS is hamstrung by political Because they are the happy inheritors of a system in which civil interference, outdated personnel procedures, and a mixed servants would have been loyal to the Queen and Whitehall, record on policy implementation”. It adds, “Today, in 2016, but ministers may have been dangerously nationalist - and there is a lingering view that corruption and politicisation thus needed to be easily vetoed or blocked.”16 No wonder this of the civil services have become more, not less, entrenched. dated structure instead of being able to deliver, got mired in According to a measure of government effectiveness developed politico-administrative corruption, red-tapism and a rent- by the World Bank that captures the quality of a country’s seeking through the License-Permit-Raj architecture that was civil service, its independence from political pressure, and carefully mounted over the decades and through which the the quality of policy formulation and implementation, India’s performance is middling. Data from 2014 place India in the civil services entrenched themselves into the system, exploited forty-fifth percentile globally, nearly a 10 percentage point people, stymied growth and enriched themselves with power decline from the country’s position in 1996, when these data and often - ill-gotten wealth. It discouraged specialisation, were first collected.” The steel frame is badly rusted and there encouraged mediocrity, rewarded itself with promotions and is thus an urgent need of cleansing the rust from the frame, privileges based on seniority, and created a structure in which “Unless India is able to reform its administrative apparatus, accountability and the concept of merit could be thrown to the sustained economic gains will prove elusive.” Such growth is winds. Over the decades, it had stubbornly opposed any effort

Table 1: Types of politico-administrative regime: key features Country State Structure Minister Bureaucrat Administrative Culture Diversity of Policy Advise Relation Australia Federal, Coordinated Separate, Mildly politicized Public interest Mainly civil service until 1980s Belgium Federal Politicized Rechtsstaat Mainly consultants and universities Canada Federal Separate Public interest Mainly civil service, more political advisers since 2000 France Unitary, Formerly Integrated, Fairly Predominantly Mainly civil service, some consultants Centralized, Coordinated politicized Rechtsstaat since 2000 Germany Federal, Coordinated Separate, Fairly politicized Rechtsstaat Mainly civil service (plus a few academics) Italy Unitary, Increasingly Politicized Rechtsstaat A broad mixture Decentralized Netherlands Unitary, Fairly Separate, Fairly politicized Originally very legalistic, A broad mixture; civil servants, Fragmented but has changed to academics, , consultants, other experts pluralistic, consensual New Zealand Unitary, Centralized, Separate, Not politicized Public interest Mainly civil service Mildly Fragmented Sweden Unitary, Decentralized Separate, Increasingly Originally legalistic, A broad mixture; corporatist process politicized but has changed to bring in academic experts, business corporatist people and trade unions UK Unitary, Centralized, Separate, Not politicized Public interest Mainly civil service until 1980s, recently Coordinated think-tanks, consultants, political advisers USA Federal, Fragmented Separate, Very politicized Public interest Very diverse, political appointees, corporations, think tanks, consultants

17http://carnegieendowment.org/2016/09/01/indian-administrative-service-meets-big-data-pub-64457, accessed 30/08/2018. 18Pratap Bhanu Mehta, “Our Bureaucracy, Our Selves,” The Indian Express, June 5, 2009.

July - September 2019 l IIPA Digest l 35 Civil Services in India Opinion unlikely to be achieved under the hold of stifling bureaucracy the replacement institution should be readied to take over and which, as Pratap Bhanu Mehta said while commenting on a we have none as yet. There will always be stiff resistance to recent report that rated the Indian bureaucracy as the most lateral entry into higher administrative posts, considered as inefficient in Asia, “confuses ends with means, rules with bastions of power. A number of bills to improve performance outcomes, control with efficiency.”18 and accountability and to curtail political interference – like the As observed by Pollitt and Bouckaert (2017), the nature of Public Services Bill (2007), the Civil Services Bill (2009), and politico-administrative systems in a country defines the the Civil Services Standards, Performance, and Accountability contours of the topography over which bureaucratic reforms Bill (2010) – lie pending with the Parliament without much must travel. Most countries have moved away from the archaic prospect of passage due to the resistance to change. model in which civil servants alone advised the governments Abolishing the IAS or Civil Services is a no-brainer. Any large on policy and then steered its implementation, as seen in state structure needs continuity along with change combined Table 1, while Indian bureaucracy still remains hardwired to in judicious proportions so as to maintain equilibrium and the “ancient regime” of traditional bureaucracy, in a steadfast prevent chaos. While a permanent bureaucracy provides way. for the continuity of policies and programnmes, resistance Source: Pollitt, Christopher and Geert Bouckaert, Public to change is inherent in such a structure. A practicable way Management Reform, 4th Ed., OUP, Oxford, 2017, p. 49. forward would be to continue with the existing system of entry through UPSC examination which has many advantages and The Way Ahead focus on the specialisation and training of such entrants while rd th increasing the percentage of lateral entrants to, say 30 to 50 With the enactment of the 73 and 74 Constitutional percent, and making the direct entrants compete with them (Amendment) Acts, we have adopted democratic for higher decision making positions. decentralisation as one of our national goals. But the entrenched bureaucracy has shown no sign of transferring If a new India is to be ushered in as early as 2022, only three any real power to the grassroots and these two amendments, years away, then institutional inertia needs to be overcome and instead of releasing the creative potential of the people at the urgent reforms cannot be put off any longer. The government grassroots, have remained largely exercises in symbolism must push for new recruitment rules to relax the upper age and tokenism. The imagined empowered third tier, of limits for recruitment; prescribe appropriate educational the governing structure next to the centre and states, has backgrounds for specialised civil services like audit and remained as elusive as ever. accounts, revenue services, etc., appoint specialists and experts from the private sector laterally to higher positions and make Resistance to change is nothing new in any large the IAS compete with them for further career progression and administrative setup, but the political system should push for gradually shift away from seniority-based career progression. reforms when the bureaucrats resist all-important changes. At the same time, it must strengthen accountability for Even the Second Administrative Reforms Commission, delivery and performance while instituting appropriate a major government-led initiative to prepare a blueprint safeguards against arbitrary dismissal. Establishing national for overhauling the Indian bureaucracy had recognised institutes of public administration in the style of the French that “inefficiency, corruption and delays have become, in may also help cultivate future civil servants with appropriate public perception, the hallmarks of public administration in 19 attitude, knowledge and motivation, a recommendation that I n d i a”, and suggested various measures, including opening was made by the Second ARC. up senior management positions in the IAS to individuals from the private sector. We have seen the result of only a All over the world today, the emphasis is on improved public single such experiment, that of Aadhar being successfully service delivery and responsiveness of administration to steered by Mr. Nandan Nilekani and its transformative effect public demands and expectations. Politics and administration on the national polity and economy. have a symbiotic relationship, one shapes the other. Both suffer from inertia, but both have capacity for innovation. Many have argued for abolishing the IAS altogether - on the Democracy functions on the principle of primacy of politics grounds that an unaccountable and misinformed bureaucracy over administration. During the last quarter of a century, based on the Whitehall model simply cannot administer the administrative systems in Western countries have a twenty-first-century India, and incremental changes at undergone major structural changes. Contract has replaced upgrading and renewal have proved to be ineffectual. But command, product has replaced capacity and performance tearing down a structure so deeply entrenched in the body has replaced loyalty to politicians. Administrative reforms politic is no easy task, and may not be advisable also, because have fundamentally changed the nature of the relationships

19“Refurbishing of Personnel Administration-Scaling New Heights”, Report of the Second Administrative Reforms Commission, 10th Report, Govt. of India, New Delhi, 2006, 1. 20Theo A. J. Toonen, “The comparative dimension of administrative reform: Creating open villages and redesigning politics of administration” in B Guy Peters and John Pierre (Ed) Politicians, Bureaucrats and Administrative Reform, London: Routledge, 2001, pp. 183-201.

36 l IIPA Digest l July - September 2019 Civil Services in India Opinion between politicians and civil and processes. NPG “posits a plural servants, and it is changing the nature state, where multiple interdependent of politics itself while impacting the actors contribute to the delivery of institutions of democracy. public services, and a pluralist state, where multiple processes inform the The New Public Management policymaking system”.22 (NPM) that emerged in the 1990s, driven by globalisation and based Like every model, NPM or NPG on a business-oriented approach have their critiques, based on valid to governance with emphasis arguments. Each also has its own on quality and performance has contradictions and trade-offs, substituted traditional bureaucratic like between staff motivation and institutions by the market through deregulation, privatisation, downsizing of government, between commercialisation and marketisation while encouraging increasing political control of bureaucracy and giving them internal competition, benchmarking and outsourcing.20 NPM more freedom to deliver and manage, or between exercising is about reinventing the Government and remodelling the economy and improving the quality of public services. State through a ‘specific set of recipes for public sector reform’ Equating performance and results with output and outcomes (Pollitt and Boueckert, 2017). After the 2008 crisis, many also poses problems. Different countries have followed countries across all continents, while trying to readjust to the different models of reform - some through small incremental new and harsh economic realities, embarked on reengineering steps, some through large scale modernisation of systems and their policies, priorities and institutions in order to improve processes of delivery, some through increasing marketisation the quality of public sector and push forward the economic of services through MTMs, and some through minimising the reforms through increasing privatisation and marketisation. role of the state through large scale privatisation and leaving NPM is actually a two-level phenomenon – improving the only the function of management of administrative apparatus public sector by incorporating business concepts, techniques to the government. Some have also attempted reforms and values at a higher level, and at a lower level, practicing through increasing decentralisation, assigning larger roles to specific concepts like greater emphasis on technology, communities and groups. Each country has followed its own improving performance, outcome-measurement, movement model and if we want to reform our civil services, we too have towards leaner, specialized and flatter organisational to invent our own model for reforming our civil service. structures away from the large and multifunctional ones, A larger discussion on these issues is outside the scope substituting hierarchy by coordination, enhancing citizen of this paper, but NPM and NPG have brought a huge satisfaction and trust, “widespread injection of market type paradigm shift in the way governments worked, not by mechanisms (MTMs) including competitive tendering, rolling back of the state, but by bringing regulation and public sector league tables and performance related pay; an oversight rather than promoting state’s active involvement emphasis on treating service users as ‘customers’ and on the in production and provisioning. It required a new application of generic quality improvement techniques such philosophy of administration to align and restructure the 21 as Total Quality Management (TQM)”. The concept of NPM civil services to the demands of the new philosophy. Most is based on a dynamic interaction between socio-economic developed countries have successfully negotiated that forces, the political system and the administrative system, difficult transition, while we have remained caught up in with focus on results. our time warp, adjusting only the volume, not the scope There is also a concept of New Public Governance (NPG) and nature of government’s involvement in society. We need model, in which the trajectory of reform of the existing to alter the scope and nature of that involvement and that structure encompasses not only all elements of the system needs a different breed of people, equipped with expertise like finance, personnel, organisation or performance and specialised knowledge, ideas and creativity, vision and measurement, but also emphasises on transparency, imagination. Our old bureaucratic ways are way behind the accountability and openness of the government systems expectations of a new India 

(Dr. Govinda Bhattacharjee is the Professor, Applied Economics in Indian Institute of Public Administration. The views expressed are personal.)

21Pollitt, Christopher and Geert Bouckaert, Public Management Reform, 4th Ed., OUP, Oxford, 2017, p.10. 22Osborne, S. (ed.) The New Public Governance: emerging perspectives on the theory and practice of public governance, London and New York, Routledge/ Taylor and Francis, 2010, p. 9.

July - September 2019 l IIPA Digest l 37 International Watch Bangladesh

Building Trust and Partnership in Local Government How do service-dominant logic and co-governance contribute to build trust and partnership in the local government of Bangladesh?

Inclusiveness has become policies keep society far away from the core activities of the one of the leading goals state. Hughes (1998) has stated that the traditional model of of the UN Sustainable public administration was obsolete, and has been effectively Development Goals replaced by a new model of public management emphasizing (SDGs). The paper networks and governance issues. This change represents a focuses, first, on the paradigm shift from a bureaucratic model of administration potential for building (less control and more decision-making and managerial trust and partnership freedom) to a market model of management closely related to among various actors that of the private sector (See also, Asaduzzaman et al., 2015, at the local government Peters 2001). It has been often claimed about the positive and, secondly, explores impacts of direct citizen engagement in state development co-governance and programmes on improving the well-being of excluded mass the Service-Dominant people (see for details Asaduzzaman et. al. 2015, Speer 2012, Logic (SDL) framework Asaduzzaman 2008, World Bank Report 2008, Farazmand in understanding trust 2004, Binagwa 2005, Blair 2000). Professor Dr. Mohammed and partnership in the Indicators used in the Country and Policy Institutional Asaduzzaman domain of development. Assessment (CPIA) conducted by the World Bank provide Drawing from the a picture of development in Bangladesh for 2005-2014. empirical case, the paper advocates the view that public It indicates the lowest rates in the areas of transparency, administration can be more effective and efficient by building accountability, and corruption in the public sector (2.5 in 2012, trust and partnership among different actors within local 2013 and 2014) and the CPIA public sector management and level of government by mixing the principles of SDL and institutions cluster (2.9 in 2012, 2013 and 2014). The country co-governance in service delivery. The importance of good is better placed in terms of other indicators with scores above governance principles and practices is recognised, and this 3. Generally speaking, corruption and accountability of public needs to be extended to decision-making and service delivery sector agencies seem to be major administrative problems in at the local level. Bangladesh. In Figures 1, 2 and 3 we have reported CPIA

lobalisation, exceptional advancements in information technology, the rise of the third-sector organisations, Gwidespread structural poverty, distrust, corruption, and terrorism across the developing world have resulted in unprecedented challenges for modern governments (Asaduzaman and Virtanen 2016, Asaduzzaman et.al. 2015, Tvedt 1989). While there are numerous aspects of structural, behavioural and procedural arrangements that deserve attention, building trust and partnership among the stakeholders (service producers and service users) emerge as critical concerns in the contemporary discourse of public administration. It is recognised that traditional public administration did not succeed in building trust and partnership in post-colonial countries in particular and its ideas have not matched for the challenges of the present chaotic environment in general (Farazmand, 2009). Ackerman (2004:447) claimed that traditional public Figure 1: CPIA indicators: CPIA public sector management and management strategies such as civil-service reform and strict institutions cluster, CPIA policies for social inclusion/equity average, procedural monitoring are explicitly designed to insulate the CPIA structural policies cluster average and CPIA transparency, state from society and even New Public Management (NPM) accountability, and corruption in the public sector (World Bank 2015).

38 l IIPA Digest l July - September 2019 International Watch Bangladesh

4.5 Furthermore, the lack of trust between service users and

4 service producers is a major impediment in building 2005 3.5 partnerships and creating the ground for good governance. 2006 Distrust is a leading contributor to poor administration and 3 2007 governance. This paper, therefore, explores potentials and 2.5 2008 strategies for building trust and partnership among various 2 2009 actors of the state, i.e. local government institutions, NGOs 1.5 2010 1 2011

0.5 2012

0 2013 CPIA gender equality CPIA building human IDA resource allocation 2014 rating (1=low to 6=high) resources rating (1=low index (1=low to 6=high) to 6=high)

Figure 2: CPIA indicators: CPIA gender equality rating, building human resources rating and IDA resource allocation index (World Bank 2015).

4.5 4 3.5 2005 3 2006 2.5 2007 2 2008 1.5 2009 1 Figure.4 research settings 2010 0.5 0 2011 (national and international), civil society organisations and CPIA business CPIA economic CPIA policy and CPIA quality of 2012 beneficiaries within the framework of service-dominant regulatory management institutions for budgetary and 2013 environment cluster average environmental financial -logic. In addition, this paper addresses two more specific rating (1=low to (1=low to 6=high) sustainability management 2014 research questions: how are the interpretations of trust and 6=high) rating (1=low to rating (1=low to 6=high) 6=high) partnership intermediated to donors, and host- country local administration (local government bodies), and what Figure 3: CPIA indicators: CPI business regulatory environmental factors (especially the role of co-governance and SDL) at rating, CPIA economic management cluster average, CPIA policy this interface create or diminish trust and partnership? The and institutions for environmental sustainability rating and CPIA research settings of this paper are presented in figure 4: quality of budgetary and financial management rating (World Bank 2015). Our treatise of co-governance and SDL deserves conceptual clarification here. With co-management we refer to Pestoff (2012), who distinguishes co-production, co-management evaluation results for Bangladesh, which is the case country and co-governance from each other. In Pestoff´s terminology, in our research paper (World Bank, 2015). co-production refers to joint production of services (mixing The concept of ‘good governance’ entered to the discourse of the roles of the service providers and service users) whereas international development cooperation in the early 1990s, but co-management is about an arrangement according to which subsequently it has emerged as problematic. Grindle (2002) the public, private and third sector participants deliver claims that the developing countries are poor candidates for services. Co-governance, then, deals with an arrangement good governance since their institutions are weak, vulnerable, in which different actors from public, private and the third and far from good quality. Huque (2016) found that the sector take place in diverse planning and decision making of limited resources and capacity present formidable barriers public services (at the regional and local levels in particular. to the establishment of good governance in developing In the words of Pestoff (2012: 18), “Co-governance refers countries. Therefore, the challenges of public administration to attempts to manage this growing diversity in a more ahead is to make it more people-oriented, effective and democratic fashion where various providers are represented efficient in order to face the crisis of new millennium. This and given both a voice and a vote.” Ackerman (2004) insights paper claims that progress can be achieved by building trust about co-governance that co-governance is the best way to and partnership among different actors and sectors of the empower the society, which involves inviting various actors state and in deploying co-governance procedure and the of the society to participate in the policymaking process of service- dominant –logic (SDL) in public service delivery. the state. He further argues that societal participation in

July - September 2019 l IIPA Digest l 39 International Watch Bangladesh

essential activities of the state is one the most from Bangladesh. Thereafter, thirdly, we discuss effective way to improve accountability and our empirical findings. Finally, we conclude governance. Boulding and Wampler (2010:447) our paper and set ahead future research agenda similarly emphasise that the engagement of with regard to our research topics. mass people in state-sanctioned policymaking The conceptual framework I: evolving process is the best way to improve governance, promote citizen empowerment, encourage public policy paradigms social justice, and institutionalize democracy. On-going financial crisis have affected public Speer (2012:2379) highlights co-governance as sector institutions, organisations, and services participatory governance. To her participatory in many ways. Therefore, it is reasonable to say governance has consequential impact such as that the implementation of the dominant new it improves public service delivery, empowers public management (NPM) and new public citizens and institutionalizes democracy. Citizen Professor Dr. Petri Virtanen governance (NPG) ideologies have taken empowerment helps to expand the public sphere place in the era of economic difficulty and – while simultaneously allowing citizens to exercise depending on the specific country – often rights and forge bonds of solidarity with other citizens (Sen alongside consecutive waves of recession and stagnation. 1999). Consequently, local governments delivering public services SDL, then, is an approach that places service users at the centre across the world have created new ways to interact with the of service delivering organisations. The SDL framework is used service users, citizen and the local communities and to deploy for this research paper to take advantage of its comprehensive technologies (and especially digitalisation) to enhance this characteristics in organising and arranging services in order participation (e.g. Osborne et al., 2013, Greve, 2015). to solve each service user’s problems. This is new because In order to understand the paradigmatic changes that have this approach has not been used as a conceptual frame in taken place in public sector organisations, we would like development studies in general and public administration to think of it as a paradigm shift, even though it is always in particular so far. In addition, this facilitates a partnership- rather controversial to speak about paradigms as clear-cut based approach if none of the partners have sufficient ability epochs. Thus, paradigm definitions in Table 1 are rfa from to solve service users’ problems by themselves. Moreover, clear, precise, and determined, and of course, there is the SDL promote participation of all actors to formulate and potential for scholarly hair-splitting and confusion here. This implement plans (see for details Dickinson & Glasby, 2010; same conclusion applies also with regard to the dominant Klijn, 2008; Virtanen & Stenvall, 2014; Shostack, 1977; Vargo public management doctrines and development aid practices & Lusch, 2004; Maglio & Spohrer, 2013; Maglio & Breidbach, since the 1990s – meaning that there definitely are many 2014; Vargo & Lusch, 2008; Osborne, 2010; Osborne et al., overlapping elements in the NPM and NPG, for instance 2013). (Greve, 2015). This paper is divided into four sections. After explaining There are three reference points in the map that capture the our view about the paradigmatic on-going change in public transformation of public sector organisations from rational policies and conceptual approach in deploying the concepts of planning to strategic planning and beyond to network- trust and partnership, we, secondly, present our empirical case based planning era. This means that the role and strategies

Table 1. The three paradigms of strategic thought in public sector organisations

Paradigm 1970-80s 1990s 2005- Criteria Rational Planning Strategic Planning Network-based Planning Main environment National Regional, European European, Global Planning mode Synoptic, rationalistic Strategic, programme- based Flexible, decentralised Decision-making culture Opportunistic, tactical Strategic, participatory Visionary, experimental Goals and objectives Maximisation of self-interest Reactive, proactive Long-term success through partnerships Steering Control Strategic positioning, evidence- Trust, Social capital based Mind-setting Bureaucratic mind Quasi-rationalistic mind Business intelligence Feedback & Learning Input control Output control Effectiveness & Risk Management

40 l IIPA Digest l July - September 2019 International Watch Bangladesh of public sector organisations have changed dramatically. The conceptual framework II: partnership and In short, whereas the planning paradigm has shifted from trust in development policy rational mode of thinking toward more complex operating Although the issue of partnership building is not new, it has environments, the role of strategy has gained more space so gained utmost significance with more power than ever before to say. Strategy incorporates the idea of a carefully crafted set for administration and governance (Farazmand, 2004). This of steps that a public organisation intends to follow in order section discusses various theoretical aspects to determine to fulfil its legal or political-administrative mandate. This has the essence and importance of partnership in administration meant that public sector institutions and organisations have and governance to identify critical issues in the partnership had to create new models and approaches for conceiving their process and its relation with SDL. strategies – to make sense whether it is a plan, ploy, pattern, position, or perspective, or a mixture of these (see Mintzberg, The concept of partnership in administration and governance 1987). became a central theme in the international development debate during the last two decades. Partnership is about Rational Planning Paradigm was based on the assumption that sharing power, responsibility and achievements (Farazmand planning in the public sector can be implemented synoptically 2004, 81). Of course, the success of this relationship depends and in a rationalistic manner. The operating environment to a large extent on the inherent interests and aspirations was limited to national borders, which made this planning of the partners (Binagwa, 2005). Harris (2000, 227) defined ideology possible. This had an effect on how decisions were partnership as: “[A] term which has come to be used made and goals and objectives were set in public organisations. very loosely, to refer to almost any kind of relationship Monitoring and steering was based on controlling the outputs between individuals and groups... [where]... straightforward of the public organisations and the mind-set of leadership contracting relationships are quite often described as was anchored in the bureaucratic frame. Strategic Planning “partnerships''... or asymmetrical relationships between Paradigm brought strategic thinking into the big picture of northern and southern NGOs, in which the language of public administration. The operating environment expanded partnership thinly veils direction based on power differences”. in two directions – towards regional aspects as well as multi- Farazmand (2004, 94-96) has sketched five fundamental national domain. Network-based Planning Paradigm started models of partnership such as the autonomous model, to replace strategic planning, and the new ideology was based the independence model, the globalisation-convergence on the NPG principles, which conveyed the idea that society model, the hybrid model and the elite model. Each of these and public administration can be governed by managing models includes alternative premises, strategies and global networks and co-operation. frameworks. After 2000, the scene for public administration was globalised Theautonomous model is based on the notion of independence in the sense that benchmarking and transnational co- exercised by all parties on an equal basis. State initiation operation mechanisms acquired substantial importance. with NGOs, citizens and private sector. Initiation is through Consequently, the time-frame logic of planning was changed proposals and policy, idea formulations with government by radically. In practice, this meant a transformation from all other parties. Third party initiation to pull government rationalistic “world view” towards more flexible practices and other parties into partnership building at local and time-wise. Planning cycles incorporated the idea of reflexivity national levels. National sovereignty is preserved through and change and the success of public sector organisations was independent strategies. The role of UN can be very effective considered to be based on long-term partnerships rather than in building partnership. The independence modelaims that all organisations functioning themselves. This meant noteworthy parties are living in an independent world in which no one changes in terms of how public organisations were lead, as the is self-sufficient or has the capability and resources to deal bureaucratic mind was replaced by business intelligence. This with problems of an independent world. Interdependence was due to the fact that public organisations needed more generates a sense of community, togetherness and re- intelligence in their leadership – as well as risk management, generation of energy for policy solutions and creative ideas. since the options for actions multiplied (public organisations Interdependence will only be another instrument of global were to concentrate more on the effectiveness of their actions exploitation of weaker nations and peoples by powerful rather than on input and output control). Network-based states, corporate elites and the organisations that represent planning paradigm has focused, in practice, on issues such them. The globalisation-convergence model is based on the as digitalisation of public services, creating value for service forces of globalisation – finance, production and policy users as well as collaborative governance of public sector convergence. Partnership building can become an important organisations (e.g. Greve, 2015). Trust and partnership structural and instrumental adjustment strategy paving the are, however, two of the key concepts that network-based way for economic, cultural and policy convergence towards planning paradigm builds upon. the globally dominant forces of the primary power structure.

July - September 2019 l IIPA Digest l 41 International Watch Bangladesh

Only a few industrialised globalising nations due to the diversity and heterogeneity of the (like the US) of the North that tend to see no social, political, cultural and economic structure limits in their quest for global dominance of the countries involved. The term partnership of finance, politics, market and governance sometimes is considered as a ‘Terminological almost everywhere on the globe. The hybrid Trojan Horse’ with its hidden motives to influence model is a combination of autonomous, a country’s development choices more effectively, independence and globalisation-convergence thus mystifying power asymmetry and acting as a model. It is more suitable for more developed more elusive form of external power imposition nations with massive institutional and (Crawford, 2003). resource capacity. It puts less-developed countries at a disadvantage because their Despite many obstacles, partnership building is ability to manoeuvre around policy choices is the most crucial requirement for ensuring good limited and only reactive. Local governance governance and providing better services to the partnerships may become an increasingly less Professor Dr. Jari Kaivo-oja citizens. Many strategies are found to overcome worthwhile proposition for less-developed the obstacles of building partnership. For example, countries when faced with forces of globalisation. Their Farazmand (2004) has recommended five strategic choices become only reactive – not proactive. The strategies for building effective partnership in administration. elite model is the most common feature of modern governance These are: adaptive, proactive, reactive, accommodative partnership building. Elites –economic-corporate and and neutralizing strategies. In addition, he emphasized on political elites dominate the policy arena of governance transparency as important requirement partnership process. almost everywhere. Elite partnerships take place on a daily Thus, partnerships without transparency are subject to basis for market expansion and domination. Nation-states are failure due to lack of openness and trust among partners in governed by powerful international and national elites. the governance process. It can be added that SDL provides an additional potential to enhance and develop trust by putting Although partnership was seen as the structured relationship service users/recipients of aid in the centre of the picture. between Northern and Southern non-governmental organisations before 1970s, currently it has been developed The concept of trust is used in a variety of distinct and not by various international, regional and local institutions to the always compatible ways within social sciences. The definition extent that it now has a number of different connotations. we prefer emphasises human interaction as the foundation of For example, partnership now focuses on transforming mere trust. Consequently, trust is a function of the intensity, quality ‘inclusion’ into relationships that are working, productive and duration of human interaction (Harisalo and Stenvall and equitable. It is further defined as a set of institutional 2004). Trust in interactive relationship is determined by the relationships between the government and various actors in the participants’ impressions on the degree of trust experienced private sector and in civil society. Unlike mere participation, a towards the other party in an indirect or direct interactive partnership implies a more formal ‘institutional’ relationship relationship. Partnership building might create direct and with clearly defined roles and responsibilities for each official interactive relationship between the actors. Hence, stakeholder. part of interaction is often indirect and non-personal. The concept of trust capital means that we understand trust as a Building partnership is not an easy task. Partnership process resource, and recognize the value of trust or capacity for trust is neither a win-win situation nor a zero sum game. Therefore, as a form of human capital or social capital. Many scholars every partnership process has to go through potential challenges (Arrow 1972, Putnam 1995) believe that trust is -probably and obstacles (Farazmand, 2009). Among others, the issue of the main component of social capital, which is a necessary power sharing is a very challenging and practical aspect of element for social integration, economic efficiency and partnership process. Politicians clearly fear losing control democratic stability. over policy-making and management while bureaucrats are afraid of losing control over the administration processes. For Lack of trust is a major impediment to forging partnerships, that reason, politicians and bureaucrats remain reluctant to and can easily result to failures in such actions. Scholarship share power with other actors such as civil society, NGOs, on trust and partnership tend to view trust and distrust as the private sector and ordinary people. Farazmand (2004) opposites on one continuum. Walle and Six (2014), for instance, identifies a number of potential obstacles of partnership noted that theoretical advances have challenged this view and process such as distrust, the widening gap between the North now consider trust and distrust as different constructs, and and South, higher expectations, potential environmental thus as constructs with different characteristics and partly conditions ranging across the spectrum from political and different determinants. ideological to economic and social as well as cultural, ethical, and racial differences. Sometimes, contextual reality does The case and the method not promote or permit a partnership framework to emerge Bangladesh has a long history of local government that has

42 l IIPA Digest l July - September 2019 International Watch Bangladesh been influenced by a strong constitutional one elected chairman, nine members (three from ideals. However, as a fundamental unit of each ward) and three female members (one from service delivery, the local government system each ward), and elections are held every five years. has remained weak. It has been claimed, that As a local government unit, UC has a long history despite neoliberal attempts at downsizing dating back to 1870 (Asaduzzaman 2008). Despite in recent time, maintaining coordinated its long historical lineage, UC is built on a very relationships between an assortment of narrow functional and financial jurisdiction, made organisations and various agencies in local further limited by administrative subservience to and national spheres for productive outcomes executive functionaries at sub-district and district has been a very challenging task particularly levels. Nevertheless, UCs have been responsible in developing countries like Bangladesh for 38 different types of functions, and they (Zafarullah, 2014). Among many others, include administration and maintenance of public corruption, conflicting political culture, Professor. Dr. Jari Stenvall discipline, delivery of public welfare services, partisan politics and bureaucratic elitism and the preparation and implementation of local have been identified as the major threats for economic and social development plans. The ensuring the UN Millennium Development Goals (MDGs) service related functions of UC are development, protection and the condition of good governance in Bangladesh. and maintenance of rural infrastructure, promotion of Research suggests that local government institutions remain education, health and family planning, birth and death meeting points for corrupt political and bureaucratic elites. registration and relief works. Thus, the potential benefits of local governance are rarely if A total of 65 people of different categories were interviewed ever realized as any ‘surplus’ benefits inevitably end up in from the case study unit and Kushtia Sadar Upazila. The the hands of those at the top who dominate the traditional categories of the respondents are indicated in Table 2. They underlying power structures (Smoke, 2003; Werlin, 2003; were asked thematic questions related to the main research Haque, 2003 & 2010). questions stated earlier. The interviewees were also asked Harinarayanpur Union Council (UC) was selected as a general questions on problems of good governance, overall research site for conducting empirical case study for this political and economic issues, and more details about corruption, election, poverty, role of civil society, NGOs and research. The Union Council is situated in the Sadar Upazila public bureaucracy. The participants were selected through of Kushtia District, located about 262 kms away from the the purposive sampling method. capital city of Dhaka. There are total 4550 Union Councils in Bangladesh. Union Council (UC) is the lowest unit of local The empirical study has been conducted in two phases. The government in Bangladesh. Every union is divided into three duration of first phase was one month, starting from April wards and each ward is divided into three villages and covering 20, 2015 to May 20, 2015 and the second phase was of two an average population of 30,000.00. The councils are led by months from November 1, 2016 to December 31, 2016. We Table 2: Categories of the Respondents

Category of Respondents No. of Respondents Respondents Local Govt. representatives 15 Upazila executive office, education officer, executive engineer, women executive officers and programme implementing officer People’s representatives 10 UC Chairman and members NGOs Officials 10 NGO Officials from three NGOs for example Grameen Bank, ASA (*) and BRAC (**) Civil Society Members 10 Community leader, religion leader and local voluntary workers Beneficiaries 20 Male 12 and female 08 (from the research unit) Grand total 65 * Association for Social Advancement ** Bangladesh Rural Advancement Committee

1FFW programme is an important policy instrument for the government of Bangladesh, designed to augment the employment and income of rural labour during a lean agriculture. FFW programme provides temporary employment at low wages mainly to unskilled workers on labour intensive projects such as road construction and maintenance, soil conservation, waste disposal, etc. This programme has two objectives: quick generation of employment to needy unskilled workers, and small-scale infrastructure development and maintenance. In the wake of global economic crisis and weather and natural disaster-related shocks, public works programs have assumed greater significance as important safety nets providing much needed income in the hands of able bodied poor and ensure consumption-smoothing.

July - September 2019 l IIPA Digest l 43 International Watch Bangladesh met and interviewed the villagers and civil society members Empirical findings at the roadside tea stalls around the case study areas. Small Citizen participation in local development has been roadside tea stalls are popular places where local people considered as vital for building partnership as well as trust gather informally in Bangladesh. Other participants were among service providers and service users. In theory, it has interviewed in their office premises. During the second phase been found that local people have better scope to participate of empirical study, we interviewed 35 people (Govt. Officials, in development projects, particularly those under the FFW NGOs Officials and Civil Society Members) by using a formal programme. In order to implement FFW programmes, UC questionnaire. Three development projects were reviewed as needs to formulate a Project Implementation Committee case studies to see the scope of citizen participation at different (PIC) of 7 to 9 members depending on the size of the levels of the development projects such as policy making, work. The head of the PIC should be from among the UC policy implementation, benefits sharing and feedback analysis. officials and others from different categories of local people The aim of these projects was to reconstruct inter-ward roads from the project area such as social worker, school teacher, for better communication across villages as well as generation freedom fighter, village development police (VDP), farmer, of employment for the poor residents. The projects were businessman, and house wife (as female representatives). 1 implemented under the Food For Works (FFW) programme Initially, the UC is responsible to constitute PIC through funded by foreign aid, and implemented by the Ministry of an open discussion with residents of the project area, and Disaster and Relief through the UC. The names of the studied local people are responsible for proposing the names of PIC projects are: members. Finally, it gets approval from the District Executive • Kittinogor Mill Mor Hote Kittinogor Canel Jamemosjid Engineer through Sub-district Executive Engineer. Mukhi Road Reconstruction (Fiscal year 2014/2015) A closer examination shows that the UC does not follow the • Harinarayanpur Mahir Bari Hote Lokkon Jute Mill procedures required for constituting the PIC. It was found that Mukhi Road Reconstruction (Fiscal year 2014/2015). the members of the PIC are close relatives of the Chairmen of the development projects. Although, there are clear guidelines • Kistinogor Ojuler Bari Hote Gohorer Bari Porjonto Road to arrange an open discussion with the local people in the Reconstruction (Fiscal year 2014/2015). project area in order to form PIC, local people claimed that With regard to the selection of research method and the UC officials never visited or informed them about the cases, it should be acknowledged that the literature on development projects. While government officials state that methodology concerning case study is far from unanimous they have no authority to create PIC committees because it and consistent for that matter (e.g. Gomm et al., 2000). is clearly within the jurisdiction of the UC, and that they are Some scholars argue that the only thing that can be only the approving authority. However, the local people claim generalized from a single case study is that nothing can be that there is an unholy alliance between government officials generalised (e.g. Guba & Lincoln, 1989). However, there are and UC officials. It is alleged that the UC officials are expected others who consider this view as a fatal misunderstanding to pay to the government officials about 20 per cent to 30 per and argue that the single-case study can definitely cent of the project money as a bribe at different levels. This is contribute to scientific development (e.g. Flyvberg, 2006; common knowledge to local people, and they believe that the Yin, 1994). Our understanding on case study comes very approval of projects depends on this transaction. close to the idea of external validity in evaluation research During the field study, the existence of third party called (e.g. Mohr, 1995) – the idea to understand the contextual “agents” was detected who serve as mediators between UC variables which ought to be analysed in judging how the officials and government officials. These agents are members results from one case study can be transferred from one of the ruling political party and more powerful than the context to another. Pawson and Tilley (1997) call this UC members and government officials. Agents have good analytic process as the CMO principle by which they relations with the higher authority of the ruling political party refer to evaluator´s task to understand the logic between and as intermediaries between service providers and service context, intervention mechanism, and the outcome of the users. They use the UC office as their business place, and in evaluated policy, programme, or project. Building upon many cases decisions on the award development activities Eisenhardt (1989), we think that it is important to focus on are made by these agents. The local respondents reiterated certain features of the research process, such as problem that nothing can be accomplished without the knowledge definition and construct validation, to find out that these and consent of the agents. For example, distribution of VGF process phases are similar to hypothesis-testing research. (vulnerable group feeding) and VGD (vulnerable group Moreover, it should be also underlined that the research development) cards, and elderly and maternity allowance are process adopted in this case study was highly iterative and often distributed on the recommendation of the agents. In tightly linked to data. The trajectories derived from the some cases, locals also allege that the UC officials distribute data and suggestions for further research are testable and these cards to the agents’ relatives instead of the deserving also empirically valid. poor and destitute residents. It has also been found that in

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many cases they (agents and UC officials) extort comfortable to visit the NGOs. They identified money from the poor for cards, i.e. they sell cards NGOs as flexible, non-corrupted, friendly to the poor people although they are meant to be and cooperative organisations. Civil society given at no cost. members claimed that NGOs have filled the gap that has been created by the local government’s Eight UP officials were interviewed during field malfunctions over the last three decades. study. Five of them were not supporters of the Consequently, Bangladesh has become a hybrid ruling political party, and presented a dismal land of mushrooming NGOs. However, civil picture of service delivery system of the UC. They society members also intensely criticised the claim that services for the poor and local people role of NGOs against massive corruption of local are not really free as claimed by then government, government units. According to them, NGOs and they have been turned into commercial items never organised or initiated any movement to that are sold in exchange for money. Therefore, Professor Dr. Ahmed fight against corruption. Therefore, the works Shafiqul Haque villagers have to pay for the allegedly free services contributed by NGOs do not always produce from the UC. In addition, these five officials good results. In addition, representatives of also stated that they were not assigned any responsibility or local government institutions, the civil society and the public authority because they did not belong to the ruling political claimed that NGOs in Bangladesh are also divided into two party. In their words, they were like Officers on Special Duty groups in support of the two leading political parties, i.e. (OSD) without any responsibility. Bangladesh Awami League and Bangladesh Nationalist Party The villagers seemed to view their relationship with (BNP). Consequently, NGOs have deviated from their role government officials as that between master and servants. as voluntary organisations due to their political affiliation. Local government officials consider themselves as masters In addition, LG representatives claim that NGOs are not rather than service providers. Therefore, access to local accountable to the government of Bangladesh but only to the administration is not easy for the villagers, and they are not donors who finance their operations. even willing to visit those offices. It was revealed that the The field study also made explicit a relationship of rivalry public are supposed to pay an unofficial fee if they wish to between NGOs and government officials. NGO officials visit government offices, particularly the Upazila executive maintain that local government officials are jealous of officer and police station. Interestingly, this was confirmed by the success of NGOs and treat them as their competitors. some of the UC officials. The empirical evidence shows that Empirical findings confirm that NGO officials, too, are less the local people including UP officials have strong reservation against the law-enforcing agency. As a result, local people are willing to work or cooperate with the local government not willing to visit these offices, particularly police stations agencies. As a result, the relationship among local people, even when they are in danger or crisis. In other words, the NGOs officials and LG officials could be termed as “love and citizens remain helpless unless they are able to purchase or hate relationship.” Local people have good relation with NGOs win support from the agents or local elites. Therefore, local while scarring relation with LG officials and the relations people have no trust in law enforcing agency. Out of fear, between NGOs and LG are very complex and conflicting. non-government organisation (NGO) officials were reluctant In discussions about the concept of trust with the respondents, to voice their opinion about the services of law enforcing it was found that local people had almost no trust on both agencies. UC and local government officials due to their involvement Civil Society members found that the lack of coordination in corruption, partisan politics, and bureaucratic elitism. and non-cooperation among the different local government Civil society members claimed that the LG and UC officials institutions have jeopardised the entire service systems at were more oriented towards rules and not towards policy and the UC level. This has serious implications for participation, service. Therefore, a good relationship among local people, partnership and trust. NGOs officials concur with this view. LG officials and UC officials has not been established in the On the other hand, other stakeholders expressed the view political and administrative history of Bangladesh. These that the civil society is divided into two groups. One group data also underlines the lack of political and bureaucratic is in favour of the ruling party while other group supports will, consensus on goals and strategies, partisan politics, the opposition. They are also known as elitist civil society. a dominant bureaucracy, factionalism, narrow political Therefore, a divided civil society lacks the cohesion required interests and unscrupulous scramble for power all these have to make an impact on local government issues in Bangladesh. affected cooperative relationships among various actors at the local level. As a result, the level of trust among the different The activities of NGOs are viewed very positively by the local local government actors is negligible. residents. Eight local and national NGOs are actively working in this UC. The respondents stated that access to NGOs and Although local people are not happy with the role and its officials is very easy, and they comparatively felt more performance of the UC, they appreciate services provided

July - September 2019 l IIPA Digest l 45 International Watch Bangladesh by officials in the agriculture and family planning understanding and trust among local actors. departments. Respondents (local people, civil society members, NGO officials) claimed that only these two • Coordination and Cooperation: coordination and departments provide better services to the local people cooperation are indispensable when multiple agencies compared to other departments. As a result, agricultural are involved in a service delivery system. Better service delivery requires coordinated effort that has production has increased considerably, while population consequential impact on building trust and partnership. growth rate has declined. • Access and Participation: Easy access and participation Enabling and limiting trust and partnership in local administration and development activities factors are essential pre-conditions for enhancing trust and partnership. In this section we summarise key empirical findings of field research in relation to issues discussed in the field research • Training and awareness building: In many cases phase. The summary of the empirical findings of our research local people are apathetic to participate in local development activities. Therefore, various types of are presented in two dimensions: (1) enabling trust and motivational training for locals are required to build partnership factors, and (2) limiting trust and partnership their awareness, which finally will lead to enhance factors. trust and partnership. Enabling trust and partnership factors: • Open discussion/participatory budgeting: A participatory • Collective will and commitment: collective will budgeting system should be able to get local actors and commitment of local government and people’s interested and encouraged to contribute to the representatives are essential for building trust and development of localities. partnership among different stakeholders. When present, • Impartiality: Local government officials must play a these entities also reflect the main ideas of co-governance neutral role. Injustice creates misunderstanding between and the SDL. service provider and service users. Therefore, impartiality • Accountability and transparency: local government is an important factor in building trust among the various institutions have to be accountable to the citizens promoting agencies. partnership and building trust between service providers • Negotiation: Negotiation is one of the best tools for and service users. A transparent decision making process reducing and resolving conflicts and misunderstanding is also vital in encouraging local people and others to among the various actors at local level. It can be said that participate in the local government activities. increased negotiation will lead to enhanced trust which, • Strengthening UC: under the current framework, UC in turn, will lead to stronger partnerships. is not capable of coping with the multidimensional • Friendly attitude and respect: Local administrators and challenges of the 21st century including elimination of representatives must be very friendly and respectful to massive poverty and corruption. Many UC officials are the local people and other actors. Respect for one another not aware of their responsibilities and authority, female is critical for enhancing trust. members in particular. Therefore, strengthening the capacity of UC and its officials is critical for building • Free and fair election: free, fair and credible election partnership and trust – and thus, for strengthening is the most significant keystone in institutionalising customer- or citizen –based service delivery logic. democracy and thus practicing the principles of good governance. Periodic free and fair election ensures • Non-partisan politics: although local government citizen participation, upholds democratic values, representatives are politically affiliated and elected, strengthens and empowers democratic institutions, and it is important that they must behave like impartial builds partnership and trust among political parties and development actors in order to enhance mutual various actors at both local and central levels.

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Limiting trust and partnership factors: • Lack of political and bureaucratic will: Lack of political and bureaucratic wills are critical factors that impede service delivery system at the local level in Bangladesh. Local people have no trust on political leaders and local government officials. • Unfriendly and elitist bureaucracy: The bureaucracy holds an extremely strong position both at the local and central levels and plays dominant role even in the political system in Bangladesh. Bureaucracy in Bangladesh remains elitist in nature, narrow in outlook and isolated from the public. • Corruption: Corruption is the leading factor for diminishing trust and partnership at both central and local levels in Bangladesh. The problem has proliferated at every sector and level and has become a main source of concern for citizens. • Lack of transparency and accountability: Local government representatives are only accountable to their line departments rather than to the public they are expected to serve. On the other hand, people’s representatives are also not accountable to the local people by whom they are elected. • Lack of coordination: Findings demonstrate that UC, sub- district and NGOs work independently and in isolation local government institutions are not capable enough in of one another. Coordination among these sectors is conducting free and fair election. Democratic institutions need based or occasional rather than regular. As a result, in Bangladesh are very weak, our findings established. As the quality and quantity of services delivered to the a result, the questions of partnership, trust and service public is not satisfactory. delivery are elusive in the contemporary political culture • Conflicting political culture: It appears that only the ruling of Bangladesh. party has the right to organise and participate in political activities, while it is restricted and almost forbidden for Based on a critical overview of the situation at the grassroots the other political parties. The resultant confrontational level, it is obvious that enabling trust and partnership factors political environment contributes to corruption and could help to develop the logic of SDL at different levels of instability. It is obvious that mistrust is deeply rooted in government in Bangladesh. Thus, the factors that limit trust the political culture of Bangladesh. and partnership are diminishing the value of service-dominant • Political intervention: Excessive political intervention in logic. However, the SDL can be used as a comparator to assess every sector at UC level is a very common phenomenon, the process of the evolution of partnership and trust in the and this has made the local government units invalid decision-making at the local government level. and irrelevant. As a result, the benefits or services of UC go to only a handful of local elites and agents. Conclusion This phenomenon of clientelism is a direct product of The tentative hypothesis in this research paper was related to confrontational political culture of Bangladesh. co-governance´s and SDL´s role in interpreting partnership and trust in local government policies in a developing • Lack of free and fair election: Although Bangladesh has country. The theoretical interpretations made a distinction got independence in 1971, the process of democratic between service organisation, service staff and service users. governance has not been established yet due to lack of free and fair election. Over the last 46 years ten national The first conclusion relates to the importance of good elections have been held but only few elections (in governance principles, which ought to contribute to 1991, 1996 and 2001) have taken place without been better decision-making and service delivery at local level. questioned. The empirical findings confirmed that the This research points to the fact that there is definitely

July - September 2019 l IIPA Digest l 47 International Watch Bangladesh the need to take into account the elementary aspects of Asaduzzaman, M., Kaivo-oja, J., Stenvall, J. & Jusi, S. (2015). co-governance and the SDL in addressing how service Partnership as an alternative approach instrengthening local delivery could be enhanced and made more effective governance in developing countries: some propositions, Public and targeted in the developing world. Citizenship and Organization Review. A Global Journal. April 2015, 1-15. community values are of key importance in this process, Asaduzzaman, M. (2008) Governance in Practice: Decentralization as they underline the role of public services per se. This and People’s Participation in the Local Development of Bangladesh, conclusion comes very close to the ideas put forward by Published PhD thesis, University of Tampere, Finland Arrow, K.J. Denhardt and Denhardt (2015: 665, 667), who argue that (1972). Gifts and Exchanges, Philosophy & Public Affairs, 1(4), 343- public service should focus on creating opportunities 362. for citizenship by forging trusting relationships “…with members of the public and working with them to define Blair, H.W., (2000) Participation and Accountability at the Periphery: public problems, develop alternatives, and implement Democratic Local Governance in six Countries, World Development, solutions”. They added that citizens’ engagement has been 28(1):21-39. slow to produce positive effects on decision-making, Binagwa, F. A. (2005). Partnership between the Local Government citizenship, and governance. This idea highlights the role Authorities (public) and Non-Governmental Organizations (private) of the SDL also in the development context. in Tanzania mainland, An Unpublished PhD Dissertation, St. Secondly, there is a need to take into account the SDL Clements University, Australia. framework as a tool for analysis and data interpreting Boulding, C., and Wampler, B. (2010) Voice, Votes, and Resources: since questions related to leadership, service users’ roles, Evaluating the Effect of Participatory Democracy on Well-being, accountability, and empowering the needs of the service World Development, 38(1):125-135. users emerged repeatedly in our interview data. Based on the evidence in this research, there is a definite need to Crawford, A. (2003) Conceptual Governance of Deviant Behaviour, build better governance models for the Union Councils – to Journal of Law and Society, 30(4): 479-505, https://doi.org/10.1111/ ensure the well-being of service recipients, the “customers j.1467-6478.2003.00267.x Denhardt, J.V & Denhardt, R.B. (2015). first” mentality, the equitable treatment of service users The new public service revisited. Public Administration Review and citizens, the justified and knowledge-based decision- 75(5), 664-672. making, and eventually, the betterment of society. Research Dickinson, H. & Glasby, J. (2010). Why partnership working doesn’t implications of this study are thus multiple, and listed below: work? Public Management Review, 12(6), 811-828. • The built-in flexibility, forms of strategic foresight, and Eisenhardt, K.M. (1989). Building theories from case research”, agility of public service delivery at the local level in Academy of Management Review, 14(4), 532-550. Bangladesh with the help of SDL and more pervasive deployment of various co-creation models. Farazmand, A., (2009). Building administrative capacity for the age of rapid globalization: a modest prescription for the twenty- • The evolvement of various co-creation, co-management first century, Public Administration Review, 69(6), 1007-1020 and co-governance models to enhance the role of Farazmand, A. (2004). Building partnerships for sound governance, citizens and service users within the policy framework of the Union Councils at all phases of the public service in Farazmand A. (ed.). Sound Governance: Policy and Administrative delivery (planning, implementation and evaluation). Innovation, London: Praeger Publishers, 77-98. • Introducing the role of vertical as well as horizontal Flyvbjerg, B. (2006). Five misunderstandings about case-study accountability in the Union Council decision-making research, Qualitative Inquiry, 12(2), 219-245. at the local level of governance to strengthen the role of Gomm, R., Hammersley, M. & Foster, P. (Eds.) (2000), Case Study service users and citizens as the accountability agency. Method. Key Issues, Key Texts, London: Sage. • The more-detailed cultivation of more service-user Greve, C. (2015) Ideas in public management reform for the 2010s. oriented public service planning mechanisms by Digitalization, value creation and involvement. Public Organization developing various mechanisms to co-create as well Review,15(1), 49-65. better understanding of the SDL´s democratic function. Grindle, M.S., (2002). 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(Author/s: Dr. Mohammed Asaduzzaman, Professor, Department of Public Administration, Islamic University, Bangladesh; Dr. Petri Virtanen, CEO, Adjunct Professor, ITLA The Finnish Children´s Foundation; Dr. Jari Kaivo- oja, Research Director, Finnish Future Research Centre, University of Turku, Finland; Dr. Jari Stenvall, Professor (Administrative Sciences), School of Management, University of Tampere, Finland; and Dr. Ahmed Shafiqul Huque, Professor, Department of Political Science, McMaster University, Canada. Views expressed are personal.)

July - September 2019 l IIPA Digest l 49 Thesis Summary Apppa alumni

he Agreement on of the value of agricultural production for most developing TAgriculture (AoA) countries. For example, public stockholding programmes of the World Trade for food security in many developing countries include Organization (WTO) an element of subsidy to farmers as food stuffs for such entered into force programmes are purchased by government at administered when the WTO came prices and not market prices. This subsidy element has to into existence on 1 be kept within limits specified in the AoA. This constraint is January 1995. It is part exacerbated by the manner in which the subsidy element is of a comprehensive set calculated i.e. the administered prices of the year in question of multilateral trade are compared with the average prices that prevailed during rules specifically for the three years, 1986-88, without inflation adjustment. agriculture negotiated The AoA includes a commitment to continue the process during the Uruguay of agricultural trade reform through new negotiations. Round of multilateral Under the Doha Round of trade negotiations (launched in Anu P. Mathai trade negotiations that Adviser International Economic 2001) the aim of the agriculture negotiations is substantial took place from 1986 Relations Division, Department of improvements in market access; reductions and eventual to 1994. Economic Affairs, Ministry of Finance, phasing out of all forms of export subsidies; and substantial Government of India The AoA establishes reductions in trade-distorting domestic support. However, a number of general the Doha Round has been log jammed for several years and rules and commitments relating to governments’ actions for agriculture has been the main bone of contention. agricultural production and trade, in three areas, namely, Some of the developed countries are not prepared to market access, domestic support and export competition. undertake the reductions in subsidies and tariffs that further These apply to the agricultural products specified in the reforms will entail. Their contention is that countries such as AoA which includes all basic and processed agricultural India and China must agree to cuts in subsidies and tariffs products, but excludes fish, fishery products, forestry too and should not be allowed the special and differential products, and those manufactured from fibres such as cloth treatment provisions that are already available to developing and clothing. countries or are being negotiated under the Doha Round The agreement allows governments to support their of trade negotiations. However, developing countries argue agriculture sector, but preferably through policies that that there is a wide gulf between the subsistence farming in cause less distortion to trade and production. It allows some their countries and the commercial agriculture in developed flexibility – with conditions - in the implementation of countries and some of the large agricultural exporters commitments by developing countries, net-food importing among the developing countries and, therefore, even the countries and least developed countries (LDCs), e.g. lower faster growing developing economies continue to require cuts in subsidies and tariffs and longer implementation flexibilities to aid their agriculture sector. periods. The aim of the study was to review the AoA and its The AoA was primarily the result of an understanding between implementation, its influence on India’s agricultural trade and the European Union and the United States of America. Over to assess the implications if there are no further negotiations the years, it became evident that the rules in the agreement on agricultural trade rules in a multilateral forum. The study were better suited to the type of government support measures concludes that while the WTO has positively impacted global in developed countries, for example, direct income support to trade, there is a lot left to be done in reforming the rules. Further, farmers. Developing countries, on the other hand, tend to use this has to be done in the multilateral forum as agricultural price support measures - such as Minimum Support Prices in subsidies are not covered in negotiations for bilateral or regional

India - which are subject to stringent conditions in the AoA. trade agreements  While developed countries can continue to provide high ‘ subsidies and use complex tariff-related measures to protect Anu P. Mathai received the Best Dissertation award their agriculture, developing countries are constrained by during the 44th APPPA convocation programme limits on the subsidies they can provide, which is 10 per cent ‘

50 l IIPA Digest l July - September 2019 Mahatma Gandhi Tribute

he bronze Statue of Mahatma Gandhi Twas unveiled by our esteemed IIPA Chairman, Shri TN Chaturvedi on July 1, 2019. This has been a landmark in the history of IIPA as the Statue has been built completely by the voluntary contributions from the IIPA employees. Also, it has been built by none other than the designer of ‘Statue of Unity’ in Gujarat, Padmabhushan Shri Ram Sutar. He has also been kind enough to grace the inaugural event despite his age of 94 years and deteriorating health 

July - September 2019 l IIPA Digest l 51

Leaders Quotes of the Month ‘

“Service can have no meaning unless one takes pleasure in it. When it is done for show or for fear of public opinion, it stunts the man and crushes his spirit. Service which is rendered without joy helps neither the servant nor the served.”

Mahatma Gandhi

“Democracy and socialism “So long as you do not are means to an end, not achieve social liberty, the end itself.” whatever freedom is Jawaharlal Nehru provided by the law is of no avail to you.”

B.R. Ambedkar

“India is known for its sobriety and wisdom, balanced and sensible thinking. We need strong institutions and we need good governance in the country.” “Our words, actions, and Pratibha Patil diplomatic efforts should be aimed at trying to achieve pragmatic goals rather than creating rhetorical effect.”

Atal Bihari Vajpayee

“E-governance is easy governance, effective governance, and also economic governance. E-governance paves the way for good governance.”

Narendra Modi

52 l IIPA Digest‘ l July - September 2019 Hon'ble President of India, Shri Ram Nath Kovind with IIPA Chairman, Shri TN Chaturvedi

Hon'ble President of India, Shri Ram Nath Kovind with IIPA Director, Shri SN Tripathi Interview Alumni Watch Governance @ Work Shri Ajay Prakash Sawhney Shri TN Chaturvedi Mongolian official to be Secretary, MeitY Chairman, IIPA Trained in IIPA Vol No. 01 Inaugural Issue July-September 2019

IIPABuilding Capacity for Governance DIGESTPrice : ` 100 Gandhiji’s Talisman

“I will give you a talisman. Whenever you are in doubt or when the self becomes too much with you, apply the following test:

Recall the face of the poorest and the weakest man whom you may have seen and ask yourself if the step you contemplate is going to be of any use to him. Will he gain anything by it? Will it restore him to a control over his own life and destiny? In other words, will it lead to Swaraj for the hungry and spiritually starving millions?

Then you will find your doubts and your self melting away”

Mohandas Karamchand Gandhi (October 2, 1869 to January 30, 1948) A Tribute by employees of Indian Institute of Public Administration 2019