07-05-2025
What are the challenges faced by the civil services?
The story so far: On the occasion of Civil Services Day (April 21), Cabinet Secretary T. V. Somanathan IAS, spoke about the importance of civil services in maintaining and strengthening democracy, the need for lateral entrants and greater transparency.
What is merit versus spoils system?
The merit system entails appointments to government posts after a rigorous selection process by an independent authority. In India, this commenced in 1858 when the British introduced the Indian Civil Service to select officers for administering the country. After independence, it is the Union Public Service Commission which conducts such exams. The merit system is aimed at building career bureaucrats who are expected to function without any political leanings and provide independent advice to the incumbent political executive. The spoils system works on the adage 'to the victor belong the spoils.' It is a system where the incumbent political executive appoints its supporters to various posts in the government. It has its origins in the U.S., and continued until 1883 when it was replaced largely by the merit system.
What is the role of the civil services?
The civil services have contributed significantly in the administration of our democratic system. As mentioned by the Cabinet Secretary, they have been instrumental in the conduct of free and fair elections, and ensuring smooth transfer of power both at the Centre and States. There have been numerous instances when States have been placed under President's rule, with the civil services ensuring uninterrupted administration during such times.
On the development side, they are a repository of institutional knowledge. They provide advice to ruling governments in policy making and also implement the policies made by the political executive. The administrative tasks of public bureaucracy include executing and monitoring programmes, and laying down laws, rules and regulations. Civil servants have been the fulcrum around which governance activities like delivery of essential services, providing relief operations etc., have been carried out.
What ails the civil services?
But the civil services also suffer from significant challenges. First, neutrality as a trait is fast eroding among bureaucrats, resulting in political bias in discharge of critical functions. It is pertinent to note that both the cause and effect of this phenomenon is the increasing political interference in all aspects of bureaucracy including postings and transfers. Second, career bureaucrats who are generalists, may lack the expertise needed to address technical challenges. Third, there is also significant corruption at all levels of the bureaucracy that often goes unpunished.
What reforms are required?
Some of the measures that need to be taken are summarised here.
In a democracy, the mandate is with the elected government and it needs to be respected. However, the neutral bureaucracy needs to be insulated from undue political interference to uphold the rule of law and constitutional values. To maintain a harmonious balance between the political and permanent executive, the autonomy of career bureaucrats is essential. This includes reasonable independence with respect to postings, tenures and transfers. Also, there needs to be a shift in the focus of bureaucrats from 'procedure' to 'outcomes.' Monitoring at present in the government is primarily through the measurement of outlays and at best through outputs. There is a need to move towards measurement of 'outcomes.' This reform can be hastened by hiring domain experts as lateral entrants, especially at senior levels. These reforms would uphold the essential traits of an effective civil service.
Rangarajan. R is a former IAS officer and author of 'Courseware on Polity Simplified'. The views expressed are personal.
