The document discusses the history of civil service reforms in India since independence, including various committees established to recommend reforms. It outlines several key issues for reform such as recruitment, training, performance appraisal, efficiency, accountability, pay reforms, and management of the civil services. It provides details on the recommendations of past reform committees and achievements in implementing certain recommendations.

1. CIVIL SERVICE REFORMS IN
INDIA
Nayana RenuKumar
Centre for Good Governance

2. Contents

Civil Service Reforms

Indian Civil Service

Civil service reforms in India

Key reform issues and their Status in Indian Context







Recruitment
Training/Capacity Building
Efficiency
Accountability
Performance appraisal
Pay reforms
Management of the Civil Services

State of Civil Services Survey 2010: Employees’ take on the services

Civil service reforms (Senior Management) in OECD countries

Way Forward

3. Civil service reforms

Civil service reforms in comparison with Administrative and
Governance Reforms




Administrative reform focuses on rationalizing structures of government
Governance reform refers to improvement of legal and policy
frameworks, participatory systems for citizen involvement and
transparent systems for accountability
In both administrative and governance reforms, civil service reforms
are essential to reshaping the behaviour of human beings in
initiating and managing all these changes sustainably
Civil service reforms aim at strengthening administrative
capacity to perform core government functions and to raise the
quality of services to the population

4. Indian Civil Service

Macaulay Committee gave India its first modern civil service in 1854

Civil services in India - three broad categories:



Central Civil Services: Members serve only the Union Government


All India Services (AIS): Members serve both Union and State Governments
State Civil Services: State Governments have their own group of services
Posts in the Union and the State Governments are hierarchically arranged into
four Groups – Group A to Group D
Key objectives of AIS :


Preserving national unity and integrity and
uniform standards of administration
Neutrality and objectivity - non-political, secular
and nonsectarian outlook

Competence, efficiency and professionalism

Integrity

Idealism

5. Civil Service Reforms in India

Since Independence, Union Government has constituted close to fifty
Commissions and Committees to look into administrative and civil service
reforms
Some of the Key Committees
Committee
Subject
Year
Goplaswami Ayyangar Committee
Reorganization of the Machinery of Government
1949
A.D.Gorwala Committee
Public Administration
1951
Paul Abbleby Committee
Indian Administration
1953&56
Ramaswami Mudaliar Committee
Public Services (Qualifications for Recruitment)
1956
V.T. Krishnamachari Committee
Indian and State Admn Services and Problems of Dist Admn
1962
K.Santhanam Committee
Prevention of Corruption
1964
First Administrative Reforms Commission
Administrative Reforms
1966-70
D.S.Kothari Committee
Recruitment Policy and Selection Methods
1976
Y K Alagh Committee
Civil Services Review
2001
Surinder Nath Committee
System of Performance Appraisal, Promotion, Empanelment
and Placement for AIS and Other Group 'A' Services
2003
P.C.Hota Committee
Civil Service Reforms
2004
Second Administrative Reforms Commission
Administrative Reforms
2005-08
Sixth Central Pay Commission
Pay revisions along with modernization of Government
2008

6. Key reform issues and their
Status in Indian Context
Recruitment
Training/Capacity Building
Performance appraisal
Efficiency
Accountability
Pay reforms
Management of civil services

7. Recruitment
First Administrative
Reforms Commission, 1966
Report on Public
Administration by A.D.
Gorwala, 1951
• Recruitment
to
all
grades (including temp.
staff) should eliminate
scope for patronage

Mudaliar Committee,
1956
• University
degree
minimum qualification
for recruitment into the
higher services
• 21-23 age limit for the
highest executive and
administrative services

Alagh Committee, 2001
• A single competitive
examination for the Class
I services
• Lateral entry to technical
posts at senior levels
• Discontinuation of Direct
recruitment to Class II
services
• Simple objective type test
for recruitment of clerical
staff
• Aptitude
test
in
preliminary stage with
emphasis on logical
reasoning,
comprehension, problem
solving and data analysis.
Aspirants to be tested
on decision making skills
Kothari Committee, 1976
• Two-stage
examination
process – a preliminary
examination followed by a
main examination


Second Administrative
Reforms Commission, 2005
• Lateral entry for senior
management posts

• Direct recruitment for
certain % of vacancies for
specialized Group ‘B’
posts to infuse fresh
thinking
• 20-25 years age limit for
all positions in Gps. B&C
requiring graduate degree

8. Achievements


Introduction of Civil Services Aptitude Test (CSAT) in in the first stage
of All India Service examination comprising of two objective tests :
General Studies (Paper I) and Aptitude (Paper II) to test candidates’
aptitude and decision making skills for civil services
Initial stages of experiments with lateral entry for select posts in senior
management for recruiting executives with management and leadership
capacities – mix of career based and position based management of civil
service


E.g.: The Secretary of Performance Management Division is an expert from
outside the Government
Attempts at right sizing of civil services through experiments with
contracting out at lower levels

9. Training/Capacity Building
Report on Public
Administration by A.D.
Gorwala, 1951


Recommended induction
training to equip a civil
servant
with
the
necessary knowledge and
skills to perform his/her
duties
followed
by
refresher trainings at
regular intervals
Appointment
of
a
Director of Training to
closely
monitor
all
aspects of training
Report
on
Indian
and
State
Administrative Services and Problems
of District Administration by V.T.
Krishnamachari, 1962




State
Civil
Service
officers
should
also
undergo a structured
training similar to that for
IAS officers
Establishment of training
institutes in States with
the help of the National
Academy
of
Administration
First Administrative
Reforms Commission
1966





Formulation
of
a
national policy on civil
services training

Creation of the Central
Training Division in the
Department
of
Personnel

Changes in the contents
of
the
foundation
courses at the National
Academy
of
Administration


10. Training/Capacity Building
Committee to Review In-Service Training
of IAS officers, (Yugandhar Committee,
2003)


Recommended three mid-career
training programmes for IAS
officers in the 12th, 20th and 28th
years of service.
Outlined skills and subject
knowledge to be acquired in each
phase and outlined topics for each
phase of training programme
Second Administrative Reforms
Commission 2005-08







Trainings undergone by officers to
be noted in ACR for deciding
subsequent assignment

Mandatory induction training at all levels
and mandatory trainings before promotion
Monitoring mechanism for implementation
of National Training Policy 1996
Making available mid-career learning
opportunities and encouraging higher
academic qualifications and publications
Strong network of training institutions at
the Union and State levels
A national institute of good governance to
identify, document, and disseminate best
practices
and
conduct
training
programmes

11. Achievements

Review of National Training Policy 1996 and formulation of NTP 2012 with
sweeping changes:



Introduction of strategic human resource management and competency-based
approach to trainings
Efforts are on to link individual competency based human resource management in
civil service to Performance Monitoring and Evaluation System (RFD) steered by
Cabinet Secretariat
DAR&PG is implementing the project - Pathways for an Inclusive Indian
Administration (PIIA) - in collaboration with UNDP with an aim to:


Support implementation of National Training Policy
Provide
technical
assistance
to
strengthen
personality/performance assessment mechanisms
competency

Support a Civil Service Leadership Development Policy and Action Plan

Initiate capacity and leadership development activities for civil
servants in select ministries/departments/agencies

Institutional strengthening and knowledge management at LBSNAA
and

12. Performance Appraisal
Nath
Committee,
First
Administrative
Reforms
Commission , 1966

The term 'confidential report' to be replaced by ‘performance record'

Performance record to include Annual account of work by civil servant


Grading to consist of three categories: (a) fit for promotion out of turn, (b) fit for
promotion, and (c) not yet fit for promotion with only 5-0 % of civil servants being
assessed "fit for promotion out of turn"
Adverse remarks not to be communicated to the civil servant


Computerized system for effective performance monitoring

Disclosure of entire performance record to the appraisee


Surinder
2003
Performance appraisal to be primarily used for overall development of an officer
and for right selection of assignments

Supplementing formal appraisal regime with an institutionalized means of
ascertaining civil servants’ reputation consistent with Indian culture and ethos
Promotion to only to those with actual performance track record and possessing
knowledge and skills required for higher responsibilities

Promotion norms to be stringent and merit based

Effective system of screening for identifying officers to be screened out

13. Performance Appraisal

Second Administrative Reforms Commission


Performance appraisal formats to be made job specific

Performance appraisal should be year round


Making appraisal more consultative and transparent
Guidelines need to be formulated for assigning numerical rating




Government should expand the scope of the present performance appraisal
system of employees to a comprehensive performance management system
PMS should be designed within the overall strategic framework appropriate
to the particular ministry/department/organization
Annual performance agreements should be signed between the
departmental minister and the Secretary of the ministry/heads of
departments, providing physical and verifiable details of the work to be done
during a financial year

14. Efficiency
Gopalaswami Ayyangar
Committee, 1949
First Administrative Reforms
Commission 1966
Appleby Report 1953



Grouping
of
the
Departments
dealing
with economic and
social services into four
bureaus for better
coordination of policy
and planning
Creation
of
an
Organization
and
Methods machinery
Establishment of an
Institute
of
Public
Administration





Suitable awards such as
rolling cup/shield to be
given as incentives for
timely
completion
of
specific projects
Cash rewards for valuable
suggestions
given
for
simplification of work that
led to economies in
expenditure and increased
efficiency
Establishing work norms
and examining staff strength
on the basis of studies by
Staff Inspection Units
Hota Committee 2004


Use of information and
communication
technologies (ICT) to
transform Government

Second Administrative
Reforms Commission , 2005

Creation
of
a
performance
management system


15. Achievements

Introduction of a Results-Based Approach in government through Results
Framework Documents (RFDs) initiative

Performance Agreements between Ministers and Secretaries of departments

Setting of annual performance targets for Departments and agencies sunder them



Review by Ad-hoc Task Force and High Power Committee at three regular intervals in
an year
Scoring and ranking of Ministries/ Departments based on performance
Introduction of eOffice under National eGovernance Plan (NeGP)


To reduce turnaround time and to meet the demands of citizens charter

To provide for effective resource management to improve the quality of administration

To reduce processing delays


To improve efficiency, consistency and effectiveness of government responses
To establish transparency and accountability
Prime Minister’s Awards for Excellence in Public Administration to
reward the outstanding and exemplary performance of civil servants.

16. Accountability
Committee on Prevention
of Corruption (Santhanam
Committee) 1964

Suggested rules
governing the conduct
of civil servants
regarding:





Filing of assets and
liabilities statement
Receipt of gifts and
raising of contributions
Dealing in stocks and
speculations
Changes in Art. 311 of
the Constitution of
India for conducting
disciplinary
proceedings against
government servants
Second Administrative
Reforms Commission 2005-08
Hota Committee
2004



Amending Prevention of
Corruption Act and Code
of Criminal Procedure to
protect honest civil
servants from malicious
prosecution and
harassment

Formulating a Code of
Ethics for civil servants

Formulating a Model Code
of Governance
benchmarking the
standards of governance
An annual State of
Governance Report
System of two intensive
reviews




After 14 years of service : To
assess strengths/weaknesses
After 20 years of service : To
assess the fitness of the
officer for continuation
Discontinuation of officers
found unfit for continuation
For new recruits
employment shall be for 20
years. Further continuance
would be subject to
outcome of the intensive
performance reviews

17. Achievements

Formulation of Model Code of Governance which
provides a State of Governance framework and toolkit

Framework piloted in three States and ready for
implementation in other States

Offers an excellent mechanism to benchmark governance
scenario in States

18. Pay reforms

Sixth Central Pay Commission, 2008:


Implementation of revised pay scales to make civil service jobs competitive
and attractive and minimise monetary temptations for corrupt practices
Introduction of Performance Related Incentive System to make employees
eligible for pecuniary remuneration over and above the pay
Level of position
Criteria for measuring performance
Senior management levels
Final outcomes related to achievement of
(Secretary, additional secretary, joint secretary organizational
goals
and
relevant
and equivalent posts)
competencies
Middle management levels
Outputs in alignment with the desired
( Group A, except senior administration)
outcomes and relevant competencies
Junior management levels
Combination
(Group B and C staff)
indicators of performance and relevant
competencies
of
input
and
output

19. Management of the Civil Services

First ARC :







Creation of a separate Department of Personnel
Department of Personnel should not administer any service cadre
Administrative control of different services should vest with the individual
ministries
Department of Personnel should be placed directly under the Prime
Minister
Creation of an advisory council on personnel administration for new
thinking on personnel administration
Fifth Central Pay Commission





Constitution of a high-powered Civil Services Board both at the Centre
and the States
Fixation of minimum tenure for each post
No premature transfer should be allowed
Findings of the Civil Services Board are to be accepted invariably

20. Achievements

Stipulation of Minimum Tenure of two years for Senior Duty Posts for
IAS cadre




Implementation of the tenure stipulation varies among the thirteen States (21
with AGMUT states ) that adopted the policy
In general, smaller States have better average tenure
Among the thirteen states, six states (AGMUT, Manipur-Tripura, Jammu &
Kashmir, Sikkim Uttarakhand, Andhra Pradesh, Nagaland, and Orissa) meet or
approximate minimum tenure requirement
Draft Public Services Bill, 2007


Provide a statutory basis for the regulation of Public Services in India as
enshrined in Article 309 of the Constitution
Would regulate the appointment and conditions of the public servants, lay
down and review the fundamental values of public services, the public
services code of ethics etc. to promote good governance and better delivery
of services to the citizens.

21. State of Civil Services Survey 2010:
Employees’ take on the services

Recruitment and Placement

67% officers agreed that the maximum age of entry should be lowered

82% officers support post-selection counseling

54% agree with idea of lateral entry

83% want senior positions to be open to all civil services



33% officers have considered resignation from civil services at some point of
their career
Better opportunities outside government cited as a major reason (45%)
Work Environment


50% officers feel they have adequate financial resources to accomplish their
work efficiently and effectively
Only 29% feel that there is pressure owing to undue outside interference

22. State of Civil Services Survey 2010 :
Employees’ take on the services

Job Satisfaction and Motivation



73% respondents reported satisfaction in their current assignment
Chance to make a useful contribution (73%) and autonomy in job (71%)
ranked as the highest motivators
Postings and Transfers: Tenure policy

64% officers satisfied with postings as well as tenures given in those postings

52% believe postings to important posts and locations not decided on merit


58% officers feel that transfer orders are not issued keeping in mind the
specific needs of the concerned
Work-Life Balance



45% officers feel they have control over their time to a great extent; 50% have
control over time to some extent
Women officers feel less in control of their time than male officers
Main factor affecting time management :Lack of adequate support staff in
terms of numbers and competence

23. State of Civil Services Survey 2010 :
Employees’ take on the services

Learning & Development


77% officers agree that civil servants need to specialize in one or more subjects
On Training




Performance appraisal and promotions



Training programs are too general; do not match specific needs of job or service
Even where training is relevant, post-training posting does not take this into account
There is no objective and rational basis for selection of officers for training
Only 43% officers agree that performance appraisal system is fair, objective and
transparent
73% feel that short-term goals are valued more in appraisals
Leadership and Management



32% officers feel that senior officers do not take time to mentor juniors
40% feel that senior officers are incapable of taking tough decisions
44% opine that seniors are impartial and fair in dealing with subordinates

24. State of Civil Services Survey 2010 :
Employees’ take on the services


Commitment and Integrity
 70% agree that majority of officers do not approach influential people or
use other means to get good postings etc
Working with External Stakeholders & Improving Service
Delivery


Civil servants have a positive image of themselves regarding their
relationship with external stakeholders
Harassment and Discrimination



36% have been a victim of harassment in their service
20% officers has faced discrimination
Overall perception about civil services


85 % have enjoyed their work in the civil service
85 % are proud of being members of the service

Feeling highest amongst AIS officers (IAS,IPS,IFS)

25. Civil service reforms (Senior Management) in
OECD countries
Contractual
appointments
Lateral
entry
Performan
ce- related
pay
Competency
based
training
Type of civil
service
Type of
reform
Belgium




Position based
Radical
Canada




Position based
Radical
Finland




Position based
Gradual
France




Career based
Gradual
Italy

Restricted


Career based
Radical
Korea

Restricted


Career based
Radical
Netherlands




Position based
Radical
New Zealand 



Position based
Gradual
United
Kingdom




Position based
Gradual
United States 



Position based
Gradual

26. Way forward

Focusing on reforms at lower levels of civil service

Building capacity of civil servants to deal with challenges of globalisation



Enhancing efficiency and accountability by learning from developing country
practices
Addressing the key concerns emerging from the State of Civil services survey for
employee satisfaction and motivation
Prioritising competency and performance at all levels and in all stages of civil
service

Strengthening and consolidating the gains from PIIA

Advocating and encouraging reforms in Central and State Civil Services

Providing strong and sustained leadership for reforms

Securing the commitment of political class and senior bureaucracy for reforms

27. Thank You