India’s ‘Steel Frame’ Needs a Check (GS Paper 1, Society)
Context
- India’s bureaucratic system, particularly the Indian Administrative Service (IAS), remains central to the country’s governance framework.
- However, persistent challenges within the IAS and the broader bureaucracy necessitate urgent reforms to modernise the system and unlock the nation’s economic potential.
- India’s economic strides in growth are often hindered by inefficiencies within its administrative structure, marked by income inequality, underinvestment in critical sectors, and bureaucratic inefficiency.
Introduction
- The IAS, often described as the “steel frame” of India, has been instrumental in shaping governance since independence.
- While it has contributed significantly to the country’s administrative machinery, several long-standing issues, including political interference, lack of specialisation, and systemic inefficiencies, have eroded its effectiveness.
- In this context, there is a growing need for administrative reforms to modernise the bureaucracy and enhance governance.
The Legacy and Challenges of the IAS
The IAS traces its roots to the colonial Indian Civil Service (ICS), and after independence, it became the cornerstone of India’s civil administration. However, the IAS faces numerous challenges:
- Political Interference: A significant issue is the politicisation of the IAS, where promotions, transfers, and suspensions are often influenced by political loyalty rather than merit. This undermines the professionalism and morale of the service.
- Lack of Specialisation: IAS officers are frequently rotated across different departments, which prevents them from gaining deep expertise in any specific area. This limits their ability to act as effective policy specialists in an increasingly complex governance environment.
- Corruption and Inefficiency: Corruption and inefficiency plague the bureaucracy, with India ranking only moderately in measures of government effectiveness, reflecting poor policy implementation and administrative independence. These systemic inefficiencies hamper economic growth and governance objectives.
Executive-Led Governance and Its Challenges
The centralised nature of governance in India has had both positive and negative outcomes:
- Positive Outcomes: Centralised decision-making has facilitated rapid economic reforms and infrastructure development.
- Negative Outcomes: However, it has also led to bottlenecks in policy implementation and a lack of accountability, as centralised power often sidelines the insights and expertise of bureaucrats.
Reforms Under Prime Minister Modi’s Leadership
Under Prime Minister Narendra Modi, several reforms have been introduced to address bureaucratic inefficiency:
- Curbing Politicised Transfers: Efforts have been made to reduce the politicisation of transfers and appointments within the IAS.
- Enhancing Bureaucratic Accountability: Measures have been introduced to improve accountability within the bureaucracy, though critics argue that centralising power in the Prime Minister’s Office (PMO) risks undermining the autonomy of senior bureaucrats.
Need for Administrative Reforms
The need for administrative reforms is not a new issue; over the years, several commissions have highlighted the need for changes:
- First Administrative Reforms Commission (1966) and subsequent commissions have stressed the need for specialisation, accountability, and merit-based promotions within the bureaucracy.
The Recommendations of the Second ARC (2005)
The Second Administrative Reforms Commission (2005) proposed several key reforms, including:
- Lowering the Age of Entry into Civil Services: This would help inject younger blood into the administrative system.
- Performance-Based Promotions: The introduction of performance-based promotions would ensure a meritocratic approach.
- Lateral Entry: Encouraging lateral entry into the bureaucracy to bring in domain expertise and fresh perspectives.
- Safeguards Against Arbitrary Transfers: Protecting bureaucrats from politically motivated transfers would enhance stability and professionalism.
However, these recommendations have faced implementation challenges due to bureaucratic inertia and political resistance.
The Government’s Push for Reform
Recognising the limitations of the IAS-dominated administrative model, the Modi government has pushed for reforms to diversify governance:
- Lateral Entry: This initiative aims to bring domain experts from the private sector and other fields into key policymaking roles, infusing fresh perspectives into governance.
- Domain Expertise: By introducing lateral entry, the government seeks to strengthen policymaking with specialised knowledge.
Lateral Entry: Progress and Impact
- Since 2018, the Indian government has made efforts to recruit officers with specialised knowledge through lateral entry.
- By 2023, 57 officers had been appointed through this initiative, with many coming from the private sector.
- The Union Public Service Commission (UPSC) advertised 45 posts for lateral entry, including high-level positions such as Joint Secretaries and Directors.
- As a result, the share of IAS officers in these roles has decreased, with only 33% of Joint Secretaries now from the IAS, compared to almost complete IAS dominance a decade ago.
Resistance to Lateral Entry
Despite the government’s efforts, the lateral entry initiative has faced significant resistance:
- Civil Servants’ Concerns: Critics, particularly retired civil servants, argue that lateral entry undermines the morale of incumbent officers and distorts promotion incentives.
- Opposition from Political Parties: Opposition parties have raised concerns about the lack of reservation provisions for marginalised groups in lateral entry appointments.
- Political Pressure: The Modi government has reportedly faced political pressure to reverse or delay lateral entry appointments, highlighting the contentious nature of this reform.
The U.S. Department of Government Efficiency (DOGE) Model
- The U.S. Department of Government Efficiency (DOGE), proposed by President-elect Donald Trump, offers an intriguing model for reforming India’s administrative structure.
- DOGE focuses on streamlining government operations, eliminating redundant agencies, and introducing accountability mechanisms to reduce inefficiency.
- The Indian government could adapt a similar advisory body to identify inefficiencies, promote data-driven decision-making, and assess bureaucratic performance.
Possible Adaptation for India
India could consider establishing a similar advisory body to streamline its bureaucracy. This could involve:
- Data-Driven Decision-Making: Developing metrics to assess bureaucratic performance and inform decisions regarding placements and promotions.
- Time-Bound Commission: Creating a commission with a fixed tenure to ensure focused and actionable reforms.
Challenges to Reform
Reforming India’s bureaucracy is a complex challenge due to several factors:
- Entrenched Interests: The IAS remains deeply entrenched in India’s governance system, and reforms such as lateral entry, performance-based promotions, and specialised training face resistance from within the service.
- Political Interference: Political factors complicate the reform process, making it difficult to enact significant changes.
- Inaction on Past Proposals: Proposals like the Civil Services Standards, Performance, and Accountability Bill (2010) have languished in legislative limbo, while judicial interventions, such as the Supreme Court’s directive to establish civil services boards in 2013, have had limited impact.
Conclusion
- India’s bureaucratic system, while deeply entrenched in the governance framework, needs comprehensive reform to address its inefficiencies.
- Recruitment must prioritise merit and domain expertise, and promotions should be based on performance rather than seniority.
- Protecting bureaucrats from politically motivated transfers and fostering specialisation in policymaking roles would improve accountability and efficiency.
- Moreover, the government should invest in a robust data infrastructure to track bureaucratic performance, enabling informed decisions on placements, promotions, and policy implementation.
- A multifaceted approach to administrative reform is essential for unlocking India’s full economic potential and ensuring effective governance that truly serves its people.
