1. Details of Module and its Structure

Module Detail

Subject Name Political Science

Paper Name Indian Administration

Module Name/Title Administrative Reforms in India since Independence: Committees and Commissions on Administrative Reforms

Module Id 27

Pre-requisites Knowledge about public administration in general and administrative structure of India

Objectives To study administrative reforms after independence, various committees and commissions in the implementation of these reforms

Keywords Administrative Reforms, Administration Reforms after independence, Committees, Commissions

Structure of Module / Syllabus of a module

Administrative Reforms in India since Independence: Committees and Commissions on Administrative Reforms

Introduction, Meaning of administrative Reforms, Need for administrative Reforms, Tools of administrative reforms, Types of administrative reforms, Administrative reforms in India since independence, Committees and Commissions on administrative reforms

2. Development Teams

Role Name Affiliation

National Coordinator

Subject Coordinator Prof. Ashutosh Kumar Department of Political Science, Panjab University, Chandigarh

Paper Coordinator Prof. Ramanjit Kaur Johal Department of Public Administration, Panjab University, Chandigarh

Content Writer/Author (CW)

Isha Research Scholar, Department of Public Administration, Panjab University, Chandigarh

Content Reviewer (CR) Prof. R R Jha Banaras Hindu University, Calcutta

Language Editor (LE)

Index 1. Introduction 2. Meaning of Administrative Reform 3. Need for Administrative Reforms 4. Tools of Administrative Reforms 5. Types of Administrative Reforms

4.1. Reforms imposed through political changes 4.2. Reforms introduced to remedy organizational rigidity 4.3. Reforms through the legal system 4.4. Reforms through changes in attitude

6. Administrative Reforms in India Since Independence 7. Committees and Commissions on Administrative Reforms

6.1. The Secretariat Reorganization Committee 6.2. The Economy Committee 6.3. Shri N. Gopalaswamy Ayyangar Report 6.4. A.D. Gorwala Committee 6.5. R.A. Gopalaswami Report 6.6. Paul H.Appleby Report 6.7. Committee on Plan Project 6.8. Committee on the Prevention of Corruption 6.9. Administrative Reforms Commission 6.10. Kothari Committee 6.11. National Police Commission 6.12. Ashok Mehta Committee 6.13. Economic Reforms Commission 6.14. Commission on Centre-State Relations 6.15. Satish Chandra Committee 6.16. Conference on Chief Secretaries 6.17. Chief Minister’s Conference 6.18. Second ARC

8. Conclusion 9. Assessment and Evaluation

Objectives After reading this module you will able: Ø To study administrative reforms. Ø To study administrative reforms after independence in India. Ø To study various committees and commissions.

Summary In India, the reform in administration has been a continuous process. Ancient reforms occurred with the change in administration style which shift and molded with change in dynasty, kingdom or kings which was generally singularly and personality based changes based on the subjectivity and ideas of one emperor or king. With the passage of time the administrative reforms changed from being just subjective and narrow into objective and broad. It shifted from a single person or group of person's perspective to a full flagged science. After independence need for an administration arise, which is more adaptive, capable, flexible, innovative, effective and efficient. A need was felt to shift from the colonial administration system to welfare oriented administration. To achieve these objects, various Committees and Commissions were formed. The Economic Committee, Secretariat Re-organisation Committee, N. Gopalaswamy Ayyangar Report and A.D. Gorwala Committee were among the few initial Committees. They recommended various reforms like Grouping of ministries into four bureaux: Bureau of Natural Resources and Agriculture, Bureau of Industry and Commerce, Bureau of Transport and Communications and Bureau of Labour and Social Services and introducing Organisation and Methods (O & M) procedure in various government organisations. Paul H. Applyeby submitted his reports on Indian administration and gave recommendations among which are, streamlining administration, recruitment and training, and the relationship of administration with parliament, need for delegation of power and greater coordination among the ministries. Administrative Reforms Commission in 1966 submitted 20 reports and gave 581 recommendations which led to major or minor changes in the existing administration. As Change is a continuous process, so is the administrative reform. Even after the above Committees and Commissions, Government of India appointed many new Committees and Commissions among which are Kothari Committee, National Police Commission, Economic Reform Commission, Commission on Centre-State Relationship, Satish Chandra Committee and Second Administrative Reforms Commission. After independence the administrative system in India changed a lot with the implementations of the recommendations given by these Committees and Commissions. Formation of Organisation and Method (O & M) division in 1954, Central Vigilance Commission (CVC) in 1964, Inter-State Council in 1990 are among the major changes that took place after the independence of India. So administrative reform is an important part in any administration to enhance its capabilities and become effective and efficient to the changing environment and facing new problems. Modern society cannot work with a state-quo and out-dated administration. More complex and volatile problems and situations arises everyday in the modern society and to face these problems and situation administration has to adapt and change accordingly. Reform in administration is the only key to achieve these goals.

1. Introduction

Administrative reform is one of the major concerns of the government all over the world. Administration being constantly involved in practical action situations which cannot afford to remain static. Consequently, every nation indulges in administrative reforms for the sake of sheer survival. These reforms are always based on some belief system or an ideology. In brief, for launching reforms a blueprint is needed as the basis and nations needed to know where they wish to go and which path they want to take to achieve that goal.1

In India because of colonial legacy the administration inherited the role and functions to deal only with the revenue collection and maintenance of law and order. But after independence, India shifts from a police state to a welfare state. The primary objective of welfare state is towards the social and economic development of the country. And to achieve this goal, various measures have been taken by the Indian government in the series of various committees and commissions.

2. Meaning of Administrative Reform

The word 'Reform' means to make something better, to improve something or to remove the faults of something especially by changing its behavior or structure.2 Administrative reform is generally described as the improvement of the administrative system and enhancement of its capacity. It deals with the improvement in structure, processes and behavior of the administrative system and its components rather than with the structural changes only. Administrative reforms have been defined variously. In the words of Gerald E. Caiden administrative reform is the “artificial inducement of administrative transformation against resistance.”3 It is artificial because it is not natural, accidental or automatic but deliberate and planned. It is induced as it involves persuasion, argument, and the ultimate threat of sanctions. It is an irreversible process and has moral connotations being undertaken in the belief that the end results will always be better than the status quo and so worth the effort to overcome resistance.4

Briefly, it is a series of measures of administrative improvements in all sectors of administration.5 Administrative change, administrative transformation, administration restructuring, administrative reengineering, renewal, realignment etc. are some of the other names given to this phenomenon of reforms.6

3. Need for Administrative Reforms

Administrative reforms are needed to meet the challenges of change in technology,

infrastructure, methods of work, and attitudes of succeeding generations to work, the objectives of the organisation and in the social context in which the organisation operates. To deal with continuous systematic transformation and adapt to new environment and conditions are the distinguishing characteristics of a modernised social system. Therefore with the change in environment, society has to change itself and must adopt fresh innovative culture, new knowledge and technology and crave for a new order through elimination of the old structures and system. Administrative reform is considered a part of the universality of this change needed for:

1Administrative Reform in Developing Nations edited by ALI FARAZMAND on URL http://tinhoc.dyndns.tv:8080/dspace/bitstream/TVHG_07113876976/1524/1/idoc.vn_administrative-reform-in-developing-nations.pdf 2Administrative Reforms since Independence: Major concerns; Important Committees and Commissions; Reforms in financial management and human resource development; Problems of implementation. on URL http://publicadministrationtheone.blogspot.in/2012/09/administrative-reforms-since.html 3Arne F. Leemans (1971), “Administrative Reform: An overview”, Development and Change, Volume 2, Issue 2, p.3. 4Gerald E. Caiden (1969), Administrative Reform, Chicago, p.65. 5Nalin Kant Panda (2003), Administrative Reforms and Orissa's Development, Allied Publishers, p.5.

a) Ensuring the highest standards of efficiency and integrity in the public service; b) Making public administration a fit instrument for carrying out the social and economic policies

of the Government; c) Considering the machinery of the Government and its procedures of work, the machinery for

planning at all levels- Centre-State relationship, financial and economic administration and administration at the State and district levels and agricultural administration;7

d) Maintaining the thin line of demarcation between political neutrality of administration and party politics;

e) Curbing corruption; and f) Improving the efficiency of administration internally and in relation to service delivery to the

citizens8 4. Tools of Administrative Reforms

There are few tools of administrative improvement, among which O & M (Organization and

Methods) is the most prominent one. O & M includes the study of the entire process of management, namely, planning, organizing, coordinating, motivating, directing and controlling. One of the important tasks of O & M work is to conduct reviews of an organization with a view to streamlining it. It examines the structure of the organization under review and studies the administrative and clerical procedures and methods, officer mechanization and equipment, office layout and working conditions. Appleby envisaged the role for the O & M unit which he recommended to be set up in the Government of India.

Work Study is another important tool related to the O & M. It is the application of detailed analysis of work to achieve higher output. It aims at discovering, through systematic methods and a scientific approach, simpler, easier, and more effective and economical ways of doing work.

An important aspect of O & M is work simplification. It aims at simplifying procedures and methods. Some of the important techniques for improving work methods are : (i) work distribution analysis; (ii) work content analysis a technique for analyzing flow and sequence of operations; (iii) motion analysis a technique for making maximum use of physical motion; and (iv) layout analysis- a procedure designed to lead to better utilization of space, personnel and equipment. 9

5. Types of Administrative Reforms

Various thinkers have categorized reforms in administration in various ways. According to Gerald E. Caiden, administrative reforms can be of four types. These are:

4.1. Reforms imposed through political changes

The structure and working of administration is influenced by political changes because administration is shaped by political forces and in this regard, change occurs in political scene also affects administration.

4.2 Reforms introduced to remedy organisational rigidity Restructuring, reinvention, realignment, rethinking and reengineering in bureaucratic

structures makes it flexible, resulted into the removal of rigidity in the structure of administration.

4.3 Reforms through the legal system Consultations and deliberation in several forums such as committees, commissions, press

etc. can lead to significant changes in administration. 7Essay on Need for administrative reforms in India by Swati Gupta on URL http://www.publishyourarticles.net/knowledge-hub/essay/essay-on-need-for-administrative-reforms-in-india.html 8Administrative Reforms in India by Mahendra Prasad Singh on URL http://www.socialsciences.in/article/administrative-reforms-india-0

4.4 Reforms through changes in attitude An important part of any organization is human beings and change is their attitude will

automatically helps in bringing reforms. The acceptance and appreciation of any change whether legal, structural and political is must by the people working in the organization which can lead to desired reforms.

5 Administrative Reforms in India since Independence

Administrative reforms have been going on in India since Vedic period and have been

continued in British period and after independence. So many transitions have been seen by India in respect of administrative form in all these periods. When Mauryan Empire was formed in 321 BC i.e. vedic period, it resulted in the change in administration and form of government. This process of reform in administration continued during change in empires, dynasties and kings. The process remains active even after the periods of Mauryan empire as Guptas, Mugals and British Empire bring new forms of approaches to administer the kingdom.

In British period, bureaucratic form of government was in existence. Various Committees and Acts were formed and implemented during this period which brought various reforms in the administration of India. These were- Pitt’s India Act of 1784, Charter Act 1833 and 1853, Government of India Act of 1858, Indian Councils Act of 1861, 1892 and 1909, Government of India Act 1919 and 1935, Indian Independence Act 1947, Lee Commission and Simon Commission.

In 1947, when India became independent, it faced various problems such as migration, refugees, partition, retirement of a great number of administrative personnel, problem of integration of the princely States, etc. The ideology of welfare of the people was adopted by the new government through socio-economic development, led to a greater proliferation of tasks and functions. To take up the welfare program and challenges, the current administrative machinery needed to be revamped and reinforced as it was still inherited the colonial regime procedures and rendered weak by erosive circumstances and stressful situations arises after the independence.

6 Committees and Commissions on Administrative Reforms Text for Voice Narration Chunk Text Committees and Commissions on Administrative Reforms in India since Independence

• The Secretariat Reorganization

Committee • The Economy Committee • Shri N. Gopalaswamy Ayyangar Report • A.D. Gorwala Committee • R.A. Gopalaswami Report • Paul H.Appleby Report • Committee on Plan Project • Committee on the Prevention of

Corruption • Administrative Reforms Commission • Kothari Committee • National Police Commission • Ashok Mehta Committee • Economic Reforms Commission • Commission on Centre-State Relations • Satish Chandra Committee

• Conference on Chief Secretaries • Chief Minister’s Conference • Second ARC

6.1 The Secretariat Reorganization Committee

The Secretariat Reorganization Committee was set up under the chairmanship of Girija Shankar Bajpai in 1947 by the Government of India. Personnel shortages, better utilization of the available manpower and improvements of methods of work in the Central Secretariat were the matters enquired by the committee. Measures for reorganizing the secretariat departments and procedural changes in the secretariat was recommended and suggested by this committee. The report of the First Pay Commission was also received by the Central Government in 1947 which was set up under the chairmanship of Srinivasa Vardachariar.

6.2 The Economy Committee

The Economy Committee was set up in 1948 by the Central Government, “to review the increase in the civil expenditure of the central government and to make recommendations for the promotion of true economy in the administration by the elimination of unnecessary, wasteful or extravagant expenditure”10 under the chairmanship of Kasturbhai Lalbhai, a well-known industrialist. On the basis of its recommendations, the committee was set up in various ministries to check the government expenditure, including that incurred on staff.

6.3 Shri N. Gopalaswamy Ayyangar Report

A comprehensive review of the working of the governmental machinery was conducted by a minister in the Central Government Shri N.Gopalaswamy Ayyangar. His report on ‘Reorganization of the machinery of Central Government’ in 1949 recommended regrouping of ministries, improving the competence of personnel and creation of an Organization and Methods Division in the Government. The major recommendation of this report was on the grouping of ministries into four bureaux: Bureau of Natural Resources and Agriculture, Bureau of Industry and Commerce, Bureau of Transport and Communications and Bureau of Labour and Social Services.

6.4 A.D. Gorwala Committee

In July 1951, a Committee headed by a retired ICS officer, Shri A.D. Gorwala in its Report on Public Administration in India and another on the Efficient Conduct of State Enterprises underlined the need for having a clean, efficient and impartial Administration. Introducing Organization and Method procedure in various government organizations was recommended by Gorwala. He stressed on efficiency and discipline in the civil service and understanding between the politicians and the administrators. According to him, the ministries should not interfere in the working of the Heads of Departments; Whitley Councils should be created; recruitment methods should be reformed; and the IAS training should be made more systematic.

6.5 R.A Gopalaswami Report

In 1952, the report on “The Machinery of Government: Improvement of Efficiency” was submitted by R.A. Gopalaswami. He also recommended the creation of an Organization and Methods directorate like N. Gopalaswami.

6.6 Paul H. Appleby Report

Government of India sent an invitation to Paul H. Appleby, a ford foundation consultant, in 1953 to study the Indian administration and give his recommendation and expert opinion. He

submitted his two reports: Public Administration in India: Report of survey in 1953 and Re-examination of India's Administrative System with Special Reference to Administration of Government Industrial and Commercial Enterprises in 1956. He made several recommendations for improving work procedure and for enhancing the capabilities of the administrative organization, among them two well known recommendations got implemented within a year of the submission of the report. First, the establishment of a professional training institute, namely the Indian Institute for Public Administration, for promoting research in Public Administration which was set up in New Delhi in 1954. Second, setting up of central office to provide leadership in respect of organisation, management and procedure. As a result, Organization and Methods (O & M) division was set up in 1954 in the cabinet secretariat for improving speed and quality of the government business and streamlining its procedures. This was the result of his first report. Appleby’s second report also made several proposals for streamlining administration, recruitment and training, and the relationship of administration with parliament. He advocated the need for delegation of power and greater coordination among the ministries.

6.7 Committee on Plan Project

It was constituted by the Planning Commission in 1956 with a view of evolving organisation norms, work methods, standards and techniques for achieving economy and efficiency in the implementation of the plan projects. A Management and Development Administration Division was also established as a part of this committee for promoting the use of modern tools of management.

6.8 Committee on the Prevention of Corruption

Santhanam Committee on Prevention of Corruption was set up under the chairmanship of K Santhanam in 1964 to study the causes of corruption, to review the existing set up for checking corruption and to suggest measures for improvement. The Santhanam Committee's report set out to lay down a procedure for (a) dealing with specific allegations against central and state ministers; (b) a code of conduct for central and state ministers; (c) a code of conduct for MPs and MLAs; and (d) a code of conduct for political parties.

The Santhanam Committee recommended that the President might constitute, on the advice of the prime minister, a national panel out of which a committee of three persons may be constituted to enquire into the allegations against a minister. It also recommended that the code of conduct for ministers should include the same provisions as for public servants in respect of acquisition of property, acceptance of gifts and disclosure of assets and liabilities. The Committee also recommended the setting up of Central Vigilance Commission (CVC) and adoption of a code of conduct for civil servants.

6.9 Administrative Reforms Commission

In January 1966, First Administrative Reforms Commission (ARC) was set up under the chairmanship of Morarji Desai later succeeded by K Hanumanthaiya in 1967. The entire gamut of Public Administration was covered by the ARC at the centre as well as in the states. The Commission submitted 20 reports which contain 581 recommendations led to major and minor changes in administration. It also set up 20 Study Teams, 13 Working Groups and 1 Task Force. The Reports were on the following subjects:

1. Problems of Redress of Citizens Grievances (1966) 2. Machinery of Planning (Interim) (1967) 3. Public Undertakings (1967) 4. Finance, Accounts and Audit (1968) 5. Economic Administration (1968) 6. Machinery of Government of India and its Procedures of Work (1968) 7. Life Insurance Corporation (1968) 8. Machinery for Planning (1968)

9. Central Direct Tax Administration (1969) 10. Administration of Union Territories and NEFA (1969) 11. Personnel Administration (1969) 12. Delegation of Financial and Administrative Powers (1969) 13. Centre-State Relations (1969) 14. State Administration (1969) 15. Small Scale Sector (1969) 16. Railways (1970) 17. Treasuries (1970) 18. Reserve Bank of India (1970) 19. Post and Telegraphs (1970) 20. Scientific Departments (1970)11

The ARC reports indicate the thrust of the reforms which was on the organization and functioning of ministries and departments and also on reform in the civil services. Three study teams namely, the Throat Committee, Nagarkatti Committee and the Patil Committee were assisted ARC with regard to personnel management. As a result, Department of personnel was created in August 1970 and placed in the Cabinet Secretariat which was an important recommendation of the commission.12 The major recommendations of the ARC are mentioned below:

1. It spelt out the tasks for the Department of Administrative Reforms. The Commission suggested that the Department should concentrate on:

a) Undertaking studies on administrative reforms that are of a foundational nature; b) Creating O&M expertise in the ministries and departments and providing training

to the staff in their O&M units in modem managerial techniques; and c) Providing guidance to the O&M units in implementing the improvements and

reforms. 2. Reactivating of the O&M units in different ministries and departments. 3. Setting up of a special cell in the central reforms agency to give effect to the reports of

ARC; 4. The central reforms agency should be research based in matters dealing with the methods of

work, staffing pattern and organisational structure; 5. Creation of a full-fledged Department of Personnel in the Central Government; 6. Unified grading pay structure; 7. Appointment of Lokpal at the Centre and Lok Ayuktas at the Centre and the state levels; 8. Performance budgeting; 9. Introduction of specialists into middle and senior management positions; 10. Sector corporations; and 11. Special audit boards for public undertakings.

6.10 Kothari Committee

In 1976, a Committee on Recruitment Policy and Selection Methods headed by DS Kothari was set up by the UPSC to examine and report on the system of recruitment to All India Services and Central Group A and B Services. The committee recommended for single examination for the All-India Services and Central Group A non-technical services. The single examination was conducted in two stages: first a qualifying preliminary examination (Objective Test) and second, the main examination incorporating the written and the interview tests.

6.11 National Police Commission 11Ramesh K Arora and Rajni Goyal (1997), Indian Public Administration- Institutions and Issues 2nd revised edition, Wishwa Prakashan, New Delhi, p.577. 12Sujata Singh, “Reforms in Governance: Six Decades of Administrative Reforms”, Theme Paper for the Fifty-third

National Police Commission was set up under the chairmanship of Dharam Vira in 1977 to examine the role and functions of police with special reference to control of crime and maintenance of public order, the method of magisterial supervision, the system of investigation and prosecution and maintenance of crime records. It submitted eight reports between 1979 and 1981. The most important recommendations of the NPC centered on the problem of insulating the police from illegitimate political and bureaucratic interference. The Commission also recommended for the modernization of the law enforcement machinery and the institutional arrangements for preventing misuse of power. It made over five hundred recommendations extend over a wide areas including role and function of the police, control of crime and maintenance of public order, political interference in police work, magisterial supervision, compliant against the police, investigation, prosecution and maintenance of crime records.

6.12 Ashok Mehta Committee

The Janata Government appointed a committee on Panchayati Raj institutions under the chairmanship of Ashoka Mehta in December 1977. The committee submitted its report in August 1978 and made recommendations to revive and strengthen the declining Panchayati Raj system in the country. Some of the important recommendations regarding administration made by this committee are:

1. The 3-tier system of Panchayati Raj should be replaced by the 2-tier system: Zila Parishad at the district level, and below it, the Mandal Panchayat consisting of a group of villages covering a population of 15000 to 20000.

2. A district should be the first point for decentralisation under popular supervision below the state level.

3. Zila Parishad should be the executive body and made responsible for planning at the district level.

4. The Panchayat Raj institutions should have compulsory powers of taxation to mobilise their own financial resources.

5. Development functions should be transferred to the Zila Parishad and all development staff should work under its control and supervision.

6. There should be a regular social audit by a district level agency and by a committee of legislators to check whether the funds allotted for the vulnerable social and economic groups are actually spent on them.

7. The state government should not supersede the Panchayat Raj institutions. In case of an imperative supersession, election should be held within 6 months from the date of supersession.

8. The Nyaya Panchayats should be kept as separate bodies from that of development Panchayats. They should be presided over by a qualified judge.

6.13 Economic Reforms Commission

In 1981, the Economic Reforms Commission was set up under the chairmanship of L K Jha. The main functions assigned to the commission were a study of the important area of economic administration with a view to suggesting various reforms to streamline the functioning of the system. Examination of the Rent Control Act of various stats and preparation of the model Rent Control Law were also included in the tasks assigned to the commission. The commission submitted a number of reports to the government of the India, which advocated the rationalization and modernization of economic administration system and paved the way for a new economic order.

6.14 Commission on Centre-State Relations

The Commission on Centre-State Relations was set up in 1984 headed by Justice R.S. Sarkaria to examine and review the working of the existing arrangements between the union and states with regard to powers, functions and responsibilities in all spheres. The final report

contained 247 specific recommendations in 19 chapters. Out of 247 recommendations, the central government had implemented 179 recommendations. Some of the key recommendations of this commission are as following:

1. It made the strong suggestion that Article 370 was not a transitory provision. This appears to have been made specifically in response to "one all-India political party" that demanded the deletion of Article 370 "in the interests of national integration."

2. It recommended that the residuary powers of legislation in regard to taxation matters should remain exclusively in the competence of Parliament while the residuary field other than that of taxation should be placed on the concurrent list.

3. That the enforcement of Union laws, particularly those relating to the concurrent sphere, is secured through the machinery of the states.

4. To ensure uniformity on the basic issues of national policy, with respect to the subject of a proposed legislation, consultations may be carried out with the state governments individually and collectively at the forum of the proposed Inter-Governmental Council. It was not recommended that the consultation be a constitutional obligation.

5. Ordinarily, the Union should occupy only that much field of a concurrent subject on which uniformity of policy and action is essential in the larger interest of the nation, leaving the rest and details for state action.

6. On administrative relations, Sarkaria made the following observation: "Federalism is more a functional arrangement for cooperative action, than a static institutional concept. Article 258 (power of the Union to confer powers etc on states in certain cases) provides a tool by the liberal use of which cooperative federalism can be substantially realized in the working of the system. A more generous use of this tool should be made than has hitherto been done, for progressive decentralization of powers to the governments of the states."

7. On Article 356, it was recommended that it be used very sparingly, in extreme cases, as a measure of last resort, when all other alternatives fail to prevent or rectify a breakdown of constitutional machinery in the state.

8. The commission recommended for the creation of an Inter-State Council which was implemented in 1990.

6.15 Satish Chandra Committee

To review and evaluate the recruitment procedure in higher civil services a report of the Committee on Recruitment Policy and Selection Methods for All-India and Central Services was set up by the Union Public Service Commission (UPSC) under the chairmanship of Satish Chandra in 1989. On the basis of the Committee’s recommendations, an essay paper of 200 marks has been introduced in the Civil Service (Main) Examination, and besides, the marks for interview has been increased from 250 to 300.

6.16 Conference of Chief Secretaries

Department of Administrative Reforms & Public Grievances (AR & PG) organized a Conference of Chief Secretaries of the state and union territories on 20th November 1996. The Conference focused mainly on having an accountable, open and citizen-friendly government and on improving the performance and integrity of the public services. The follow-up actions of the Conference included:

1) Setting up of an inter-ministerial Working Group on Right to Information and Transparency headed by Shri H.D. Shourie; 2) Constituting an Expert Group headed by Shri N. Vittal to look into the computerization in personnel system and public services; 3) Formulation of citizen's charters by all ministries with public interface; 4) Steps to provide timely disposal of departmental enquiries and vigilance proceedings;

5) Developing grievance redressal machinery; and 6) Initiating civil service reforms especially including the transfers and promotions in Centre and States.

6.17 Chief Minister's Conference In 1997, a Conference of Chief Ministers of different states was held on the wake to achieve

the objectives of accountability, transparency and responsiveness welt out by the conference of chief secretaries held in 1996. In this conference a national debate was generated on the above-mentioned issues to elicit opinion of the wider public, which included officials, experts, voluntary agencies, media, academia and the citizens groups. The outcome of the debate came out as in an Action Plan for effective and responsive government. The Action Plan was discussed and adopted in the Conference of Chief Ministers on 24th May 1997, to be implemented by both the Centre and the State governments. The Action Plan had three components, namely:

1) Making Government Accountable and Citizen-friendly 2) Transparency and Right to Information 3) Improving the Performance and Integrity of the Public Services

6.18 Second ARC The Second Administrative Reforms Commission was constituted by the Government of

India, Ministry of Personnel on 5 August 2005 under the chairmanship of Veerappa Moily. Its objective was to prepare a plan of action for a complete makeover of public administrative system. It submitted 16 reports. The 13th report of the second ARC focused in the organizational structure of the Government of India. It made hundreds of recommendations. Few of the important global lessons it drawn are as following:

1. The political leadership at the apex level with consensus across party lines pushed the reform agenda with commitment.

2. Focusing on the core functions of government, right-sizing the administration and outsourcing the functions was emphasized.

3. Competition in delivery of public services--- dismantling of monopolies 4. Agencification of government departments to carry out specific executive functions

within a mandate and a framework of policy and resources 5. Decentralization, delegation, and devolution 6. Public-private partnership 7. Bureaucratic deregulation 8. Strengthening of accountability mechanisms 9. Electronic or e-governance for efficiency and citizen-empowerment 10. Performance Management System (PMS) for refurbishing of personnel administration 11. Citizen's charters, effective grievance redressal mechanisms, Right to Information, etc. 12. Promotion of diffusion of good governance practices 13. Policy evaluation and regulatory impact assessment 14. Benchmarking for continuous improvement 15. Governance indices indicating what is happening to different social groups in terms of

quality of life, especially to the disadvantaged and vulnerable.

So these Committees and Commissions acted as agents of administrative reforms in India. They molded the Indian administration to act, work and adapt to new environment and conditions and to face the new challenges effectively and efficiently. Till 1947, two prominent features of Indian administration which had been steadily emphasized were: Law and Order and revenue-oriented role of the bureaucracy in colonial India and the feudalistic and patrimonial role in the princely states integrated with the Indian Union. These features got shifted after independence with the objectives to: State-led strategy in industrialization and development of civic community in rural and urban India. Public administration in India in this context tried to address, in its own way,

the objective of building up a new structure of administration with an emphasis on development administration. About 500 BDOs were appointed in each newly created lowest level of administrative unit of the State. Panchayati Raj bodies of elected representatives were also set up.

During the 60s and the 70s, Indian administration faced newer and newer challenges like drought, flood, growing mass poverty and unemployment. As a result, additional strategies of development were adopted promptly like the Green Revolution and Poverty Alleviation Programmes. During the Nehru and Indira Gandhi eras, both ‘socialistic’ development and ‘populistic’ development were emphasized.

By the end of the 1980s, both the kinds of development administration faced a deep crisis. Firstly, public sector undertakings fell prey to overstaffing and irrational use resources and thus incurred huge losses, while the private sector performed much better. Secondly, agriculture under private family cultivation showed promises results in spite of inadequate investment by the State. These two factors coupled with a severe balance of payment crisis, necessitated remedial action on the part of Indian administration. Neo-liberal economic policies with accent on bureaucratic deregulation, privatization and globalization were introduced since 1991. Direct bureaucratic control by Government Departments got replaced by facilitatory regulation by independent, often semi-judicial, regulatory authorities in various sectors of national and provincial administration, e.g. Central or State Electricity Regulatory Authorities, Telecom Regulatory Authority, Security and Exchange Board of India (SEBI), Competition Commission, Central Intelligence Regulatory Authority (CIRA), etc., all of which have been created under Parliamentary or State Legislative statutes since 1991. This changes coupled with number of new ideas like New Public Management (NPM), alternative development, sustainable development, good governance are now shifting the administrative structure and functioning in India toward result oriented, market oriented, service oriented, customer friendly, facilitator, red-tape free and more effective and efficient. 8. Conclusion

Administrative reform in India is a major concern which needed to be dealt with as soon as possible. Indian administration cannot work in current scenario with the rules and regulations formed in British period. With this regard, various Committees and Commissions were formed in India. Still frequent formation of Committees and Commissions will not solve the problem rather it’s needed to properly and effectively implement the recommendations made by the previous Committees and Commissions. Overlapping and repetition in the recommendations are visible in previous Committees and Commissions and it will continue unless the previous recommendations will be implemented. Therefore, major issues such as efficiency, effective coordination, responsiveness and public accountability etc. will be dealt with when the recommendations given by the Committees and Commissions will be implemented properly and effectively.