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1. Debates on Administrative Reform in India: Transfers

Author:
Akila Ranganathan
Publication Date:
03-2022
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
India has a long history of periodic transfers of senior administrators. As the First Administrative Reforms Commission, 1969 (First ARC), notes, the practice of periodic transfers was historically devised with the view of preventing officials from acquiring personal influence in a manner that could harm or diminish the influence of the ruling political powers. Officers used to be rotated from their posts every 3 to 4 years. The First ARC declared such a system of periodic transfers to be “antiquated,” stating that “it [was] no longer necessary for the Government to be suspicious of its own employees” (1966, p. 110). The commission argued that frequent transfers also interfered with development work, which required officers to be closely associated with the programmes and communities that they were serving. Further, these transfers hamper the officers’ job satisfaction and sense of achievement. Thus, the First ARC laid down that periodic transfers should be exercised only where a post carried regulatory responsibilities; in any post involving development activities and programme management, transfers should be an exception. Despite these recommendations, transfers have remained an inexorable feature of the higher civil services in India. The Second Administrative Reforms Commission, 2008 (Second ARC), notes that “frequent transfers of civil servants continue to be one of the most vexatious governance problems still facing India” (p. 182). The Commission details that, between 1986 and 2006, 48–60% of the total strength of the IAS spent less than 1 year in their respective postings. The number of IAS officers who spent more than 3 years in their respective postings is consistently less than 10% of the total strength in that period. Similarly, another study of the bureaucracy has shown that, from 1980 to 2000, the average tenure of IAS officers at their posting was only 16 months (Iyer and Mani, 2012). This working paper provides an overview of the reform discourse on the process of transfers of higher civil services officers in India. An analysis of various reform committee reports since the 1980s, shows that transfers are associated with two broad attributes of the higher civil services: the effectiveness of administration and governance, and the insulation of civil servants from political interference. In addressing the issues around transfers, recommendations of reform committees have been aimed at enhancing the former and restoring the latter. These recommendations include monetary benefits, fixation of a minimum tenure for officers, and the establishment of an independent body to oversee transfers.
Topic:
Reform, Civil Servants, Personnel, and Administration
Political Geography:
South Asia and India

2. Debates on Administrative Reform in India: Performance Management

Author:
Aditya Unnikrishnan, Sonakshi Sharma, and Karnamadakala Rahul Sharma
Publication Date:
03-2022
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
In the early nineteenth century, a civil servant employed by the English East India Company had a considerable amount of autonomy. On the one hand, their actions could be questioned at the following levels: regional, provincial, at the Presidency, in London at the Court of Directors, the Board of Control and ultimately at parliament. However, as historians have noted, “given the difficulties of communication and the sheer bulk of information and correspondence which had to pass between India and London, it often took two or three years for matters originating in a district to be commented on in London” (Cohn, 1987, p. 512). In such a scenario, monitoring and measuring the performance of civil servants was particularly challenging. Accounts of civil servants have not yet been analysed to understand on what basis they were picked for promotion by their superiors or the Governor General. This changed postindependence, when clear processes were put in place for measuring performance, and performance appraisals were at the core of this shift. Measuring, reporting, and rewarding performance appropriately are critical for motivating and developing people’s capabilities across organisations and professions. In the public sector, for example, a recent survey of 23,000 civil servants in Africa, Asia, Eastern Europe and Latin America finds that “civil servants are more satisfied, committed and, at times, motivated to serve the public, work hard and perform, where they perceive that performance shapes their pay, promotion and job stability prospects” (Sahling et al., 2018, p. 36). However, measuring and rewarding performance in the public sector can be challenging because government employment often lacks the classic drivers and incentives that foster performance in other organisations. Employees in government and public sector organisations function in the absence of clear profit motives or market competition, which other organisations use to measure and reward performance (Moriarty & Kennedy, 2002). Government employees also have to contend with multiple ‘principals’, such as politicians, bureaucrats and the citizen population, each of whom have differing objectives. Measuring performance and linking it to multiple outcomes in such contexts can be complex (Pollitt, 1986). Finally, most civil service contracts have strong protections against dismissal, which severely limits the incentive tools available to managers in the private and nonprofit sectors (Esteve and Schuster, 2019). The design or assessment of performance appraisal systems in the public sector, therefore, need to consider these boundary conditions seriously. This working paper examines reforms related to the design of performance appraisals in the Indian Civil Services. Within the Indian government and especially senior administrative roles, performance appraisals have served as the primary tool by which employee performance is assessed and rewarded. This system, established in 1985, was meant to assess and rate officers annually against ex ante targets set at the beginning of the year (Surinder Nath Committee, 2002). By linking performance to career advancement, appraisals sought to motivate and incentivise better performance by government employees. Weaknesses in this appraisal process have, however, severely limited its impact on performance, requiring the government to undertake multiple reforms over the years.
Topic:
Reform, Management, Performance Evaluation, Civil Servants, and Administration
Political Geography:
South Asia and India

3. Debates on Administrative Reform in India: Training

Author:
Sonakshi Sharma, Aditya Unnikrishnan, and Karnamadakala Rahul Sharma
Publication Date:
03-2022
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
Since Independence, the government’s approach to training the IAS has undergone a sea of change. The IAS has evolved “from being a postcolonial civil service… to one that is rooted in the empirical realities of a developing and resurgent India” (Kiran Aggarwal Committee, 2014, p.1). Training programmes for the IAS have shifted their focus from regulation to socioeconomic development in keeping with the new demands faced by governance and administration (Second Administrative Reforms Commission, 2008). In spite of these changes, there remain similarities with the colonial civil service. Like the ICS, the IAS is a high-functional generalist service tasked with handling a variety of responsibilities. Reform committees continue to express concerns that trainees do not attach adequate value to the training process (Second Administrative Reforms Commission, 2008). Training is still expected to create strong bonds between officers and establish a camaraderie. Most importantly, the central principle remains the same; a merit-based process is used to select young people with little or no experience in governance and place them in positions of great responsibility. This kind of system inevitably relies heavily on training to impart skills. Better training, both at the formative and mid-career stages, is expected to bridge the “wide chasm between public expectation and service delivery” (Kiran Aggarwal Committee, 2014, p. 3). For this reason, it is vital to examine the history of reform debates and conversations on the subject. Tracing the evolution of these reform threads will better equip us to analyse current and future reform measures by understanding which problems are being addressed and how. To this end, this working paper closely reads the following: the Administrative Reforms Commission (ARC) reports, Central Pay Commission (CPC) reports, and reports produced by reform commissions like the Alagh Committee, Kiran Aggarwal Committee, Hota Committee, Kothari Committee, Yugandhar Committee, VT Krishnamachari Committee and the Surinder Nath Committee. Apart from this, the working paper also draws on theNational Training Policy, 1996 and2012, and documents on Mission Karmayogi that reflect the government’s vision for IAS training. This paper begins with a short description of the current training format and the IAS ecosystem. This is followed by an analysis of the three streams that dominate reform thinking on IAS training: the strategy, structure and content of training; the role of and need for incentives in training programmes, and the institutional apparatus in place to operationalise training programmes.
Topic:
History, Reform, Colonialism, Training, Civil Servants, and Administration
Political Geography:
South Asia and India

4. Teaching the WPS Agenda in a Changing Security Landscape: Women, Peace and Security Curriculum Consortium

Author:
Erin Cooper
Publication Date:
01-2021
Content Type:
Policy Brief
Institution:
Our Secure Future
Abstract:
UN Security Council Resolution 1325 was unanimously supported in 2000. Twenty years in, even with such broad ranging support, progress towards the goals of Women, Peace and Security (WPS) has been slower than expected. In Canada and the United States, there is a legal mandate to incorporate Women, Peace and Security in the military and civil service sector, but implementation has been met with many challenges. Trainings and educational programs on WPS are created in silos such as academia, military, government, etc., and are often ad hoc. WPS and gender-based analysis must be mainstreamed throughout the entirety of the defense sector. Professional military education (PME) was identified as a key area to target to ensure a broader knowledge base and application of the WPS agenda. Key Findings: Introduce gender analysis/gender-based analysis plus (GBA+) early in the career of military and civil service members, treating it as a core capacity integrated throughout all levels and aspects of training and education; Start with the gender assessment of a situation to mainstream gender at the beginning of a decision-making or project design process; Integrate gender analysis/GBA+ and the WPS framework in operational military planning and training scenarios as taught by PME; Prioritize cross-pollination between PME, academic institutions, and policymakers for successful integration across the field; “real-world” applications, curriculum design, terminology/vocabulary, research, and theory should all inform each other; Ensure frequent consultation with civil society to design, monitor, and evaluate implementation of strategy and commitments; Professionalize the field with regular convenings and budget support that demonstrate institutional commitment to gender analysis/GBA+ and integration.
Topic:
Security, Armed Forces, WPS, Civil Servants, and Gender
Political Geography:
Global Focus

5. Policy Decisions and Evidence Use among Civil Servants: A Group Decision Experiment in Pakistan

Author:
Laura Metzger, Theodore Svoronos, and Adnan Qadir Khan
Publication Date:
04-2020
Content Type:
Working Paper
Institution:
The John F. Kennedy School of Government at Harvard University
Abstract:
In a lab-in-field experiment with elite civil servants in Pakistan, we investigate whether groups outperform individuals in a two-staged task which requires effective use of data and evidence. We also study how efficiently groups harness their members’ individual knowledge for problem-solving. We do not find a significant difference in individual (first stage) and group performance (second stage). Yet, groups could have significantly improved their performance during the second stage of the task, had they more efficiently collaborated to retrieve their members’ respective knowledge. Carefully interpreted in the setting of our experiment, our data suggests that diversity in individual knowledge may hamper effective use of data and evidence for decision- making in small groups of policymakers.
Topic:
Education, Public Policy, and Civil Servants
Political Geography:
Pakistan and South Asia

6. Inspector General Steve Linick, a Deep State Conspirator?

Author:
Ken Moskowitz
Publication Date:
08-2020
Content Type:
Journal Article
Journal:
American Diplomacy
Institution:
American Diplomacy
Abstract:
On June 15, State Department Inspector General Steve Linick officially departed his office, after his firing the previous month by President Donald Trump. The president said, per the clichéd phrase, that he had “lost confidence” in Linick. Linick is the fifth U.S. Government inspector general fired by Trump. The president has fired his cabinet secretaries and bureaucrats frequently. Why is this one important? Before retiring in 2015, I spent the last three years of my career as a Foreign Service Officer at the State Department as an inspector in the Office of the Inspector General (OIG). The last two years were under Steve Linick. The OIG, replicated in most U.S. departments, conducts investigations, audits, and inspections of domestic State Department offices and overseas missions and embassies to insure that they are adhering to professional standards and properly carrying out their assigned duties. They also conduct ad hoc or topical investigations and inspections when particular problems have been brought to the IG leadership via its hotline or other confidential communications.
Topic:
Diplomacy, Memoir, and Civil Servants
Political Geography:
United States of America

7. Low Profile in the Philippines

Author:
Morton III Holbrook
Publication Date:
08-2020
Content Type:
Journal Article
Journal:
American Diplomacy
Institution:
American Diplomacy
Abstract:
As Economic Counselor at the U.S. Embassy in the Philippines in 2000-2004, I worked closely with the American Chamber of Commerce in Manila. Amcham also had a branch office in Davao, the largest city in the southern island of Mindanao, staffed by Filipino nationals. In early 2001, I made my first visit to Davao to check out economic conditions there and help promote U.S. business interests. Though generally peaceful, Mindanao has a troubled history of rebellion and terrorist attacks. As a result, the Embassy’s Regional Security Office gave me a special briefing on what to expect, concluding by telling me to “keep a low profile.“ I flew from Manila to Davao airport, keeping this advice in mind. There was no jetway; our plane stopped about 100 feet from the terminal. As I walked down the steps from the plane, I saw a large banner running about half the length of the terminal building that said “American Chamber of Commerce in Davao Welcomes Morton Holbrook, Economic Counselor, American Embassy Manila.” So much for the security officer’s low profile advice, I thought!
Topic:
Foreign Policy, Diplomacy, Memoir, and Civil Servants
Political Geography:
Philippines and Asia-Pacific

8. A Hard Rain'? Reforming the Civil Service

Publication Date:
10-2020
Content Type:
Video
Institution:
Mile End Institute, Queen Mary University of London
Abstract:
In this video, the first in our season on the future of British democracy, Robert Saunders (MEI Co-Director) hosts Hugh Pemberton (The Official History of the British Civil Service), Wendy Williams (Lessons Learned Review into the Windrush Scandal) and Jill Rutter (Senior Research Fellow, The UK in a Changing Europe).
Topic:
Labor Issues, Democracy, Civil Servants, Land Reform, and Civil Services
Political Geography:
United Kingdom and Europe