India’s ‘Steel Frame’ Does Need a Check

Syllabus: GS2/ Governance

In Context

• India’s governance challenges demand urgent reforms to modernise its bureaucracy, particularly the Indian Administrative Service (IAS), which has long served as the backbone of the country’s administrative machinery.

About

• Despite the IAS’s critical role in policy implementation and governance, persistent inefficiencies, politicisation, and lack of specialisation have necessitated transformative changes to unlock India’s economic potential and enhance administrative effectiveness.
• Originating from the Colonial Indian Civil Service (ICS), the IAS has been a symbol of governance post-Independence, earning the title of India’s “steel frame.”
• However, this legacy is marred by challenges that have eroded its effectiveness in a rapidly modernising economy.

Key Challenges

• Politicisation: Frequent transfers, promotions, and suspensions based on political loyalties undermine morale and professionalism.
• Lack of Specialisation: Generalist training and frequent rotations across departments prevent IAS officers from developing domain expertise, crucial for handling complex policy issues.
• Corruption and Inefficiency: India’s moderate ranking on the World Bank’s government effectiveness index reflects systemic inefficiencies in policy implementation and administrative independence.
• Centralised Governance: The increasing concentration of power in the Prime Minister’s Office (PMO) has sidelined bureaucratic insights, reducing their role in effective policymaking.

Previous Reform Efforts

• Administrative Reforms Commissions (ARCs): The First ARC (1966) and Second ARC (2005) made critical recommendations, including:
  • Lowering the entry age for civil services.
  • Introducing performance-based promotions.
  • Allowing lateral entry to bring in domain expertise.
  • Safeguarding against arbitrary transfers.
• However, implementation has been inconsistent, often hindered by political resistance and bureaucratic inertia.
• Supreme Court Directive (2013): Mandated the establishment of civil services boards to oversee bureaucratic transfers and postings. Despite this, enforcement has been weak.
• Lateral Entry: Recognising the limitations of an IAS-centric model, the government introduced lateral recruitment into senior bureaucratic roles, targeting domain experts from the private sector and academia.
  • By 2023, only 33% of Joint Secretaries at the Centre were from the IAS, compared to near-total dominance a decade ago.
  • Positions such as Joint Secretaries and Directors across ministries now welcome private sector professionals, adding fresh perspectives and specialised knowledge. Resistance from within the IAS, citing morale and promotion concerns.
  • Opposition parties have raised concerns over the lack of reservation provisions for marginalised groups in lateral entry appointments.
• Accountability Measures: Efforts to curb politicised transfers and enhance transparency.
  • Push for data-driven performance metrics to evaluate bureaucratic effectiveness.

Lessons from Global Models: The U.S. Department of Government Efficiency (DOGE)

• The U.S. Department of Government Efficiency (DOGE) provides a compelling model for India’s administrative reforms. DOGE focuses on:
  • Streamlining operations: Eliminating redundancies and inefficiencies.
  • Accountability: Introducing performance metrics and data-driven decision-making.
  • Expert Leadership: Leveraging expertise from leaders across industries.
• India could adopt a similar advisory framework:
  • A time-bound commission to identify inefficiencies and recommend reforms.
  • Metrics to assess bureaucratic performance and streamline decision-making.
  • An expiration date for the commission to ensure actionable and focused outcomes.

Challenges to Reform

• Resistance Within the IAS: Deeply institutionalised seniority-based progression and generalist approaches.
  • Fear of diminished influence due to lateral entries.
• Political Interference: Politically motivated transfers and promotions undermine reform efforts.
  • Legislative proposals like the Civil Services Standards, Performance, and Accountability Bill (2010) have stalled due to lack of political consensus.
• Implementation Gaps: Many reform recommendations, including those from ARCs, remain unimplemented due to bureaucratic inertia and lack of enforcement mechanisms.

Way Forward

• Reforming India’s bureaucracy requires a multifaceted approach to address structural, operational, and cultural challenges:
• Merit-Based Recruitment and Promotions: Focus on domain expertise rather than generalist skills.
  • Tie promotions to measurable performance metrics.
• Specialised Training: Equip officers with sector-specific knowledge to handle complex governance issues effectively.
• Lateral Entry Expansion: Institutionalise the process, ensuring transparency and inclusivity, including reservation provisions for underrepresented groups.
• Safeguards Against Politicisation: Strengthen civil services boards to protect officers from arbitrary transfers and ensure tenure stability.
• Data-Driven Governance: Develop a robust data infrastructure to track bureaucratic performance and inform decisions on placements and promotions.
• Streamlined Structure: Rationalise overlapping roles and responsibilities across ministries and departments to reduce redundancy.

Source: TH