1.

Details of Module and its Structure

Module Detail

Subject Name Political Science

Paper Name Public Policy, Governance and Indian Administration

Module Name/Title History of Civil Services in India

Pre-requisites Administration, Public Administration, Civil Service

Objectives To study the history of Civil Services in India

Keywords History, Evolution, Civil service, Lee Commission, GOI Act of

1919 and 1935, First Administrative Reforms Commission

Structure of Module / Syllabus of a module

History of Indian Introduction, Meaning of Civil Servants, Civil Servants during

Administration British Period, Civil Services after Independence
2. Development Teams

Role Name Affiliation

Principal Investigator Prof. Ashutosh Kumar Department of Political

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

Centre for Law and

Prof. Amit Prakash Governance, SSS,
Jawahar Lal Nehru
University, New Delhi.
Content Writer/Author (CW) Amanjot Kaur ICSSR Research
Scholar, Department of
Public Administration,
Panjab University,
Chandigarh
Content Reviewer (CR) Prof. Ramanjit Kaur Johal Professor, Department
of Public
Administration, Panjab
University, Chandigarh
Language Editor (LE)

2
Table of Contents

1. Introduction
2. Meaning of Civil Servants
3. Civil Services during British Period
3.1 Civil services under the East India
3.2 Charter Act of 1853
3.3 Macaulay Committee Report
3.4 Imperial Civil Service
3.5 Aitchison Commission
3.6 Public Service Commission
3.7 Government of India Act, 1919
3.8 Lee Commission
3.9 Government of India Act, 1935
4. Civil Services after Independence
4.1 Recruitment
4.2 Training
4.3 Domain Expertise
4.4 Grading Reforms
4.5 Efficiency
4.6 Accountability
4.7 Performance Appraisal
4.8 Management of Civil Servants
5. Conclusion

3
Objectives of the Module

After reading this module you will able:

i. To understand structure of civil services during British period in India.

ii. To study the evolution of civil services after independence in India.
iii. To know about the committees and commissions which had significantly contributed to
reform the civil services?

Summary

Civil services are an integral part of the structure of governance in our society. Civil
servants constitute a professional body of officials – permanent, paid and skilled. This body of
officials performs varied functions as per the nature of ruling government of the country. Actually
the narrow objectives of Weberian bureaucracy are being replaced by democratic participatory
models of public service. In this model, efficiency has given way to effectiveness or long term
result orientation for good governance.Civil Service was the main pillar of British imperialism in
India for more than 150 years. It greatly helped the British imperialists to preserve law and order in
the domain especially in the period when the nationalist movement and militancy became the rule
of the day. It also created a high valued and privileged class in the society.The special
characteristics of the Civil Service during British period were that firstly, it was a close well-knit
administrative service; secondly, it was designed to maintain stability and continuity of the British
power.The Constituent Assembly, after independence, felt the need for giving a secure and self-
governing status to civil services and self-sufficient status to Public Service Commission’s both at
federal and provincial levels for ensuring balanced recruitment to civil services as also for
protection of service interests. With the promulgation of the new Constitution for independent India
on 26th January, 1950, the Federal Public Service Commission was accorded a constitutional status
as an autonomous entity and given the title – Union Public Service Commission1.

The important committees on civil service reforms included the Secretariat re-organization
committee under the chairmanship of sir Girijashankar Vajpayee (1947); the committee on
Reorganization of government of India headed by Shri Gopalaswami Aiyangar, the Report on
Public Administration, the Report on Public Administration (1951) by Shri A D Gorwala and the
reports of 1953 and 1956 by Paul Appleby. Apart from these, Central Pay Commissions have also
made useful recommendations for improvement in the functioning and structure of civil service.

1
http://upsc.gov.in/general/historic.htm accessed on 16th March 2014.

4
 1. Introduction

The standard and efficiency of administration depend ultimately on the ability, training and integrity
of the members of the civil services in any country. The aim of the Indian constitution is the
establishment of a Welfare State;therefore it is evident that the functions of such State will embrace
a wide range of activities. The successful operation of these activities depends upon the availability
of men of vision, ability, honesty and loyalty to the administrative machinery of the state.The
concern of the framers of the Constitution to ensure welfare state; is clear from the provisions
dealing with the constitution and functions of the public service commissions. According to Herman
Finer, “The function of the civil service in the modern state is not merely the improvement of
government; without it, indeed, government itself would be impossible”2.

The civil service has evolved over time; so have notions of its role and responsibilities.
Independent India inherited from the British period aninclusive civil service structure and
established practices. Its utility for ensuring national unity and good administration in the country
was recognized by Sardar Patel, acknowledged by the constituent assembly and incorporated in the
constitution. It is relevant today to recall the Sardar’s perception and his vision:

“I need hardly emphasise that an efficient, disciplined and contented service, assured of its
prospects as a result of diligent and honest work, is sine qua non of sound administration under a
democratic regime even more than under an authoritarian rule. The service must be above party and
we should ensure that political considerations either in its recruitment or in its discipline and control
are reduced to the minimum, if not eliminated altogether…Constitutional guarantees and safeguards
are the best medium of providing for these services and are likely to prove more lasting”3.

2. Meaning of Civil Services

Civil services are generally defined to mean the ‘public services’ constituted by the government to
translate all its plans and programmes into implementable action. Civil service is a body of
professional, full time officials employed to handle the civil affairs of a state in a non-political
capacity.

Herbert Finer, “The civil service is a professional body of officials, permanent, paid and skilled”.

In the words of E. N. Gladden, “Civil Services is the name of an important government institution
comprising the staff of central administration of the State. It is more for stands for a spirit essential
to the success of modern democracy, an ideal of vocation in public officials who devote theirservice
to the community”.

2
Ansari, Mohammad Hamid. The Civil Service in An era of Coalitions, in the book “Recent perspective in Public
Administration” edited by Arora, Ramesh K. Aalekh Publishers, Jaipur, 2011, p. 43.
3
Ibid.

5
Voice for Narration Chunk Test
Characteristics of Civil Service  Permanent
 Professional
 Hierarchically Organized
 Public Accountability
 Anonymity and Impartiality
 Neutrality
 Equality of Treatment

3. Civil Services during British Period

A remarkable feature of the administrative system in federally governed India is the deliberate
retention of all India services, the personnel of which are interchangeable between the central and
state governments4.India has the tradition of the civil service since ancient times. Kautilya in his
book ‘Arthshastra’ has mentioned three categories of government employees: i) Officer (Yukta), ii)
Clerk (Upayakta), iii) Servant (Tat-purusham). ‘Mansabdari’ system was developed during the
Mughal administration which combined civil and military bureaucracy5.

The different phases of evolution of civil service during the reign of East India Company and later
on- under the Crown are discussed below:

3.1 Civil Service under the East India

The development of the civil service in India dates back to the first quarter of the 17th century.
Some British merchants, under the banner of the East India Company, came to India for the purpose
of trade. The earliest organized civil service in British India was the ‘Covenanted Civil Service’
which constituted a group of men who carried on the trade of the company and were known as
‘Civil Servants’. These were distinct from the naval and military officers of the company. The
servants of the company were commercial agents, known as ‘Factors’ and were incharge of the
trading stations which were established along with the sea coasts. These ‘Factors’ were neither
statesmen nor administrators, but those who had some knowledge of Eastern trade.

A regular gradation of the company posts was established in 1675. Therefore a young man
was recruited first as an ‘Apprentice’ to later become a ‘Writer’. After serving in this capacity for
five years, could be promoted as ‘Junior Merchants’ who usually after a period of three years of
service could become ‘Senior Merchants’. The business transacted by these officials was
commercial in nature.Initially, the power of appointment to these posts vested with the Court of
Committees but, in 1714, it was laid down that appointments in the company were to be made
through the recommendatory nomination of the members of the ‘Court of Directors’. Every Writer
had to enter into a covenant or indenture with the company. It was a long document which

4
Maheshwari, S. Indian Administration, Orient Longman Limited, New Delhi, 1994, p. 231.
5
Ibid.

6
contained many conditions including faithful, honest, diligent and careful service and bound the
Writers to observe, keep and fulfill each and every order of the company and the ‘Court of
Directors’. Hence they were known as ‘Covenanted Civil Servants’. The service consisted of only
Englishmen. The other category was the ‘Uncovenanted Civil Service’ which included Indians,
Parsis, Englishmen and the Portuguese. In the middle of 19th century, the company had acquired
large territories in India, the administration of which required men of ability and character. The
system of nomination made room for nepotism and corruption. The need for having competent
persons was fully realized in 1853 and system of nomination was replaced by the principle of open
competition.

3.2 Charter Act of 1853

Provision for open competition was first made by the Charter Act of 1853. The old powers, rights
and privileges of the Court of Directors to nominate candidates for admission to Haileybury were to
come to a close in regard to all vacancies which occurred on or after 30th April, 1854. The act
provided for appointment of members of the covenanted civil services on the basis of suitable
competitive examination which was to be held in London and thus get rid of the patronage system.

3.3 Macaulay Committee Report

The President of Board of Control, Sir Charles Wood appointed a five member committee headed
by Lord Macaulay to advice on the measures to be adopted to give effect to the Act of 1853. The
committee(popularly known as Committee on Indian Civil Service) laid down certain age limits for
admission to the college of Haileybury. The minimum age limit raised to eighteen and maximum to
twenty-five. It was in favor of civil servants entering the service at a young age but also specified
that they should have received the best, the most liberal, finished education that the country could
afford. It laid emphasis on general education, strengthening of understanding, which precedes
special education or training in any skill. The committee recommended the selection of candidates
on the results of a competitive examination. It laid stress on need for completion of a period of
probation before the final appointment of the candidates. The recommendations were accepted by
the Board of Control and regulations were framed governing the examination and selection of
candidates to the civil service. The first examination under the Board of Control was held in 1855 at
London, on the basis of recommendations6.

3.4 Imperial Civil Service (1858-1917)

Indian administration came direct under the Crown after the termination of government of East
India Company in 1858. All the powers vested with the Crown were exercised by the Secretary of
State for India, a Minister of cabinet rank. Usually, he was assisted by an Under Secretary and a
Council of fifteen members. The powers and functions of Board of Control and Court of Directors
were transferred to the Secretary of State in Council. The responsibility for the conduct of
competitive examinations was transferred to the Civil Service Commission (setup in 1855) in
London. The system of reserving certain posts for the members of Covenanted Services was
introduced; and the same was continued up to independence.

6
http://www.importantindia.com/1730/history-of-indian-civil-service-during-the-british-period/ accessed on 16th March
2014.

7
 The Indian Civil Service Act, 1861 reserved certain principle posts to be filled from the
Covenanted Service. It also laid down that any person, Indian or European, could be appointed to
any of the offices if he had resided at least seven years in India. A person appointed under this
category had to pass an examination in the dialect language of the district in which he was
employed.All appointments should be approved within twelve months otherwise were declared
void. Indian people were not satisfied with the provisions of this Act. There was growing demand
for Indianisation of services by securing employment in the Covenanted Civil Service. British
government was failed to fulfill the assurance given in the Government of India Act, 1833 and
Queen’s proclamation of 1858. The Act provided that no Indian shall by reason of his religion,
place of birth, descent, colour, or any of them be disabled from holding, any place, or employment
under the government of the East India Company. The selection based on patronage prevented
Indians from getting into the service.Although the open competition was introduced under the
Charter Act of 1853, and the provisions such as fulfillment of fitness criteria for competition,
holding of examination in London, but did not let Indians compete7.

The British Parliament passed an Act in 1870 and authorizethe appointment of any Indian
(of proved merit and ability) to any office or the civil service without reference to the Act of 1861
which reserved specific appointments to the covenantedservice.It did not make the desired progress,
as the opinion was divided on throwing open all civil appointments, or establishing a proportion
between Indians and Europeans in the tenure of higher offices. New rules were framed in 1879,
which established the Statutory Civil Service. It provided that of fifth of covenanted civil service
posts was to be filled by the natives. Only Indians were eligible to be appointed for local
government subject to approval of Government of India and the Secretary of State. Unfortunately,
the statutory system also failed to achieve the purpose for which it was created. Indian National
Congress passed its first resolution in 1885 to put pressure on government for Indianisation of
services.

3.5 Aitchison Commission

Aitchison commission was appointed in 1886, headed by Sir Charles Aitchison. It prepared scheme
of admission of Indians to every branch of public services and to look into the employment in
covenanted and uncovenanted services.Further, commission rejected the idea of altering the system
of recruitment to the covenanted civil service. It also advised the abolition of the statutory civil
service and advocated a three-fold classification of civil services into Imperial, Provisional and
Subordinate.The provincial service was an exclusive sphere of extended Indian employment in the
public service.

The commission proposed a reduction of the list of the scheduled posts reserved by the Act
of 1861 for the members of the covenanted civil services and the transfer of a certain number of
posts to the provincial civil service.As recommended by commission, the statutory civil servicewas
abolished. The designation covenanted civil services was also done away with and the civil services
of the country were divided into three grades- the imperial, provisional and subordinate civil
service. The superior posts were included in the Imperial Civil Service and recruitment to it was to

7
http://www.importantindia.com/1730/history-of-indian-civil-service-during-the-british-period/ accessed on 16th March
2014.

8
be made by the Secretary for State in council. The provincial civil service was designated after the
name of particular province to which it belonged.

Covenanted Civil Services

replaced by

Imperial Civil Service Provincial Civil Service Subordinate Civil Service

The lower level grades of the uncovenanted civil service were constituted into a subordinate
service. As per the recommdation, the covenanted civil service was named the Indian civil
service,and the uncovenanted civil service was known as the provincial civil service.

The practice of holding examination for entry to the civil service in England continued as
the Commission strongly advocated it. It was of the view that since the civil service represented the
only permanent English officials’ element in India; examinations in England become essential to
maintain the English principles and methods of the government8.

3.6 Public Service Commission 1912

The demand for Indianisation of public services was however becomeconstant and there was
mounting pressure for development of public service and holding instantaneous examinations in
England and India. Once again, the question of Indianisation was examined by a Public Service
Commission in 1912 under the chairmanship of Lord Islington (Governor of New Zealand). It
observed that Indians constituted only 5% of the civil service. The commission supported two
separate channels of access to the Indian Civil Service itself, one in England (open to all alike) and
one in India (open to statutory natives of India only). It proposed categorization of the services
under the Government of India into Class I and II. There was no radical change in the structure of
the organization of the civil service as envisaged by the Commission9.

3.7 Government of India Act 1919

The Act recommended a threefold classification of services into all India, provincial and
subordinate services. All the Imperial services functioning in the province whether in the reserved
or transferred departments were designated as the ‘All India Services’. Special safeguards were
guaranteed to the members of All India Services in regard to dismissal, salaries, pensions and other
rights. In 1922, the first competitive examination was held under the supervision of the Civil service

8
http://www.importantindia.com/1730/history-of-indian-civil-service-during-the-british-period/ accessed on 16th March
2014.
9
Maheshwari, S. Indian Administration, Orient Longman Limited, New Delhi, 1994.

9
Commission. The Indian candidates selected on the basis of results were put on probation for two
years at an English University10.

3.8 Lee Commission

Royal Commission on Superior Civil Service was appointed under the chairmanship of Lord Lee in
1923. The Commission divided the services in three main classes:

i. All India Services

ii. Central Services
iii. Provincial Services

The Central Services were concerned with the Indian States and foreign affairs, with
administration of the state railways, posts and telegraphs, customs, audit and accounts, scientific
and technical departments. The Commission recommended that Secretary of State should retain the
powers of appointment and control of the All India Services (mainly Indian Civil, Police, Medical,
Forest and engineer Services) operating in reserve fields of administration. The most important
recommendation was in field of transferred phase i.e. indian agricultural, education, veterinary
services, whose further recruitment and appointments were to be made by the concerned local
governments. Thus those services were to be provincialised. The existing members of the All India
Services were to retain all rights of officers of these services, but the provincial governments were
given powers of appointment only on occurrence of fresh vacancies.

The Commission limited the powers of appointment of Secretary of State to the political
department, imperial customs department and the ecclesiastical department, in regard to the central
services. The appointments to all other central services were made by the Government of India.
Twenty percent of superior posts were to be filled by promotion from provincial services as
recommended by the commission. Moreover the commission emphasized the need for
establishment of Statutory Public Service Commission to maintain superior standards of
recruitment.Therefore, this Public Service Commission had to perform the functions of recruitment
of personnel for the all India, central and provincial services and also other quasi-judicial functions
connected with discipline control and protection of the services. It also made detailed
recommendations about the various conditions of services like pay, pension, leave, passage, housing
etc.

In the matter of Indianisation of services, it was suggested that out of every hundred post of
services, forty should be filled by direct recruitment of Europeans, Forty by the direct recruitment
of Indians and twenty by promotion from the provincial services so that in fifteen years that is by
1939, half would be held by Indians and half by Europeans.

The recommendations of the Commission were accepted by the British government with the
discontinuity of the All India services in the transferred departments. The only All India services
which survived were the Indian civil service, indian police, indian service of engineers (Irrigation
branch), indian medical services (civil branch) and indian forest services (except in the provinces of
Burma and Bombay). The Public Service Commission in India was setup in 1926 and the
10
Ibid.

10
examination for recruitment to Civil Services in 1927 was supervised by it on behalf of the Civil
Service Commission in England11.

3.9 The Government of IndiaAct, 1935

The Act introduced provincial autonomy under responsible Indian minister, the rights and privileges
of the members of the civil services were carefully protected. The protection of rights and privileges
of civil service was the responsibility of both the Governors and the Governor General. It was
provided that a civil servant was not to be dismissed from service by an authority below the rank of
the officers who had appointed him. The salaries, pensions, emoluments were not subject to the vote
of the legislature. The Act also provided for the setting up a Public ServiceCommission for the
federation and a Public Service Commission for each of the provinces, though two or more
provinces could agree to have a Joint Public ServiceCommission.

As a result of introduction of provincial autonomy under the Act, only three services
i.e.Indian Civil Service, Indian Police Service and Indian Medical service were to be continued as
All India Service. Recruitment of all India other service i.e. Indian agricultural, veterinary services,
educational services, forest services, engineers services were provincialised. The recruitment and
control of the serving members of these services coming under the Provincial government
continued as existing terms and conditions of service which were fully protected.

The Act of 1935 provided for a Federal Public Service Commission and a Provincial Public
Service Commission for each province so that the Public Service may be completely free from
political influence and the merit rule may be put in operation which is so necessary for the
economical and efficient conduct of public affairs. Two or more provinces could agree to have a
joint public service commission. The chairman and members of these commissions were appointed
by the Governor-General or the Governor, as the case may be, in his discretion, and he also
determined the number of members, their term of office and conditions of service. At least one half
of the members were required to be persons who had held office for at least ten years under the
Crown in India12.

4. Indian Civil Service after Independence

History has the strange habit of often thrusting on people and institutions role of which they were at
one time outspoken critics13.The Indian Political leaders chose to retain elements of the British
structure of a unified administrative system such as an open entry system based on academic
achievements, elaborate training arrangements, permanency of tenure, important posts at Union,
State and Districts levels reserved for the Civil Service, a regular graduated scale of pay with
pension and other benefits and a system of promotions and transfers based predominantly on
seniority, while designing a successor Civil Service. The civil services in India can be grouped into
three broad categories. Services whose members serve both the Union and the State Governments
are termed as All India Services. Services whose members serve only the Union Government are
termed Central Civil Service. Apart from theses, the State Governments have their own group of

11
Maheshwari, S. Indian Administration, Orient Longman Limited, New Delhi, 1994.
12
Maheshwari, S.op.cit.
13
Maheshwari, Shriram. op.cit.p. 236.

11
services – State Civil Services. The posts in the union and the State Governments are hierarchically
arranged into four Groups – Group A to Group D14.

The drafting committee of the Indian Constituent Assembly did not originally provide a
constitutional base to the All India Services. Yet the Constitution which finally emerged from the
Constituent Assembly not only embodied reference to it, but also included provision for the creation
of new All India Services.Vallabhbhai Patel, who was by then the Home Minister, was the principal
advocate of this institution. The ‘Steel frame of the whole structure’, a sobriquet for the All India
Service, endeared itself to the ‘Iron Man of India’15.

After independence, the important committees on Civil Service Reforms included the Secretariat re-
organization committee under the chairmanship of sir Girijashankar Vajpayee (1947); the
committee on Reorganization of Government of India headed by Shri Gopalaswami Aiyangar, the
Report on Public Administration, the Report on Public Administration (1951) by Shri A D Gorwala
and the reports of 1953 and 1956 by Paul Appleby. Apart from these, Central Pay Commissions
have also made useful recommendations.

Article 312 of the Constitution empowers Parliament to create the All India Services (AIS) on the
fulfillment of certain conditions. The Indian Administrative and Police Services are deemed to be
services created by Parliament under this Article. Section 3 of the AIS Act, 1951 and the rules and
regulations made by the government prescribe the selection process for the IAS. Similar provisions
exist for the IPS and the IFS. The key objectives of Government in creating the IAS are:

i. Preserving national unity and integrity and uniform standards of administration;

ii. Neutrality and objectivity – non-political, secular and non-sectarian outlook;
iii. Competence, efficiency and professionalism – an entry by attracting the best and
brightest throughout the career;
iv. Integrity and
v. Idealism16.

Since Independence there have been about fifty Commissions and Committees at the union
Government level to look into what can be broadly characterized as administrative reforms.

The First Administrative Reforms Commission

The First Administrative Reforms Commission was setup in January, 1966. It was asked to in
particular, to consider all aspects relating to the following subjects:the machinery of the government
of India and its procedures of work; the machinery for planning at all levels;centre-state
relationship; financial administration; personnel administration; economic administration;
administration at the state level; district administration; agricultural administration; and problems of
redressal of citizens grievances. The Commission submitted 20 reports in all.

14
Administrative Reforms Commission 10th Report, 2nd chapter History of Civil Services in India and reforms
15
Maheshwari, Shriram. Opp.cit. p. 238.
16
Tenth Report of Administrative Reforms Commission arc.gov.in/10th/ARC_10thReport_Ch2.pdf.

12
 Table: Reports Presented by the First ARC
S.No. Name of the Report Date of presentation to
Government
1. Problems of Redress of Citizens’ 20-10-1966
Grievances (Interim)
2. Machinery of Planning (interim) 29-4-1967
3. Public Sector Undertakings 17-10-1967
4. Finance, Accounts & Audit 13-1-1968
5. Machinery for Planning (Final) 14-3-1968
6. Economic Administration 20-7-1968
7. The Machinery of GOI and its 16-9-1968
procedures of work
8. Life Insurance Administration 10-12-1968
9. Central Direct Taxes Administration 6-1-1969
10. Administration of UTs & NEFA 28-11-1969
11. Personnel Administration 18-4-1969
12. Delegation of Financial & 12-6-1969
Administrative Powers
13. Centre-State Relationships 19-6-1969
14. State Administration 04-11-1969
15. Small Scale Sector 24-12-1969
16. Railways 30-1-1970
17. Treasuries 27-2-1970
18. Reserve Bank of India 11-3-1970
19. Posts & Telegraph 15-5-1970
20. Scientific Departments 1970

These 20 reports contained 537 major recommendations. Based on the inputs received from various
administrative Ministries a report indicating the implementation position was placed in Parliament
in November, 1977. A gist of the recommendations of the first ARC that are relevant to this Report
are outlined below:

i. Need for Specialization: The first ARC recognized the need for specialization as the
functions of Government had become diversified. A method of selection for senior
management posts in functional areas and outside functional areas was laid down.
ii. Unified Grading Structure: A unified grading structure based on qualifications and
nature of duties and responsibilities was suggested.
iii. Recruitment: On this subject, the ARC recommended: A single competitive examination
for the Class I services, with the age limit raised to 26 years; lateral entry to technical
posts at senior levels; direct recruitment to Class II services to be discontinued; a simple
objective type test to be continued for recruitment of clerical staff; recruitment to Central
Government posts in certain sectors to be made from among the State Government
employees.

13
 iv. Recruitment Agencies: A new procedure for appointment of members of the UPSC and
the State Public Service Commission was suggested and setting up of Recruitment
boards for selection of clerical staff was also recommended.
v. Training: A national policy on Civil Service Training to be devised.
vi. Promotion: Detailed guidelines for promotion were outlined.
vii. Conduct and discipline: Reforms in disciplinary enquiry proceedings and setting up of
Civil Service Tribunals was suggested.
viii. Service Conditions: The Commission also gave recommendations on matters related to
overtime allowances, voluntary retirement, exit mechanism, quantum of pension,
government holidays, incentives and awards to be given on timely completion of
projects, and establishing work norms for various posts that may be reviewed by the
Staff Inspection Unit17.

There were several other commissions and committees apart from the First Administrative Reforms
Commission, as stated earlier,were set up over the years to examine various aspects of Civil Service
Reforms. The recommendations made by these committees and commissions and of the first ARC
are grouped issue-wise and discussed in the following paragraphs.

4.1 Recruitment

In any governance system the quality of its public servants is critical and recruitment of suitable
persons is of great importance in this context. The aspiring civil servants must have required skills
and knowledge and right values such as integrity, commitment to the ideals and philosophy
embodied in the Constitution. The recruitment process must be transparent, objective, fair, equitable
and should also ensure that the right type of persons join the civil services. The system of
recruitment has evolved over the years. Several changes have been made in the recruitment process,
especially after independence to reflect the needs of the administration from time to time.

A number of Committees and Commissions were setup to make recommdation on various aspects
of recruitment. These recommendations are included in the Report on Public Administration by
A.D.Gorwala, 1951; Report on the Public Services (Qualifications for Recruitment) Committee,
1956 – also known as Dr. A. Ramaswami Mudaliar Committee Report; Report on Indian and State
Administrative Services and Problems of District Administration by V.T. Krishnamachari, 1962;
ARC’s Report on Personnel Administration 1969; Report of Committee on Recruitment Policy and
Selection Methods, 1976 – also known as the D.S. Kothari committee Report; Report of the
Committee to Review the Scheme of the Civil Service Examination, 1989 – also known as the
Satish Chandra Committee Report; Report of the Civil Services Examination Review Committee,
2001, also known as Professor Yoginder K Alagh Committee Report; Report of the Committee on
Civil Service Reforms also known as the Hota Committee Report, 2004

4.1.1 A.D. Gorwala’s Report recommended that recruitment to all grades of government service
should be conducted in a manner which eradicates scope for patronage and suggested that this
principle should also apply to temporary staff. Dr. Ramaswami Mudaliar Committee Report, 1956,

17
Tenth Report of Administrative Reforms Commission arc.gov.in/10th/ARC_10thReport_Ch2.pdf. accessed on 17th
March 2014.

14
on Public Services (Qualifications for Recruitment) recommended that a university degree should
be the minimum qualification for recruitment into the higher services whereas for secretarial and
ministerial services a university degree need not be insisted upon. This Committee also
recommended that the age limit for the highest executive and administrative services should be kept
between 21-23 years. The Krishnamachari Committee Report (Report on Indian and State
Administrative Services and Problems of District Administration by V.T. Krishnamachari, 1962)
analyzed the recruitments to Class I and Class II services in the State Governments and
recommended that recruitments should be made annually.

4.1.2The First ARC urged the importance of proper personnel planning and cadre management. It
suggested that recruitment to the IAS/IFS and other non-technical Class I services should be made
only through a single competitive examination. It also proposed that the upper age limit for taking
the civil services competitive examinations should be raised to 26 years. The first ARC further
recommended that direct recruitment to Class II posts of Section Officers should be stopped and
these posts may be filled by promotion of Assistants. The Commission also recommended that
recruitment to clerical and other secretarial posts should be conducted through simple objective
tests. The Commission advised constitution of Recruitment Boards for appointment of Class III and
class IV employees.

4.1.3 The D.S. Kothari Committee Report on recruitment Policy and Selection Methods, 1976,
interalia advocated a major change in the examination system. They advised a two stage
examination process – a preliminary examination followed by a main examination. This Committee
also suggested changes in the training pattern for the civil services.

4.1.4 The Fifth Central Pay Commission supported that employment on contract basis should be
encouraged and Government employees should have the right to retain their lien for two years in
case they wish to migrate to the private sector.

4.1.5 The Civil Service Examination Review Committee, 2001 was chaired by Professor Yoginder
K. Alagh whichproposed major changes in the structure of the examination system for recruitment
to the civil services. It advocated testing the candidates in a common subject rather than on optional
subjects. The committee on Civil Service Reforms (Hota Committee Report, 2004) made
suggestions on recruitment and recommended that the age for entrants to the Higher Civil Services
should be between 21-24 years with a five years’ age concession for members of the Scheduled
Castes/ Scheduled Tribes and three years’ for Other Backward Classes. It also suggested that
aptitude and leadership tests may be introduced for selection, and that probationers may be allowed
one month’s time after commencement of training to exercise their option for Services18.

4.2 Training

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March 2014.

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 While a number of committee have emphasized the importance of training – both induction and in-
service, some of the major recommendations are given below:

4.2.1 The Report on Public Administration by A.D. Gorwala (1951) underlined the fact that in order
to have suitable personnel to staff the public services, it is essential that there is proper recruitment
and training and an adequate organization and methods setup. It also recommended an induction
training to equip a civil servant with the necessary knowledge and skills to perform his/her duties
followed by trainings at designated intervals to refresh his/her knowledge, keep him in touch with
the new developments and his/her mind active, supply and receptive. The Committee recommended
the appointment of a Director of training to closely monitor all aspects of training.

4.2.2 The Report on Indian and State Administrative Services and Problems of District
administration by V.T. Krishnamachari (1962) emphasized that State Civil Service officers should
also undergo a structured training similar to that for IAS officers. It also suggested establishment of
training institutions in States with the help of the National Academy of Administration.

4.2.3 The First ARC urged that the training should prepare the individual civil servant not only
forperforming his/her present job, but also for higher responsibilities and meeting new and complex
challenges in the future. The ARC recommended the formulation of a national policy on civil
service training. It also suggested the creation of the Central Training Division in the Department of
Personnel. The Commission further suggested changes in the contents of the foundation courses at
the National Academy of Administration.

4.2.4 The Committee to Review In-Service Training of IAS Officers, (Yugandhar Committee,
2003) scrutinized the efficiency of the in-service training of IAS officers and subsequently made
several recommendations to further strengthen and improve these. Its recommendations included
the need for three mid-career training programmes in the 12th, 20th and 28th years of service. The
duration of 12th year is 8 week consisting of 5 weeks of academic content and 3 week of study,
training and exposure visits to study best practices in India and abroad. The training programmes in
the 20th years of service should be for duration of 12 weeks. The duration of training in the 28th year
was not specified. Trainings at these 3 stages was suggested as there is a ‘major shift’ in the nature
of the work of the officer, at these stages of their career19.

4.3 Domain Expertise

4.3.1 The first ARC classified Higher Civil Service posts into two categories: a) posts in the field, and b)
posts at headquarters. The field posts were held by the members of the ‘functional’ services which
included not only the various engineering services but also services such as accounts and income
tax. The first ARC noted that the only service that was not functional but occupied by most of the
higher posts in the civil services was the IAS. The ARC recommended that the IAS should be
converted into a functional service.

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4.3.2 Consistent with its philosophy of organizing the administrative machinery along functional
lines and inducting talent from all sources, the ARC recommended eight broad areas of
specialization:

1. Economic Administration
2. Industrial Administration
3. Agricultural and Rural Development administration
4. Social and Educational Administration

5. Personnel Administration
6. Financial Administration
7.Defence Administration and Internal Security
8.Planning

4.3.3 The first ARC proposed a scheme of reforms to enable entry into middle and senior
management levels in the Central Secretariat from all Services on the basis of knowledge and
experience in the respective areas of specialization. The ARC also indicated, in broad terms, the
knowledge and specialization required for staffing posts in each of these areas. The selection of
personnel to the eight areas of specialization was to be made through mid-career competitive
examinations. All Class I officers belonging to the All India and Central Services with experience
of eight to twelve years in the functional areas would be eligible. The selection process would
consist of a written test to be administered by the UPSC and an interview to be conducted by a
committee consisting of the Chairman, UPSC and two senior secretaries of the Government of
India.

4.3.4 The Report of the Group constituted to Review the System of Performance Appraisal,
Promotion, Empanelment and Placement for the All India Services and other ‘Group A Services’
(Surinder Nath Committee Report, 2003) suggested that assigning particular domains to the offices
should be a key step for their selection to the Central Staffing Scheme posts. The Group suggested
the following 11 domains:

i. Agricultural and Rural Development

ii. Social Sectors (Education, Health, Tribal Welfare etc.)
iii. Cultural and Information
iv. Natural Resource Management including Environment
v. Energy and Environment
vi. Communication system and Connectivity Infrastructure
vii. Public Finance and Finance Management
viii. Industry and Trade
ix. Domestic Affairs and Defence
x. Housing and Urban Affairs
xi. Personnel and General Administration

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4.3.4 The Committee recommended that officers may be assigned to a maximum of three domains
out of the eleven listed. The assignment of domains may be a part of the empanelment process at
JS/AS levels which would identify officers for posting to the government of India at levels of JS
and above.

4.3.5 The Committee also recommended that for the empanelment process, individual batches may
be taken up sequentially along with those from the previous batches who are due for review. Thus,
every year there would be fresh batch to be considered.

4.3.6 The Hota Committee on Civil Service Reforms, 2004, had suggested hat domain assignment
should be introduced for civil servants to encourage acquisition of skills, professional excellence,
and career planning. It had also suggested that empanelment and posting of Joint Secretaries,
additional Secretaries and Secretaries should be carried out through domain assignment,
competitive selection and matching of available skills with the job requirements20.

4.4 Grading Reforms

The first ARC suggested a unified grading structure so that posts entailing similar qualifications,
difficulties and responsibilities are grouped in the same grade. The principle of equal pay for equal
work was sought to be recognized for the entire country for both the Union and the State
governments and even the local bodies. The imbalance in remuneration attached to headquarters
posts and field posts and the multiplicity of pay scales for different groups was sought to be
addressed by this unified grading system. The Commission recommended that the number of grades
should range between 20 and 2521.

4.5 Efficiency

4.5.1 There has been a succession of Committees that were asked to recommend measures for
increasing the efficiencyof the civil servants. The Secretariat Reorganization Committee (1947),
under the chairmanship of Sir Girija Shankar Bajpai examined the functions of the existing
departments of Government of India with reference to relative priority and necessity of their
activities and made recommendations about how these activities were to be undertaken by the
Union Government with the available personnel. In 1949, the GopalaswamiAyyangar Committee
while recommending restructuring of the central Secretariat suggested that a Department should be
identified with a Secretary’s charge and a ministry should be identified with a minister’s charge. It
also recommended the abolition of the separate grade of Additional Secretary. For better co-
ordination of policy and planning, the Committee suggested grouping of the Departments dealing
with economic and social services into four bureaus. It also recommended the creation of an
organisation and methods machinery.

4.5.2 A. D. Gorwala, in his two reports to the planning Commission in 1951, suggested that there
should be greater understanding between Ministers and civil servants. More concretely, Gorwala
asked for an Organization and Methods (O & M) machinery and Whitley Councils. The Appleby
Report (1953) also contained recommendations relating to the establishment of O & M machinery

20
Tenth Report of Administrative Reforms Commission arc.gov.in/10th/ARC_10thReport_Ch2.pdf.
21
Ibid.

18
and an Institute of public Administration. These two recommendations were implemented by
Government.

4.5.3The various reports of the first ARC underscored the significance of an efficient administrative
system. Some of the recommdation to enhance efficiency included, 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. The fifth central Pay Commission (2000) stressed upon the need to
optimize the size of the government machinery. The Expenditure Reforms commission (2001)
urged on a drastic downsizing of the government staff strength for securing modern and
professional governance and also reducing the increasing salary bill f Government of India. The
Committee on Civil Service Reforms (Hota Committee 2004) emphasized the use of information
and communication technologies to transform government by making it more accessible, effective
and accountable. It stressed on the need to recognize that e-governance is about discarding old
procedures and transforming the process of decision making and that technology is merely a tool
and a catalyst for such transformations22.

4.6 Accountability

4.6.1 The Committee on prevention of corruption (Santhanam committee) made a range of

recommendations to fight the menace of corruption. It suggested the constitution of Central
Vigilance Commission, and Administrative Vigilance divisions in all Departments and major
organizations of the government. The Committee suggested rules to be framed for governing the
conduct of the civil servants. Some suggested changes in the rules were filling of assets and
liabilities statement instead of immoveable property statement by government servants, rules
regarding receipt of gifts and raising of contributions, and rules regarding dealing in stocks and
speculations. Changes were also suggested in Article 311 of the constitution of India for conducting
disciplinary proceedings against government servants. The committee also suggested a systematic
review of the laws, rules, procedures and practices of the Ministers so that the possible scope and
modes of corruption may be identified and remedial measures prescribed. Changes in the Indian
Penal Code were also suggested to strengthen anti corruption measures. Economic offences, evasion
of taxes, profiteering, black marketing, misappropriation of public properties, trafficking in license
and misuse of position by a public servant in making contracts and issuing licenses etc., it was
suggested, shouldfind a prominent place in the general criminal law of the country. It was also
suggested that the Law commission should further look into the issues.

4.6.2 The first ARC suggested that the departments and organizations which were in direct charge
of development programmes should introduce performance budgeting. The ARC also proposed the
establishment of two special institutions, the Lok Pal to deal with complaints against the
administrative acts of Ministries and Secretaries to the government at the centre and the Lok Ayukta
to deal with such complaints in States.

4.6.3 The Hota Committee advocated that the Section 13(I) (d) and 19 of the Prevention of
Corruption Act and Section 197 of the Code of Criminal Procedure may be amended to protect

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honest civil servants from malicious prosecution and harassment. It also suggested that a Code of
Ethics should be drawn up the civil servants incorporating the core values of integrity, merit and
excellence in public service. Moreover, it advocated that each department should laid down and
benchmark services to be delivered, methods of grievance redressal and public evaluation of
performance23.

4.7 Performance Appraisal

4.7.1 The first ARC had suggested several changes in the performance appraisal system as indicated
below:

i. The term performance record’ should be used instead of ‘confidential report’.

ii. At the end of the assessment year, the civil servant should furnish an account of the work
done by him/her during the year, to his/her reporting officer and this account should form a
part of the performance record. The reporting officer should take note of this account while
grading the civil servant.
iii. Grading in the performance report should consist of three categories: a) fit of promotion out
of turn, b) fit for promotion, c) not yet fit for promotion. The category unfit for promotion’
should be scrapped.
iv. Only 5 to 10 percent of the civil servants engaged in work of a similar nature and at the
same level in any organization should be given the grade “fit for promotion out of turn”.
v. Adverse remarks should not be communicated to the civil servant.

4.7.2 The fifth Central Pay commission was of the view that the ACR format should follow the
rating system based on a 10 point scale as in the Armed forces. It was also recommended that the
final grading in the ACR should be communicated to the employee. The Pay Commission also
recommended appraisal of Group A officers, so that a full picture of their personality emerges after
every five years. It recommended restoration of the annual confidential report for Group D cadres.

4.7.3 The Report of the group constituted to review the system of Performance Appraisal,
Promotion, Empanelment and Placement of the AIS and Other Services (Surinder Nath Committee,
2003) recommend that-

i. Performance appraisal should be primarily used for the overall development of an officer
and for his/her placement in an area where his/her abilities and potential can be best used.
ii. The agency assigned the responsibility of monitoring the timely writing of annual
performance reports should put in place a computerized system for more effective
monitoring.
iii. The entire performance record including the overall grade should be disclosed to the officers
reported upon.
iv. As yet, there is no established modality for evaluation of an officer’s performance by peers,
subordinates and clients.
v. Only those who can demonstrate a credible record of actual performance and posses the
necessary knowledge and skills required for higher responsibilities should be promoted.

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 vi. There is no benefit in retaining officers who lack demonstrated competence or who are
unqualified, or of doubtful moral or financial integrity or who are in unacceptable poor
health. It is important that an effective system of screening with the norms may be adopted.

4.7.4 The Hota Committee on Civil Service reforms, 2004, recommended replacing the ACR
with a system of performance assessment against agreed work plans24.

4.8 Management of the Civil Services

4.8.1 The first ARC suggested the creation of a separate Department of personnel to be entrusted
with the responsibility for:

i. Formulation of personnel policies for the Central and All India Services and inspection
and review of their implementation.
ii. Talent-hunting, development of personnel for senior management and processing of
appointments for senior posts.
iii. Manpower planning, training and career development, research in personnel
administration.
iv. Discipline and welfare of staff and machinery for redressal of their grievances.
v. Liaison with the Union Public Service Commission, State Governments and professional
institutions.
vi. Staffing of middle level positions in the Central Secretariat.

4.8.2 The first ARC specially suggested that the Department of Personnel should not administer any
service cadre, and that the administrative control of different services should vest with the
individual ministers. It also recommended that the administration of IAS, IPS and the Central
services should be done by the Ministry of Home Affairs while management of the Indian economic
Services and the Indian Statistical services should be transferred to the Department of the Economic
Affairs. While noting that the Department of Personnel should be placed directly under the Prime
minister, the first ARC proposed the creation of an advisory council on personnel administration to
act as a feeder line of new thinking on personneladministration. The ARC advocated that the
advisory council should consist of officials and non-official experts in different aspects of personnel
management drawn from all over the country.

4.8.3 The fifth Central pay commission proposed the constitution of a high-powered Civil Services
Board both at the Centre and the State. It also suggested fixation of minimum tenure for each post.
It advocated that no premature transfer should be allowed25.

Second Administrative Reforms Commission

The second administrative reforms commission emphasized on the importance of legislative support
as it is not only provide legal framework for civil service reforms but also ensures the continuity of
these reforms. It also provides a clear, unified framework within which the civil servants can
perform their roles and discharge their responsibilities. There are arguments for and against having

24
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25
Ibid.

21
a new public service law. The commission has recommended measures for reforming civil reforms
that can be grouped as:
• A set of values of civil servants;
• Redefining the relationship between the governments and civil servants;
• Reforms in recruitment procedures of civil servants;
• New terms and conditions of appointment;
• Reform in the procedure of placement as well as security of tenure- a new institutional
mechanism;
• Improving accountability mechanism simplifying disciplinary proceedings;
• Creating new organisational structure in government.

5. Conclusion

As a result of the deliberations of these Commissions and Committees on different aspects of public
administration and the recommdation made, there have been incremental reforms-such as creation
of a separate department of administrative Reforms in the Union and State governments, setting up
of the Indian institute of public Administration, setting up of the Central Vigilance Commission,
Constitution of Lok Ayukta in States, strengthening of citizens’ grievance redressal machinery,
drawing up of Citizens Charters, focus on training and capacity building of civil servants,
restructuring of the recruitment process and modifications in the performance appraisal system.
Many of the recommdation involving basic changes have not been acted upon and therefore, the
framework, systems and methods of functioning of the civil services based on the Whitehall model
of the mid-nineteenth century remains largely unchanged.

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