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INDEX
1. Administration : Meaning, Nature & Significance ______________________ 3-15

2. Management : Meaning, Nature & Significance _______________________ 16-18
3. Role of Public Administration in Developed and Developing societies ___ 19-20
4. Evolution of Public Administration as a Discipline ____________________ 21-25
5. New Public Administration ________________________________________ 26-28
6. Approaches to the study of Public Administration _____________________ 29-37
7. Concepts of Power, Authority, Legitimacy, Responsibility & Delegation _____ 38-45
8. Principles of Organization Hierarchy, Span of Control _________________ 46-53
and Unity of Command
9. Functions of Management _________________________________________ 54-55
10. Corporate Governance _____________________________________________ 56-58
11. Social Responsibility ______________________________________________ 59-60
12. New Dimensions of New Public Management ________________________ 61-66
13. Change Management ______________________________________________ 67-68
14. Attitude and Values of Civil Services : Ethics, Integrity, Impartiality _____ 69-74
and Non-partisanship, Dedication to Public Service
15. Relationship Between Generalists and Specialists ______________________ 75-77
16. Control over Administration: Legislative, Executive ___________________ 78-87
and Judicial-Various Means and Limitations
17. Administrative Setup, Administrative Culture in Rajasthan ___________ 88 - 88
18. Governor ________________________________________________________ 89-94
19. Chief Minister & Council of Ministers _______________________________ 95-98
20. State Secretariat _________________________________________________ 99-102
21. Directorates ____________________________________________________ 103-105
22. Chief Secretary __________________________________________________ 106-108
23. District Administration : Organization, Role of District Collector ______ 109-122
and District Magistrate, Superintendent of Police, Sub-divisional
and Tehsil Administration
24. Development Administration: Meaning, Scope & Characteristics ______ 123-128
25. State Human Rights Commission __________________________________ 129-132
26. State Election Commission _______________________________________ 133-135
27. Lokayukt ______________________________________________________ 136-139
28. Rajasthan Public Service Commission _____________________________ 140-142
29. Rajasthan Guaranteed Delivery of Public Services Act, 2011 ___________ 143-146
and Rajasthan Right to Hearing Act, 2012
Unit-II
Concepts, Issues and Dynamics of Public Administration
and Management
• Administration and Management: Meaning, nature and significance. Its
role in developed and developing societies. Evolution of Public
Administration as a discipline, New Public Administration, Approaches
to the study of Public Administration.
• Concepts of power, authority, legitimacy, responsibility and delegation.
• Principles of Organization: Hierarchy, Span of Control and Unity of
Command.
• Functions of Management, Corporate governance and social
responsibility.
• New dimensions of New Public Management, Change Management.
• Attitude and Values of Civil Services: ethics, integrity, impartiality and
non-partisanship, dedication to public service, relationship between
Generalists and Specialists.
• Control over Administration: Legislative, Executive and Judicial-Various
Means and Limitations.
• Administrative setup, administrative culture in Rajasthan: Governor,
Chief Minister, Council of Ministers, State Secretariat, Directorates and
Chief Secretary.
• District Administration: organization, role of District Collector and
District Magistrate, Superintendent of Police, Sub-divisional and Tehsil
administration.
• Development Administration : Meaning, Scope and Characteristics.
• State Human Rights Commission, State Election Commission, Lokayukt,
Rajasthan Public Service Commission, Rajasthan Guaranteed Delivery of
Public Services Act, 2011 and Rajasthan Right to Hearing Act, 2012.
Public Administration [2]

ADMINISTRATION :
1 MEANING, NATURE AND
SIGNIFICANCE
Government
Legislature Executive Judiciary

Parliament/State Supreme court/
Legislature High Court
Subordinate Courts
(Formulation of Permanent Temporary executive
Policies/Laws) (political executive) (Judicial review
executive
(Public Servant/ (Prime Minister/Council )
bureaucracy) of Minister)
(Chief Minister/Council
(Public Administration as a of Ministers)
System)
(Formulation of
laws and policies)
(Implementation of laws and policies)
PUBLIC ADMINISTRATION
Public administration is made up of two words – Public and Administration.
Public means government and administration means completing the tasks directed by the state.
Public administration is that part of administration which implements public policies under a
specific political system. Therefore, administration of government or public works is called public
administration.
According to L.D. White-
“Public administration includes all those activities whose purpose is to fulfill or implement public
policy.”
According to Pfiffner-
“Public administration means carrying out government work, whether it is running an X-ray
machine in a health laboratory or minting coins in a mint.”
Features of Public Administration:
(i) According to Nigro, public administration is directly/indirectly connected with all the three
organs of government.
(1) Legislature:
(a) Management of the sessions of the House.
(b) Providing data and information to the honorable members.
(2) Executive:
Implementation of laws and public policies made by honorable members.
(3) Judiciary:
(a) To execute judicial orders.
(b) Providing various witnesses and evidence to the Honorable Court.

(ii) Public administration has dual meanings.
(1) Public administration as a subject
Studying it as a subject develops administrative understanding and also develops moral
values in the individual.
(2) Public administration as a system
Implements public policies as a system.
(iii) The main function of public administration is to implement policies.
(iv) The main objective/philosophy of public administration is to do public welfare work.
(v) Public administration works under a specific political system.
(vi) Public administration also plays an important role in policy making and policy review or
evaluation.
(vii) The present state is an administrative state where public administration is present
everywhere from womb to tomb or cradle to grave.
(viii) Public administration is the basic foundation and fundamental part of our human
civilization.
(ix) Public administration is the driving force of social change.
(x) Public administration has hierarchy and organizational structure.
(xi) In public administration, work is conducted and done through various rules, regulations and
bye-laws.
Administration
Administration is made up of the combination of iz-prefix and 'kkl~ root word. Which means to rule
in an excellent manner.
The word ' Administration ' is made up of the Latin word ' Ad+ministare'.
Where Ministare means:
(i) To manage.
(ii) To make arrangements.
(iii) To take care.
(iv) To serve.
Therefore, administration is a collective effort done by various people for a specific objective.
Collective Effort Administration Various
Individual
Definite Objective
Over time, administration has also started being used in the sense of management.
Features of Administration:
(1) There are two types of administration-
(i) Public Administration – Public Welfare
(ii) Private Administration – Profit Oriented
(2) Administration is a universal process.
(3) Administration works with a definite objective.
(4) Collective effort or team work is necessary in administration. So that a harmonal and mutually
cooperative environment can be created in the society.
(5) The word administration is often used for large organizations.
(6) Administration is a part of the form of the state.
(7) Administration is related to directing, Accommodation and planning of human efforts.

Different forms of administration
As a policy maker
Like- Nehru administration
Indira Administration
As Policy implementer
Administration: As Manager
Like- Public Administration,
various in forms
Railway Administration
As a branch of social science
Different View of Administration

(1) Managerial View:
Supporter→ Simon, Smithburg.
According to this view, only those taking important decisions in the organization, perform
administrative work and perform policy-making work in the organization are part of the
administration. That is, this approach considers only the High officials or manager as part of
the administration. It does not include technical staff, clerical staff and support staff in
administration. Therefore, this approach is also called ‘Narrow view'.
(2) Integrated View:
Supporter → Willoughby, White
According to this view, high officials, technical staff, clerical staff and support staff represent
the administration. That is, this view provides equal importance to every employee of the
organization. Therefore, it is also called ‘Broad Approach’ and it is a more democratic concept
than the managerial approach.
Difference between Administration and Public administration

Administration Public administration
There are two types of administration.
(i) Public Administration This is a part of administration.
Private Administration
(ii) This is a broad concept. It is a narrower concept than administration.
This has double meaning-
(iii) It is a process.
.As a subject. As a system.
Administration is a collective effort done
It implements policies under a specific
(iv) by various individuals for a definite
political system.
objective.
(v) It is universal. It is not necessary for it to be universal.

Difference between Governance and Public administration
Governance Public administration
(i) This is a temporary executive. This is the permanent executive.
(ii) Election – by the public, Appointment – by the government.
(iii) Main task - policy formulation, main task - policy implementation.
(iv) They are also called ‘public servants’. They are also called ‘government servants’.
They take inspiration from the
(v) They have to follow government orders.
Constitution for policy making.
Tenure - permanent (up to a certain age or till
(vi) Tenure - temporary (usually five years)
retirement)
(vii) They are elected or nominated, they are selected or appointed.
Public and Private Administration: Similarities and Differences
Administration
Public Administration Private Administration
(1) Public Administration: Public administration is that administration which works under
government control.
(2) Private Administration: Private administration is that administration which works in the
corporate sector.
Similarities between Public and Private Administration
Thinkers: Mooney, Reiley, Gullick, Urwick, Fayol
Following are the similarities between public and private administration:
(i) Organized for purpose
(ii) Requirement of employees
(iii) Need for finance or money
(iv) Records Management
(v) Research and investigation work
(vi) Public relations- through advertising etc.
(vii) Both are moving towards development and progress.
(viii) Similar management techniques like planning, organisation, coordination, control etc.

Difference between public and private administration
Thinkers: Simon, Appleby, Drucker
(i) Their main objective is public welfare. They work for profit.
(ii) There is direct political control in it. No
(iii) Bureaucracy works. No
New organizations are formed on public
(iv) Formation on the basis of profit
demand.
(v) There is more transparency in these. There is less transparency in these.
There is no obligation to work within a There is an obligation to work within a
(vi)
specific time limit. (Delay in work) certain time limit. (time oriented)
The feeling of universal welfare and
(vii) protection of internal interests
prosperity.
(viii) Stability of employment uncertainty of employment
(ix) wide scope Narrow scope
More criticism. Hence accountability is more.
(x) comparatively less
(media, press)
Public administration has monopoly on many Same good or service produced by
(xi)
services like post, railways etc. multiple institutions.
Financial control is exercised by various
(xii) institutions like legislature, budget use of finance as per discretion
committees, CAG etc.
SCOPE OF PUBLIC ADMINISTRATION

The present state is a Morden-administrative state in which the public administration, apart from
only the legislature, executive and judiciary or POSDCoRB related work, also performs many
other public welfare functions. Hence its scope is very wide. This is studied through the following
approaches –
(i) Narrow view
(ii) Broad view
(iii) POSDCoRB view
(iv) Subject matter view
(v) public private view
(vi) Public policy view
(vii) Modern view
1. Narrow View
According to this view, public administration is linked only to the executive branch of the
government and its main function is policy implementation. That is, it is not connected to the
judiciary or legislative branch of the government.
Supporters: (i) Simon, (ii) Smithberg

2. Broad View
According to Nigro, public administration is concerned with the interrelationship of all three
branches of government – the legislature, the executive and the judiciary. According to this
view, public administration is linked to all three branches of government.
Which is as follows -
(1) Relation to the Legislative Assembly
(i) To manage the sessions of the House.
(ii) To provide various information and data to the honourable members of
Legislature.
(iii) Finance: Preparing draft bills in legislature.
(2) Relation to the Executive: Ensuring implementation of policies.
(3) Relation to Judiciary: Implementation of judicial decisions and orders.
To present a witness or evidence before the judiciary.
Supporters: (1) Willoughby, (2) White
3. POSDCoRB View
This approach was given by Luther Gullick. In this POSDCoRB the work of a senior officials or
manager. Which is as follows-
Explanation of POSDCoRB
P - Planning
To ensure proper utilization of resources.
O - Organising
To Organise human resourses
S - Staffing
Work related to recruitment, training, promotion, disciplinary proceedings, annual
confidential report.
D - Directing
To issue instructions to subordinates from time to time.
Co - Coordinating ;
To establish coordination among various employees and units of the organization.
R - Reporting
To obtain various progress reports from subordinates.
B - Budgeting
To manage financial resources in the organization.
Criticisms of POSDCoRB
(1) The main functions of public administration and policy implementation have not been
mentioned in the POSDCoRB approach.
(2) The main objective of public administration is public welfare; this too has not been included in
the POSDCoRB.
(3) Public relations must also be included in the POSDCoRB.
Note: - E – Evaluating was added to the POSDCoRB principles in 1971 by Luther Gullick.

4. Subject Matter View
This approach has been given by Lewis Merriam. According to this, along with POSDCoRB
the knowledge of subject matter, it is also mandatory in the area public administration of its
subject matter. According to Merriam meaning of the subject matter of public administration is
the services provided by public administration. Such as education, health, agriculture,
transportation
According to it, "The scope of public administration is like two blades of a scissor, in which on
one blade, there is a POSDCoRB approach, and the other blade, its subject matter is and both
the blades of the scissor should be sharp." . ''This approach is called the complementary
approach to the POSDCoRB approach.
5. Public Private View
This approach consider private administration as a part of public administration.
This approach includes two groups –
(a) Similarities between public and private administration
Thinkers: Mooney, Reiley, Gullick, Urwick, Fayol, Willoughby
Public and private administration has the following similarities -
(i) Organized for the purpose
(ii) Requirement of employees
(iii) Need for finance
(iv) Management of Records
(v) Research and Development work
(vi) Public relations – through advertisement etc.
(vii) Both are moving towards development and progress.
(viii) Similar management techniques like planning, organisation, coordination, controlling
etc.
(b) Difference between public and private administration
Thinkers: Simon, Appleby, Drucker
(i) Their main objective is public welfare. They work for profit.
(ii) There is direct political control in it. No direct political control
(iii) Bureaucracy works. No
New organizations are formed on public
(iv) Formation on the basis of profit
demand.
(v) There is more transparency in these. There is less transparency in these.
There is no obligation to work within a There is an obligation to work within a
(vi)
specific time limit. (Delay in work) certain time limit. (time oriented)
The feeling of universal welfare and
(vii) protection of internal interests
prosperity.
(viii) Stability of employment uncertainty of employment
(ix) Wide scope Naro scope
More criticism. Hence accountability is more.
(x) comparatively less
(media, press)
Public administration has monopoly on many Same good or service produced by
(xi)
services like post, railways etc. multiple institutions.
Financial control is exercised by various
(xii) institutions like legislature, budget use of finance as per discretion
committees, CAG etc.

6. Public Policy View
Supporter- Laswell, Belli, Dror
According to this view, public administration plays an important role in policy-making as well
as policy-implementation and policy-review and evaluation. According to Appleby, “Policy
making is the essence of public administration.”
Role in policy-Making: Providing advice and information to ministers/politicians.
Role in policy Implementation: Public policies are implemented by public servants.
Role in policy Evaluation: Reviewing policies after a certain period of time.
7. Modern View:
According to this view, the scope of public administration is constantly changing.
If there is an increase in the scope/functions of the state, then there will be an increase/change
in the scope/functions of public administration.
According to this view the scope of public administration cannot be fixed or determined.
NATURE OF PUBLIC ADMINISTRATION
The nature of public administration is understood on the two basis
As a subject As a system
Public (Managerial/)
Administration integrated approach
(Science or Art)
1. Nature of Public Administration on the basis of discipline

Public administration as a science
Supporters: Woodrow Wilson, Thompson, Gullick and Urwick, Willoughby
Argument/Basis:
(i) Public administration has universal principles like science. Such as hierarchy, division
of work, coordination, motivation.
(ii) Research and development work like science. Such as- New Public Administration,
New Public Management, New Public Service Model (development of new concepts).
(iii) Use of scientific methods and procedure in public administration. Like – CPM, PERT
(iv) Public administration is value free like science, because it works on definite rules and
principles.
(v) Public administration, like science, has the ability to predict (in policy-making).
(vi) Like a doctor, public servants also provide various advice or counselling to politicians.
(vii) Like science, there are universally accepted book in public administration. Like
Aristotle – Politics, Plato – Republic, Kautilya/Chanakya – Economics.
(viii) Public administration is an interdisciplinary study like science.
(ix) Like science, scientific study method, comparative study method, observational study
method and inductive analysis are found in public administration.

Public Administration is not a science
Supporters: Robert Dahl, Simon, Finer, Waldo
Argument/Basis
(i) Public administration is value oriented.
(ii) There is lack of accuracy in forecasting.
(iii) The behavior of public servants is changeable.
(iv) Like science, there is a lack of accuracy and precision.
(v) It lacks predictability and authenticity.
(vi) Like science, it lacks laboratories and equipment.
(vii) Public administration changes according to the situation and environment.
Robert Dahl said that there are three obstacles in public administration becoming a science.
Dahl mentioned it in 'Science of Public Administration: Three Problems'. (i) Values, (iii)
Behaviour, (iii) Environment.
Public Administration as an Art
Supporters: Gladden, White, M.P. Sharma, Tead.
Argument/Basis
(i) Both an artist and a public servant require a special talent.
(ii) It emphasizes on behavior rather than fixed rules, that is, it is behavior oriented.
(iii) A public servant has creativity like an artist. (Because of creativity, public servants do
the work of policy-innovat.)
(iv) Both require a medium. Like-artist - color, brush. Public servant - the institution
where he is working.
(v) Public administration, like art, is also changeable according to the country, time and
situation.
(vi) Both a public servant and an artist need training.
(vii) Personality is important for both.
(viii) In public administration also, efficiency and proficiency can be achieved through
practice like art.
2. Nature of public administration On the basis of system
Managerial/integrated nature of public administration
(i) Managerial Nature:
According to this, nature of public administration should include only high officials by
whom the work of policy making in the organization is done. Therefore, it does not include
technical class, clerical class, support staff etc. in the nature of public administration.
(ii) Integrated Nature:
This nature includes senior officials, technical class, clerical class and support staff working
in public administration.

IMPORTANCE OF PUBLIC ADMINISTRATION
Important statements
(1) Willoughby: Public administration is the fourth organ of government.
(2) Appleby: Without public administration, government is just a discussion club.
(3) Donham: If our modern civilization declines, it will be a failure of public administration.
(4) Jawahar Lal Nehru: Public administration is a medium of social and economic justice.
(5) Paul Pigours: Public administration brings stability in the society.
1. Importance of public administration as a disciplane
• Public administration as a subject was separated from political science in 1887. Today the
importance of the study of public administration is clear. Its importance in public life is
increasing day by day and many welfare works are being implemented through public
administration. The success or failure of the government depends on the implementation
of public administration. Therefore its study as a subject is necessary.
• In many universities in our country, public administration is being studied at
undergraduate and postgraduate level and in Rajasthan also, public administration is
being studied at undergraduate and postgraduate level.
As a subject it has the following importance-
• Its study develops a basic understanding of administration and public administration.
• This develops moral values among the students.
• It gives knowledge of the principles of public administration.
Baird – “There is no other subject more important than the subject of public administration.”
2. Medium of public welfare
• It is said. That public administration exists 'from the womb to tomb. At present, public
welfare works are carried out in more or less quantity by public administration in all the
countries of the world.
• Our Constitution, through directive principles, gives instructions to the public
administration of the states to do public welfare work for the weak and backward persons
and sections of the society.
• Today, it is possible to provide basic social services to humans through public
administration, that is why today's state is called an administrative state.
• Public administration formulates and implements various public welfare schemes for
common citizens.
Like- Pradhan Mantri Awas Yojana, MNREGA, Indira Rasoi Yojana, Chiranjeevi Health
Insurance Scheme, Indradhanush Yojana, Ujjwala Yojana.
Waldo and Marx – “The modern state is an administrative state”.
3. As a carrier and protector of democracy
• Democracy has been adopted in India after independence. In democracy, administration
works in the interests of the people. Administration has the following roles in maintaining
democracy-
• To organize various elections to maintain democratic values. Like- MP, MLA, Panchayati
Raj and urban bodies.
• Disposal of public complaints. Like - District Level Public Grievance and Vigilance
Committee. (Chairman - District Collector), Subdivision Level Public Grievance and
Vigilance Committee (Chairman - Subdivision Officer)
• To ensure public participation in government schemes and programmes.
• To increase political awareness.
• To implement civil and human rights.

4. As a protector of civilization and culture
The flourishing form of civilization, culture and art that we see in the world today is the
contribution of public administration. Public administration plays an important role in
protecting culture.
• It is the responsibility of the public administration to protect the cultural heritage of every
country in the world.
• To preserve historical monuments, architecture, musical art, painting etc.
• To maintain our glorious values and traditions.
• Public administration preserves our culture through various institutions.
• It is the responsibility of public administration to protect and preserve against cultural
invasion and degradation of values.
• The following institutions are carrying the above-mentioned responsibility in Rajasthan.
Like- Western Region Cultural Centre (Udaipur), Arabic Persian Research Institute (Tonk),
Archaeological Department, Government of Rajasthan.
5. As a means of livelihood
Various public servants are working in public administration or government sector, hence it is
a means of livelihood or living for those public servants. Public administration provides
employment to the people. Public servants working in public administration have been
respected in every era. Like- 2.5 crore in India, 18% in America and 33% in France.
6. Medium of socio-economic justice

(1) As a Medium of social change
Various types of schemes related to social development and social change are implemented
by public administration. Public administration is an important means of civilized life.
Government does not exist without public administration. Along with education, political
consciousness, law, pressure groups, economic development and voluntary organizations
public Administration is also considered as tools for planned social change. Public
administration is a weapon of social change as well as a medium of social control. Social
problems – Dowry system, child marriage, pardah system, untouchability.
Public administration solves various social problems through laws made by the
government. Such as Widow Remarriage Act 1856, Child Marriage Prohibition Act 1929,
Untouchability Prohibition Act 1955, Dowry Prohibition Act 1961.
(2) As an Medium of economic change – Public administration is also a medium of economic
change. Public administration also solves various economic problems through policy
making. Like- economic inequality, poverty, unemployment.
7. To meet the needs of the regulatory state

• To collect revenue in the state.
• Maintaining law and order
• Implementation of various codes like- CrPC, IPC
• To maintain social harmony and harmony in the society.
Eg. control on regionalism, racism and casteism etc.

8. Protection from exploitation of the private sector
• After liberalisation, privatization and globalization, public administration is protecting the
common man from exploitation by the private sector. Like- implementation of Consumer
Protection Act-1986.
9. To maintain stability and coordination in the state

• Public administration maintains internal security, integrity, communal harmony, harmony
and brotherhood in the state. It Controls and regulates the judicial system, police, armed
forces, weapons manufacturing, space, atomic energy etc.
• It is the responsibility of public administration to monitor the country's borders, prevent
foreign infiltration, stop terrorist activities and protect the country from foreign attacks. It
is the responsibility of the public administration to fail the immoral intentions of our
neighboring country.
• Finer – “Efficient administration is the only strong support of government, without which
the state will disintegrate.”
10. In the interest of students

• Public Administration is very beneficial for students. On one hand, students get
information about various rules, principles and facts of public administration and on the
other hand, it helps in becoming good citizens.
11. Consultative role in policy making

• The main function of public administration is policy implementation but it also advises the
legislature in formulating public welfare policies. The work of implementing government
schemes and programs is done by public servants. Public administration acts as a force to
establish stability in the society. Finer - “No matter how good the constitution of any
country is and how capable the ministers are, the governance of that country cannot be
successful without efficient administrators.”
12. Administration a tool of government

• The most important function of the government of any country is to provide efficient
administration. In the early days of civilization, only public administration used to do this
work. Along with the development of civilization and progress in work, the work and
importance of public administration also increased day by day. Today most of the
functions, departments and offices of the government have been brought under the ambit
of public administration. Still, the importance of basic functions cannot be underestimated.
13. Means of scientific, technological and infrastructural development

• Public administration guides the development of the people. Educational institutions
which include schools, colleges and universities require trained manpower. Technical
manpower is required for building roads, dams, houses and industries and scientific
manpower is required for research and development. All this is possible only through
well-developed public administration. Countrywide rail transport, communication system
and fundamental research etc. are all under the control of the government. All these works
are not possible in the absence of public administration. Public administration has
immense importance in development and change in any country.

Challenges before Public Administration
• Poverty, unemployment, economic inequality, illiteracy.
• Terrorism, Naxalism, racism.
• Environmental degradation, climate change, environmental pollution.
• Industrialization, rapid urbanization.
• To fulfill the needs of the public welfare state.
• Globalization, liberalization, and privatization.
• Population explosion.
• Increasing communalism.
• Lack of political inclusion.
• Increasing political interference.
• Administrators as volunteers rather than public servants.
• Egoist conduct of administrators.
Limitation of public administration

• Ignorance of demands of the public.
• Red tapism and corruption.
• Excessive increase in size
• Decrease in work efficiency.
• Feeling of superiority among public servants.
• Excessive attachment to position and powers.
• Excessive political interference.
• Complexity of hierarchy.
• Rule of thumb (work based on experience)
◼◼◼

2 Management:
Meaning, Nature and Significance
Management
Management: Management is that part of the organization which ensures coordination among
resources, makes proper use of the resources in the organization and directs the resources towards
the goals of the organization.
Directs resources Management Coordination among
towards the goals of resources
the organization
Ensure proper utilization of resources
According to Wilson
“The process of using and directing human powers to achieve definite objectives is called
management.”
Scope of Management
The meaning of management is very broad. While Taylor has explained scientific management in
the context of management, some thinkers also consider management as an art. The broad and
comprehensive scope of management includes the following management-
(i) Production Management: Under this, production should be done according to the demand of
the market.
(ii) Marketing Management: Identifying the needs and desires of the consumer.
(iii) Human Resource Management: Activities related to recruitment, selection, training and
development of personnel are included.
(iv) Financial Management: Under this, activities related to determining financial sources,
obtaining finance and investment decisions are included.
(v) Purchasing Management: Determining sources of supply of raw materials, placing orders for
supply, ensuring timely delivery.
(vi) Office management: Activities related to obtaining information, filing, public relations and
making data available are included.
(vii) Development Management: Developing new methods of production, which can reduce
costs, incorporating innovation in equipment and production process.
Different approaches related to management in administration
1. American ideology
Supporters: Robinson, Schultz
According to this, administration is a broader concept and management is a part of administration.
Administration
Management

2. Anglo ideology
Supporters: J.P. Daniels, James Lundy
According to this, management is broader than administration. That is, administration is a part
of management.
Management
Administratio
n
3. Third ideology
Supporters: Mooney/Reiley/Gullick/Fayol/Urwick
According to this, management and administration are synonyms of each other.
Features of management
1. Management is a human action and activity.
2. Management is related to human organization.
3. This is a creative activity.
4. This is a universal process.
5. Management is based on well-established universal principles.
6. Management creates a dynamic organization that can adjust to changing circumstances.
7. There is both artistry and scientificity in management.
8. Management is a procedural activity.
9. Management is a means of livelihood.
10. Management requires general knowledge as well as specific knowledge and managerial
training.
11. Management is a social, economic, cultural responsibility.
12. The nature of management is goal oriented.
13. Resources are used appropriately for management.
14. Definite objectives are achieved in management.
15. Management helps in achieving organizational goals.
16. Management increases efficiency.
17. Helps in social development.
According to Oliver Sheldon- “The main function of administration is to determine the policies,
whereas the function of management is to implement them within the limits of the policies set by
the administration and to operate the organization according to the determined objectives.”

Difference between Management and Administration
The distinction between these two was first made by Oliver Sheldon in his book “Philosophy of
Management” (1923).
Administration Management
Management is a part of
(1) Administration also includes management.
administration.
(2) This is a broader concept. This is a narrow concept.
Administration determines the goals of the
(3) Tries to achieve goals.
organization.
Administration ensures effective leadership It ensures proper utilization of
(4)
and coordination in the organization. resources in the organization.
It ensures effective direction in the It ensures effective work
(5)
organization. performance in the organization.
The main function of administration is to The main function of management is
(6)
formulate policy. to implement policy.
It is more prevalent in the government It is more prevalent in the private
(7)
sector. sector.
(8) They give directions They implement them.
To ensure POSDCoRB activities and public Generally perform POSDCoRB
(9)
welfare. activities.
Management is that part of the
organization which coordinates the
Administration is a collective effort done by resources, makes proper use of the
(10)
various people for a specific objective. resources in the organization and
directs the resources towards the
goals of the organization.
◼◼◼

Role of Public Administration in
3 Developed and Developing Societies
FEATURES OF ADMINISTRATION IN DEVELOPED SOCIETIES
(i) Decentralized Administration

(ii) Accountable and responsible administration
(iii) Transparent administration
(iv) Important role of Specialist in policy making
(v) Qualitative role of public servants
(vi) Existence of new public administration
(vii) public participation
(viii) Client Orientation
(ix) Professionalism in Administration
(x) Commitment towards Constitution
(xi) Harmony between politicians and public servants
(xii) Use of highly innovative techniques in administration
(xiii) Flexibility in hierarchy
Challenges before public administration in developed societies
(i) Mechanization of humans

(ii) Increasing materialism
(iii) Highly boost to industries
(iv) Exploitation of workers by capitalists
(v) Encouragement to lockout and strike
(vi) Increasing population of cities
(vii) Environmental pollution
(viii) Promote social competition
(ix) Lack of human values
(x) Loss of internal peace
(xi) Interference in government by industrialists

ROLE OF PUBLIC ADMINISTRATION IN DEVELOPING SOCIETIES
Features of administration of developing societies
(i) Colonial legacy.
(ii) Important role of generalists in policy making.
(iii) Comparative lack of coordination between politicians and administrative officials.
(iv) As the vector and protector of democracy.
(v) Developmental and infrastructural problems in public services, such as workplace
environment not being favourable, lack of physical facilities etc.
(vi) Public administration gives more emphasis on socio-economic change i.e. plays the role of
development administration.
(vii) Traditional public administration: (Conservative administration).
(viii) Quantitative role of public servants.
(ix) Large size of bureaucracy.
(x) Bureaucracy helps the government in making public welfare policies like education, health
etc.
Challenges before public administration in developing societies
(i) Lack of administrative structure
(ii) Lack of specialist in economic and technical fields
(iii) Lack of professional standards
(iv) Lack of good administrative leadership
(v) Corruption, dishonesty, manipulation and red tapism in administration.
(vi) Lack of administrative ethics, integrity, non-partisanship
(vii) Lack of administrative accountability
(viii) Lack of specialized services
(ix) Excessive role of generalists and less importance to specialists.
Difference in administration of developed and developing societies
Administration of developed societies Administration of developing
societies
(1) Qualitative role of bureaucracy Quantitative role of bureaucracy
Important role of specialist in policy Important role of generalists in policy
(2)
making making
Cordial relations between politicians Comparatively less or lack of
(3)
and public servants coordination.
(4) Participatory governance Lack of public participation
(5) Flexibility in hierarchy Red Tapism or Rigidity in hierarchy
Existence of new public administration Existence of development
(6)
administration
(7) Self-developed administration Colonial legacy in administration
(8) Negligible corruption Corruption
(9) Work on time Delay in work
High leadership potential among public Comparative low
(10)
servants
(11) Neutral from power Acts according to power.
Note: When asked “Role of Public Administration in developed and developing societies”, points
related to “Importance of Public Administration” have to be written.
◼◼◼
EVOLUTION OF
4 PUBLIC ADMINISTRATION
AS A DISCIPLINE
Evolution of Public Administration
Before 1887 After 1887
1. Before 1887: Evolution of Public Administration
• The study of public administration as a work process started with the development of
human civilization.
• Public administration as a system is mentioned in various books. Like- Plato  Republic,

Aristotle  Politics, Machiavelli  The Prince, Kautilya  Economics, Abul Fazal  Ain-
e-Akbari.
• In the 16th and 17th centuries, Cameralist thinkers in Germany and Austria laid emphasis
on the training of government administration.
• Public administration was explained by Hamilton in his article ‘The Federalist’.
• Charles Jean Bounin wrote the first book on public administration titled “Principles de
Administration Publique” in 1812.
2. After 1887: Evolution of public administration as a discipline
Wilson laid the foundation of public administration as a discipline, which is evolving from
1887 to the present. The stages of this evolution are as follows-
(i) First phase: Political administration dichotomy (1887 – 1926)
(ii) Second phase: Golden period of principles (1927 - 1937)
(iii) Third phase: Era of criticisms or challenges (1938 – 1947)
(iv) Fourth phase: Crisis of Identity (1948 – 1970)
(v) Fifth phase: Emphasis on interdisciplinary studies and Era of New public administration
(1971 - 1990)
(vi) Sixth phase: Era of liberalization, privatization, globalization and public administration or
new public management (1991 - ......)

Evolution of Public Administration:
1. First phase: Politics-administration dichotomy (1887 – 1926)
In this phase, Woodrow Wilson, in his essay (The Study of Administration (1887)), argued
about separation of public administration from political science and politicians. Therefore,
Woodrow Wilson is also called the “Father of Public Administration”. Woodrow Wilson's
arguments in favour of dichotomy of political administration-
(i) The function of politicians is policy formulation, whereas that of administration is
implementation of policies.
(ii) According to him, administration is beyond the real sphere of politics.
According to Wilson, “It is more difficult to run a constitution than to frame it.”
Goodnow supported Woodrow Wilson's dichotomy ideology in his book "Politics and
Administration (1900)", hence Goodnow is called the 'Father of American Public
Administration'. Goodnow was also a professor of political science. According to Goodnow,
“Politics express the will of state, while administration executes these wills.”
The first text book of public administration, ‘An Introduction to the Study of Public
Administration (1926)’ was written by L. D. White.
Features of First Phase
(i) Separation of public administration from political science.
(ii) Composition of the first text book of Public Administration.
(iii) Emphasis was laid on administrative reforms in America due to which American scholars
also paid attention towards public administration.
2. Second phase: Golden Era of principles (1927 - 1937)
In this phase, to strengthen politics-administration dichotomy, scholars emphasized on
various principles in administration. There was a competition among the scholars to develop
theories due to which various books and theories of public administration were composed in
this phase which are as follows-
Author Book
(i) Fayol General and industrial management
(ii) Follet Creative experience
(iii) Mooney and Reiley Onward industry
(iv) Gullick and Urwick Papers on science of administration
(v) Willoughby The principles of public administration.
In this phase, various principles of organization were also formed which are as follows-
• Mooney and Reiley - 4
• Urwick-8
• Gullick - 10
• Fayol - 14
Features of Phase II:
(i) In this phase the initial subject matter of public administration was developed.
(ii) Universal principles of public administration were given.
(iii) According to classical thinkers, there are various similarities between public
administration and private administration.
(iv) Classical thinkers regarded public administration as science.

3. Third phase: Era of challenges and criticism (1938 - 1947)
In this phase, theories propounded during the second phase were challenged.
• In 1938: In this phase, first book 'Function of Executive' in 1938 was written by Bernard. In
this, Bernard did not mention any of the principles given by the classical thinkers, hence
the classical thinkers were disappointed because Bernard was not able to carry forward
their legacy or the subject matter.
• In 1939: 'The findings of the Hawthorne Experiments, conducted in factories at a place

called Hawthorne in Chicago, raised questions on theories given by Fayol.
• In 1946: Simon, in his book “Administrative Behavior” and his article “The Proverbs of
Administration”, described the principles propounded by classical thinkers as “idioms and
proverbs”.
• In 1947: In this, three problems were mentioned by Robert Dahl in his book ‘Science of
Public Administration Three Problems’-Values, Behaviour, Environment
4. Fourth phase: Crisis of Identity (1948 – 1970)
In this phase various scholars of public administration returned towards political science.
During this period, public administration facing crisis to maintain its separate identity
deepened. John Gauss in his article ‘Trends in the Theory of Public Administration’ described
public administration as a branch of political science. That is, John Gauss indirectly opposed
the politics-administration dichotomy. Other Public Administration scholars Martin supported
John Gauss. Due to the statements of John Gauss and Martin, various scholars of public
administration moved towards political science.
Scholars of public administration stood with public administration to maintain its identity and
to promote the survival of public administration as a system as well as new concepts and
principles related to it were developed such as - Comparative Public Administration (1952),
Development Administration (1955), Public Choice Theory (1960s) and New Public
Administration (1968).
5. Fifth Phase Emphasis on interdisciplinary studies/era of New Public Administration (1971-

1990)
In this phase, to develop public administration as a discipline, emphasis was laid on making it
interdisciplinary. i.e., the subject matter of other subjects was included in it. Like- Sociology,
Economics, Management, Law, History, Psychology.
The following changes were made in American public administration as a system-
(i) Opposition/rejection of political administration dichotomy.
(ii) Decentralization of power.
(iii) Flexibility in hierarchy.
(iv) Emphasis on public participation.
(vi) Emphasis on relevance, value, change, social equity.

6. Last phase: Public administration and the Era of liberalisation, privatization,
globalization/new public management. (1991 to present date) Liberalization, privatization
and globalization reforms had the following effects on public administration:
(i) Instead of being a “doer or controller”, public administration emerged as a “promoter”,
facilitator and distributor.
(ii) Emphasis was laid on 3E culture in public administration. (economy, effectiveness,
efficiency).
(iii) Reduction in the size of bureaucracy and government. (91st Constitutional Amendment,
2003)
(iv) Emphasis on proper utilization of resources.
(v) Emphasis on entrepreneurial administration and client orientation.
(vi) Coordination established between bureaucratic system and market-based system.
(vii) In 1992, Obson and Gabler gave a 10-point program of new public administration in
“Reinventing Government”.
Development of Public Administration according to Nicholas Henry

These stages were explained by Nicholas Henry in his book (Public Administration and Public
Affairs). It has 6 stages.
1. Politics – Administration Dichotomy (1900 – 1926)

2. Principles of Administration (1927 - 1937)
3. Public Administration as Political Science (1938 - 1950)
4. Public administration as management (1950 - 1956)
5. Public Administration as Public Administration (1971 - 1990)
6. Era of good governance (1991 – till present)
DEVELOPMENT OF PUBLIC ADMINISTRATION IN INDIA

Beginning of Various Diploma Programs-
• In 1937 : the first diploma course in Public Administration was started at Madras University.
• 1941 Diploma started at Allahabad University (with the efforts of Professor Beni Prasad)
• 1943 Diploma started from Lucknow University.
• 1949 Started at Nagpur University in (Diploma).
• In 1950 : the first independent department of Public Administration was opened in Nagpur
University with the efforts of Professor Mahadev Prasad Sharma. Prof. Mahadev Prasad
Sharma is regarded as-
(i) Father of Public Administration in India.
(ii) First professor of Public Administration subject.
Other independent departments of Public Administration subject were opened in the
following universities-
(i) 1959 - Lucknow University
(ii) 1961 - University of Hyderabad and University of Punjab
(iii) 1965 - Rajasthan University, Jaipur
• In 1957 - Administrative Staff College was established in Hyderabad.
• In 1959 - National Academy of Administration was established in Mussoorie by abolishing
I.A.S-Training School, Delhi and Staff College of Shimla, which was renamed as Lal Bahadur
Shastri National Academy of Administration 'LBSNAA' from October 2, 1972.
• Public Administration was included as an optional subject by UPSC in 1986.
• There are 4 monasteries of public administration – Lucknow, Chandigarh, Hyderabad, Jaipur.
Two new institutes were opened for research-
For research and development in the subject of public administration by former Prime Minister
Jawahar Lal Nehru-
• Indian Institute of Public Administration (IIPA) in Delhi in 1954
• Indian School of Public Administration (ISPA) was established in Delhi in 1955. (On the
recommendation of Appleby Commission 1953)
In Rajasthan
• Mukut Bihari Mathur is called the father of public administration in Rajasthan.
• In 1957 – “Harishchandra Mathur Rajasthan State Institute of Public Administration HCM
RIPA” was established in Rajasthan.
• In 1959 - In Rajasthan the first postgraduate batch of Public Administration passed out from
Rajasthan University.
◼◼◼

New Public
5 Administration
New Public Administration
1887 Public After 1887 Characteristics of In the 1960s 1968

Administration American Administration problems emerged Emergence of
in America • Politics administration in America New public
As a system, dichotomy. • Poverty, unemployment Administration
politicians and • Centralization • rapid urbanization.
administrative • Emphasis on hierarchy • Environmental pollution
officials were • Negative attitude • Slums
separated. towards the public
Definition Of New Public Administration

This ideology is a coordinated form of traditional administrative principles and the ideas of the
younger generation which emphasizes on multidimensional changes in American public
administration after 1968.
Reasons for the emergence of New public Administration
1. Socio-economic dissatisfaction and tension in America
The main reasons for this in America were poverty, unemployment, environmental pollution,
slums, increasing urbanization, transportation problems, etc.
2. Honey Report on higher education related to public services - 1967
According to this report, the main reason for the failure of public administration was the non-
establishment of public administration as a subject. In this report, the following
recommendations were made to develop public administration as a subject-
(i) Scholarship for students pursuing M.A. in Public Administration.
(ii) Economic aid and assistance for researchers doing research in public administration.
(iii) Establishment of NIPA for research and development work in public administration.
(NIPA- National Institute of Public Administration)
(iv) Three-tier system for training of public servants – establishment of training centers at
central, state and local levels.
3. Philadelphia Conference on Principles and Behaviour of Public Administration - 1967
Chairman – Charles Worth
The following issues were discussed in this conference.
(i) Rejection of political administration dichotomy.
(ii) Flexibility in hierarchy.
(iii) Decentralization instead of centralization.
(iv) Public administration should provide logical solutions regarding poverty and
unemployment.
(v) Emphasis on client orientation in public administration.
(vi) Administrators should also be given professional training.
(vii) Enhancement in ethical conduct of administrators was also discussed.

4. First Minnow brook Conference – 1968
Chairman - Waldo
In this conference, 4 goals/objectives of New public administration were determined – value,
equity, change, relevance.
5. Contribution to Literature
Waldo - Public Administration in a Time of Turbulence
Frank Marini -Towards a New Public Administration: Minnow Brook's Perspective
Features of New Public Administration

(i) Rejection of political administration dichotomy.
(iii) Favours decentralization in administration.
(iv) It has 4 goals – value, equity, change, relevance.
(v) Emphasis on change in the attitude of public servants.
(vi) Emphasis on public participation in public administration.
(vii) Emphasis on de-bureaucratization/Downsizing of bureaucracy.
(viii) Client orientation and sensitivity in public administration.
(ix) The means to achieve the goals of New Public Administration are 4D – Decentralization,
Debureaucratization, Democratization, Delegation.
(x) Development of humanitarian approach in public administration.
(xi) Emphasis on direct connection of public administration with the society.
(xii) The scope of public administration has expanded.
Goals of New Public Administration

(1) Relevance – New public administration ensures the economic-social relevance of public
servants. That is, public administration has to be made relevant according to the present needs
and circumstances.
(2) Values – New Public Administration emphasizes on making public administration value
oriented. Ethical values should be developed in public administration.
(3) Social Equity – Public administration should establish social equity and justice in the society.
(4) Change – New public administration should bring multi-dimensional changes in the society.
Like in economic, social, political, cultural areas.
Criticism of New Public Administration

(1) On one hand, New Public Administration shows excessive dependence on bureaucracy, while
on the other hand, it is a supporter of downsizing bureaucracy, that is, there is a lack of
uniformity in thoughts.
(2) It lays great emphasis on values.
(3) This concept was developed in America; hence it was not much relevant for developing
countries.

Relevance of New Public Administration in developing countries (with special reference to India).
Characteristics of New Public Relevance in India
Administration
(1) opposition to political Important role of public servants in policy-making
administration dichotomy
(2) Decentralization Constitutional basis was provided to Panchayati Raj
institutions by the 73rd-74th Constitutional
Amendment.
(3) Public participation Efforts for public participation, such as Citizen
charter Act and Right to Information Act.
(4) Flexibility in hierarchy Through e-governance and reduction in hierarchical
levels in the current administration.
(5) Change in attitude of public Recommendations of various committees, like
servants Yugandhar Committee, Chaturvedi Committee
(6) De-bureaucratization Efforts for de-bureaucratization, such as “Golden
Handshake in public sector undertakings” scheme
and lateral entry process.
(7) Client orientation Sampark portal for resolution of public complaints
(8) Transparency in rules and laws Formation of Jain Commission
Minnowbrook Conference
Minnowbrook Conference
1968 (First) 1988 (Second) 2008 (third)
Minnowbrook Minnowbrook Conference Minnowbrook Conference Third

Conference First Second
It was organized during The era of globalization, During the economic recession
economic and social liberalization and and mobile governance in
(1)
turmoil in America. privatization and the time of America.
new economic policy.
Youth participation only Both young and experienced 220 representatives from 13
(2) (Chair: Waldo) participants took place countries participated
(Chairman: Fred Rickson) (Chairman: Rose Mary O'Leary)
Women's participation is comparatively higher Many women became participants
(3)
negligible in this.
In this, 4 goals of New It emphasizes on the 3E of It emphasizes on transparency,
Public Administration economy, efficiency and accountability and responsibility
(4) were decided, such as effectiveness in public in public administration.
value, equity, change, administration.
relevance
It criticizes public It is a supporter of limited It underlined the public welfare
(5)
administration. role of public administration role of public servants.
Only political science Scholars from Political Scholars from almost all subjects
(6) scholars participated. science, sociology, law, participated in it.
policy science participated.
It was radical and It was gentle and polite. It was practical and mature.
(7)
controversial.
◼◼◼

Approaches to Study of Public
6 Administration
Various approaches/concepts of study of Public Administration

Approaches
Traditional Approach Modern Approach
(1) Classical Theory (1) Human Relations Theory/Neo classical Theory
(2) Scientific management (2) Behavioural Theory
(3) Historical Method (3) System Theory
(4) Legal Method (4) Ecological approach
(5) Biographical Method (5) Case study Theory
(6) Subject Matter Method (6) Structural-functional theory
(7) Political Method
Traditional approach/Method/ideology
1. Classical Theory
Supporters: Mooney/Reilgh/Gullick/Urwick/Fayol
Other Names: (a) Mechanistic theory, (b) Administration management theory.
Features:
(i) This theory developed the initial content of public administration.
(ii) This theory emphasized the study of formal organization.
(iii) Emphasis on economic motivation.
(iv) No difference between public and private administration.
(v) Administration/management are similar concepts and are synonymous to each other.
(vi) Classical thinkers emphasize on considering public administration as a science.
(vii) The flow of authority in the organization is from top to bottom.
(viii) This theory is also called “mechanical theory”.
(ix) The main objective of this theory is – “to maximise the production of the organization.”
(x) Formulation of principles in public administration, such as hierarchy of posts, division of
work etc.
(xi) Emphasis on maximum coordination in the organization.
(xii) Considers the employee as an economic man.
(xiii) Monetary incentive is considered as means of motivating employees.

Criticism
(i) There is no place to Human emotions and sensitivities in the classical theory.
(ii) It emphasizes only on monetary motivation whereas non-economic factors also motivate
employees.
(iii) This theory considers employees as machines; hence it is also called mechanical theory.
(iv) This concept emphasizes only on principles.
(v) According to Simon, the principles of classical thinkers are only idioms and proverbs.
(vi) According to Dahl, public administration cannot become a science. (values, environment,
behavior)
Contribution/Relevance/Significance
(i) When public administration was in its initial phase of development, this theory developed
the initial subject matter of public administration.
(ii) Various principles of this theory are relevant even today.
Such - hierarchy, power and responsibility, division of work, coordination.
(iii) The difference between public administration and private administration is continuously
becoming negligible. Liberalization, Privatization, Globalization
(iv) This ideology had encouraged future research and development in public administration.
(v) This ideology enriched the literature of public administration.
(vi) Even at present the division of work is done on the basis of specialization.
2. Scientific management
Supporter – Taylor, Gilbreth
Contribution of Taylor -
(a) Four Basic Rules-(WS-CD)
(i) To develop the work as a science.
Taylor opposed the rule of thumb. For this Taylor did three experiments-
(a) time study
(b) motion study
(c) Fatigue study
(ii) Selection of employees on the basis of scientific methods and techniques.
(iii) Coordination between selected employees and work.
(iv) Division of work among employees on scientific basis.
(b) Mental revolution
Taylor made efforts to increase coordination between management and employees through
mental revolution. According to him, both should make efforts for each other. The
management should provide adequate wages and favourable working conditions to the
workers and the workers should work for maximizing production for the management. This
is also beneficial for consumers.

Adequate salary and
Increase in production management
additional
remuneration,
Bonus etc.
Favorable action
workers and circumstances
Consumers → cheap and quality goods
c. Management by Exception
According to Taylor, workers should solve day-to-day problems at their own level. As an
exception, workers should take these problems to the management. This will save time of
management and the management will be able to concentrate on other important tasks of the
organization. Taylor indirectly opposed labor unions through this principle.
d. Differentiated wage rate
Taylor has thereby supported the “contract system”.
e. Functional Foremanship
Taylor opposed the principle of unity of command through this.
Objectives of Scientific Management

(i) Maximum production instead of limited production
(ii) Mutual harmony not conflict
(iii) Science, not rule of thumb
(iv) Mutual cooperation and not individualism
(v) Development of work efficiency and growth
Features
(i) This theory emphasizes the application of scientific ways and methods in the organization.
(ii) It emphasizes on efficient use of resources.
(iii) It supports efficiency and economy in the organization. Hence it is also called “Neo
taylorism”.
(iv) Scientific management also emphasizes on maximum coordination in the organization.
(mental revolution)
(v) This principle opposes the unity of command of the organization.
(vi) It is also a supporter of “contract system” (differential wage rate).
(vii) It opposes “rules of thumb” and is a supporter of performing every work in a planned
manner.
(viii) It opposes labor unions. Through ‘Principle of Management by Exception’
(ix) The main point of its study is labour.
(x) Its objective is to increase the production of the organization.
(xi) This theory also considers employees as economic humans.
(xii) Division of work should be done on scientific basis.
(xiii) Supporter of monetary motivation.

Criticism
(i) It considers the employee as an Industrial robot.
(ii) Even in this ideology, human values, sensitivities and informal organizations have not been
given place.
(iii) This theory also emphasizes only on economic factors whereas non-economic factors also
motivate employees.
(iv) This ideology is not very relevant for small organizations. (limited financial resources)
Relevance/Contribution/Importance/Usefulness
(i) This theory emphasizes the use of scientific methods and techniques. Even at present,
various scientific methods are being used in public administration. Like -CPM, PERT
(ii) This theory favours recruitment on scientific basis. For example, at present the scientific
approach of the candidates is being tested through CSAT paper (UPSC).
(iii) Supports differential wage rate “contract system”. For example, New Public Management is
also a supporter of the contract method (Public Private Partnership).
(iv) New Public Management after 1990 supports the 3E principle in public administration.
Similarly, scientific management also a supported efficiency and economy.
(v) This theory opposes the unity of command through the principle of functional foremanship.
Unity of command principle is irrelevant even in the present development administration.
(vi) Rewards on success like promotion, salary increase and punishments on failure like
termination, suspension, demotion etc. are relevant even today.
Difference between Traditional management and scientific management
Traditional management Scientific management

Lack of coordination (between Coordination between employees and
(1) management and employees) management (through mental
revolution.)
(2) It emphasizes unity of command. Criticise of the principle of unity of
command.
(3) Authoritarian leadership style Democratic leadership style
(4) Emphasis on rule of thumb Emphasis on use of scientific methods

and techniques
(5) Equal pay system Differentiated wage rate system
Similarity between classical theory and scientific management
(i) Both considers employees as economic human beings.

(ii) Both favours monetary motivation.
(iii) The objective of both is to maximise production.
(iv) Both lack human sensitivities and emotions.
(v) Both favour maximum coordination in the organization.

Difference between classical and scientific management
Classical Theory Scientific management
(1) Emphasis on theory building. Emphasis on use of scientific methods

and techniques
(2) It emphasizes unity of command. Criticism of the principle of unity of
command.
(3) Division of work based on Division of work on scientific basis
specialization
(4) Study from managerial perspective Study of workers or employees
3. Historical Method
This method emphasizes on the study of development and history of administrative

institutions and organizations. In this, the development of administration is studied on the
basis of historical material. In this method, the historical development of the institutions of a
particular field of study, i.e. what the institutions were earlier and what form they are taking
now, is studied. The advantage of this method is that man can benefit from past experience.
This method also studies the changes occurring in administrative organizations over time. The
main sources of its study are historical texts, manuscripts, records etc.
Like- Two works of Prof. L. D. White were published in-
(i) The Federalists (1948)
(ii) The Jeffersonianz (1951)
From these works of White we get information about the federal administration of the first
forty years of the American Republic.
4. Legal Methods
This method emphasizes on studying public administration in European countries like
Germany, France, England, Belgium etc. mainly from the legal or judicial perspective. Two
types of rule of law are prevalent in these countries-
(i) Constitutional law
In this law, politics is mainly studied, the basic subject of which are three organs of the
government. Its main objective is to describe the three organs of government separately
and to comprehensively explain the relationships between them.
(ii) Administrative Law:
Under this law, how the organization of various departments, local units, public rules and
various commissions are formed and how they work is studied.
5. Biographical Method
This method is similar to the historical approach of administration. In the biographical
approach, the experiences of senior administrators and their records of work are studied.
Biographical are actual records of administrative actions, problems and experiences taken by
outstanding administrators themselves or by others. This method emphasizes on the study of
biographies of various administrators and politicians. Through this, scholars of public
administration can learn/take inspiration from the experience of administrators and
politicians. This method is close to the historical method. Like- Under Two Masters - Banerjee,
The Untold Story - Kaul.

6. Subject-Matter Method
This approach focuses on the study of special services and schemes of administration rather
than the study of general techniques of administration. Such as agriculture, health, education,
social welfare.
In countries like India and Britain, this method is being adopted for a long time for the study
of special services like education, defence, police, revenue assessment and collection, financial
assistance etc. In these countries, valuable material for this type of study has been collected
through departmental rule books, code of rules, investigation reports of committees and
commissions etc. Gauss and Walcott published the book 'Public Administration and the
United States Department of Agriculture', which was an important book for studying
departmental or interdepartmental administrative services or programs.
7. Political method
Government fulfills political will through administration. Administration itself is not a end but
a means. The political system of the country affects the quality of administration. If the
political system of the nation is established and stable then the efficiency and results of the
administration are good. According to this concept, public administration implements
policies/laws within a specific political system.
Modern Approach
1. Human relations theory\Neo-classical approach\doctoral method\informal organization
theory.
Supporter: Dixon, Whitehead, Rothlis Berger, Mayo.
Mayo and his colleagues at a place called Hawthrone in the United States (1924). carried out
experiments till 1932, which are known as 'Hawthrone Experiments'.
Features of Human Relations Theory
(i) This theory emphasizes on the importance of informal organization.
(ii) It emphasizes on non-economically motivated study factors in the organisation.
(iii) According to this theory, job satisfaction increases production.
(iv) The main point of its study is 'labor'.
(v) Supports democratic leadership style.
(vi) This theory emphasizes the importance of labor unions.
(vii) According to this, the flow of authority in the organization is from bottom to top.
(viii) This theory rejects the rabble hypothesis and supports the Oven hypothesis.
Note: Rebel Hypothesis → Employees are a bunch of selfish people.
Oven Hypothesis → Management should focus on human workers rather than machines.
According to Mayo, an employee working in an organization is a social human being rather than
an economic human being.
Criticism
(i) According to American Auto Works, Alton Mayo is a cow sociologist.
(ii) It emphasizes only on non-economic motivational factors whereas economic motivational
factors also motivate workers.
(iii) The samples of the first experiment were insufficient for generalization. (Sample of 12 girls)

Relevance/Importance/Usefulness
(i) This concept emphasizes on non-economic motivation factors. Various non-economic factors
are also used in the present administration. like Citations, Maternity Leave, Paternity Leave
(ii) This concept supports labor unions. Even today, labor unions are relevant. like All India
Trade Union Congress, Indian National Trade Union Congress
(iii) Mayo's interview program is the best example of increasing public participation. The present
administration is also trying to increase public participation. Like RTI, Citizen Charter, Social
Accounting
(iv) This principle supports an effective public grievance redressal system. Efforts for this have
also been made in the present administration. Like-Sampark Portal, Public Service Guarantee
Act etc.
(v) Democratic leadership style, considering the employee as a social human being etc. are
relevant even today.
Difference between Classical and Neoclassical Theories
Classical Neoclassical
Emphasis on the study of formal Emphasis on the study of informal
(1)
organization. organization.
Emphasis on economic factors of Emphasizes non-economic factors.
(2)
motivation.
If production increases then job If job satisfaction increases then
(3)
satisfaction will increase. production will increase.
(4) supporter of autocratic leadership style support democratic leadership style
Authority flow in organization → Top to Authority flow in organization
(5)
bottom → bottom to Top
It considers the employee as a “machine”. It considers employees as “social
(6)
creatures”.
This is only close to the Rebble This is close to the oven hypothesis.
(7)
hypothesis.
(8) This is also called mechanical theory. This is also called medical method.
Main point of study: Managerial level. Main point of study:
(9)
Workers/employees.
Supporters Supporters → Dixon Mayo, White,
→Mooney/Reiley/Gullick/Urwick/Fayol Head, Berger
Comparison between scientific and neoclassical management
Similarities
(i) The main objective of both is to maximise production.
(ii) Both emphasize coordination between management and workers. (Mental Revolution and
Interview Programme)
(iii) Both are supporters of democratic leadership style.
(iv) The main focus of study of both is workers/employees.
Differences
Scientific Management Neoclassical Management
Emphasis on study of scientific methods. Emphasis on the study of informal
(1)
organization.
(2) Opposition from labor unions. Support of labor unions.
Emphasizes economic motivational Emphasis on non-economic motivational
(3)
factors. factors.
(4) It considers the employee as a robot. It considers a person as a social human being.
It does not consider human values and It emphasizes on human sensibilities.
(5)
sensitivities.
(6) This is relevant for large organizations. It is relevant for all organizations.
(7) This is called mechanical theory. This is called medical method.
Supporters → Taylor, Gilbreth etc. Supporters → Mayo, Dixon, White Head, etc.

2. Behavioural theory
Supporters → Simon and Bernard
Features
(i) This is an improved form of human relations theory.
(ii) This theory emphasizes the study of human behavior/inner values/thinking of the
employee.
(iii) It emphasizes on “micro study” in public administration.
(iv) According to behaviourist thinkers, public administration should be made a science.
(v) It emphasizes on “interdisciplinary studies” in public administration.
(vi) It also emphasizes analytical studies in public administration.
(vii) It is a supporter of the “acceptance theory of authority”.
(viii) According to this, decision making is the “heart” of the organization.
Relevance/Contribution/Importance/Usefulness
(i) This theory integrated public administration with other subjects of social sciences.
(ii) This theory made public administration a practical subject instead of an ideal subject.
(iii) Decision making is an important process even in modern organizations.
(iv) It encouraged further research and development in public administration.
Comparison between human relations theory and behavioral theory
Similarity
(i) Both emphasize the study of informal organization.
(ii) Both are supporters of the “acceptance theory” to power.
(iii) It is a supporter of “cordial relations between management and employees” in both the
organizations.
(iv) The objective of both is to increase the productivity of the organization.
Human Relations Theory Behavioural theory
It emphasizes interpersonal relationships It emphasizes on the study of
(1) among employees in the organization. behaviour/intrinsic values/mindfulness
of employees.
According to this, decisions should be According to this, decision is a
(2)
value based. combination of facts and values.
It is a supporter of comprehensive study It is a supporter of micro studies in
(3)
in public administration. public administration.
It is a supporter of descriptive study. It is a supporter of descriptive studies as
(4) Supporter-Mayo well as analytical studies.
Supporter-Simon,Bernard
3. System Theory
Supporter→ Simon, Bernard
Features
(i) There are two types of systems in this.
(a) Closed system: It does not interact with the external ecology and environment.
(b) Open system: It interacts with the external environment.
(ii) Every social structure has various system.
(iii) Every system has various sub-systems.
(iv) Each sub-system has a specific function.

(v) Subsystems are interrelated. (Dependent on each other)
(vi) If any sub-system is affected, it will affect the entire system.
(vii) According to this ideology, every open system is influenced by the surrounding
environment.
Such as economic environment, geographical environment, social environment, cultural
environment, political environment.
(viii) According to this principle, every organization should be dynamic.
Importance/Usefulness/Contribution/Relevance
(i) This is the first ideology which has explained the interrelationship between organization
and environment.
(ii) This principle supports collective efforts/coordination in the organization.
(iii) Since it emphasizes on dynamism in the organization. It is a supporter of innovations and
reforms in the organization.
4. Structural functional approach
Supporters → Gabriel Almond, Riggs, David Apter
Features
(i) Every social system has different structures.
(ii) Structures are generally of two types –
(a) Direct structure – which is visible. Like- College School.
(b) Indirect structure – structure which is not visible. like . Authority, teaching skills of the
teacher.
(iii) Function means the objectives and goals to be achieved by the organization.
There are also two types of functions.
(a) Direct functions: The objectives and results which the organization wants to achieve.
(b) Latent function: Undesirable results.
(v) Every structure has certain functions.
(vi) Structure and function are complementary to each other.
(iv) Structure and function are interrelated.
5. Case study method
This theory popularised around 1930, after which this approach gained popularity. Case study
method is America's special contribution to public administration. Under this approach, a
particular problem is studied from different perspectives. It studies the administrative
problem by considering it as a phenomenon.
6. Ecology Methods
Ecological method is new and modern in public administration. The credit for using this
approach for the first time goes to I M Gauss. The problems of public administration should be
studied keeping in mind the civic attitudes and specific problems of the people and their
environment. Riggs, based on his studies in Thailand and the Philippines, gave examples of
how the environment affects administrative systems.
◼◼◼

Power, Authority, Legitimacy,
7 Responsibility and Concepts
of Delegation
Power
Power means the ability of a person to influence the behavior of another person or a group of
other people as per his wish.
Characteristics of Power
(i) Power is a means to achieve one's objective.
(ii) There are three sources of power-
• Force can be defined as imposing one's will on another either physically or on the basis
of fear.
• Influence- This is the ability to influence other actions and decisions.
• Authority- The legal form of power is called authority, but in another sense authority is
also the source of power.
(iii) Power is personal right and ability and becomes Authority after attaining legitimacy.
(iv) Other persons can be influenced by power.
(v) The extended form of power is Authority.
(vi) Power is also one’s internal abilities.
(vii) Power depends on its use.
(viii) In the absence of propriety, power becomes a weapon of oppression and exploitation.
Therefore, propriety is its main characteristic.
(ix) Power is the right by which a person can influence an individual or a group of individuals.
(x) This is a personal right.
(xi) Power can take many forms. Like- political power, religious power, ideological power
Authority
Authority is the right to give orders and the power to get them Obeyed. When power gets
legitimacy, it transforms into Authority.
Power + legitimacy = Authority
• According to Davis – “Authority is the right to take decisions and give orders.”
Characteristics of Authority
(i) Authority is the expanded form of power.
(ii) Centralization of authority is always at a high level in the organization.
(iii) The flow of authority is from top to bottom in the organization.
(iv) There is delegation of authority in every organization.
(v) Authority in the organization ensures effective direction, coordination, supervision and
inspection.
(vi) This is a right related to the organization.
(vii) Coordination is established between superiors and subordinates through authority.
(viii)Authority can be changed (more/less).

Types of Authority
Line authority - This authority is the authority that gives orders and takes decisions. It is the final
authority that directs other persons. Like government ministries and departments.
Staff authority - This authority is a service authority under which the staff employees do the work
of advising the line officers. Like- NITI Aayog and Rajasthan Public Service Commission.
Functional authority – This authority takes decisions, but the authority to take decisions is limited
to a particular action. Therefore, it is also called ‘Limited Authority’. For example, the authority of
Rajasthan Public Service Commission in matters of promotion.
Types of Authority According to Max Weber

Traditional authority – Orders of a higher officer are valid because they are based on some
tradition. In traditional Authority, the king's son becomes the king and this hereditary system
continues. Like- North Korea and United Arab Emirates.
Charismatic authority – where the general public or subordinates follow someone's orders
because of his charismatic and idealistic personality and not because of his position or rules.
Mahatma Gandhi, Jawahar Lal Nehru, Indira Gandhi, Marshall Tito, Nasser etc. are such
personalities.
Legal authority - When an order is accepted for implementation on logical, legal and
constitutional grounds, then it is called legal authority. Like- authority received by Collector, Sub-
Divisional Officer etc.
Sources of Authority
1. Formal sources: Constitution and rules and regulations made by the government.
2. According to behaviourist thinkers: There is acceptance of subordinates.
3. According to competence ideology: The orders of a competent person are accepted by the
subordinates.
4. Delegation and decentralization.
Function of Authority
(i) Authority ensures decision making in the organization.
(ii) Establishes coordination in the organization.
(iii) Authority makes division of work possible in the organization.
(iv) Authority establishes discipline in the organization.
(v) Authority ensures accountability in the organization.
Importance of Authority
(i) Authority ensures effective coordination, inspection, direction and supervision in the
organization.
(ii) The Authority gets the work done from the subordinates.
(iii) Effective discipline can be established in the organization by authority.
(iv) Authority is also a medium to motivate subordinates.

Limitation of Authority
(i) Legislative Control
The administrative officers of every organization are directed and controlled by the
legislature. Laws are made by the legislature. In this way, the authority of administrative
officers is controlled by the law making of the legislature.
(ii) Executive Control
Public administration works as a part of the executive over which the executive controls in
various ways through appointment, removal, transfer, disciplinary action, suspension,
political direction, delegated legislation, conduct rules etc.
(iii) Judicial Control
Judiciary controls the misuse of law by administrative officials. Judicial review, judicial
activism, public interest litigation.
(iv) Control by Media and Press
Abuse of authority by administrative officials can be controlled through media, mass media
and newspapers and magazines. Like criticism of officers and employees, sting operation.
(v) Technical Limitation: Lack of technical knowledge among higher officials.
(vi) Biological Limitation: Giving such orders by superiors which puts the life of the subordinate
in danger.
(vii) Economic Limitation: If the subordinates suffer financial loss due to the orders of a superior,
then they may refuse to accept the orders.
(viii)Environmental Hazards: flood, tsunami, earthquake, cyclone, fire etc.
Difference Between Power And Authority
Power Authority
Power is the right to influence a person Whereas Authority is the right to give orders
(1)
or a group of people. and the power to get them followed.
It has a legal form. (After power gets

(2) It does not have a legal form.
legitimacy, it gets converted into authority.)
Its existence is possible without

(3) Its existence is not possible without power.
Authority.
(4) Power cannot be delegated. Delegation of Authority is possible.
(5) Power is not linked to accountability. With Authority comes accountability.
(6) There is lack of discretion in power, there is discretion in Authority.
(7) Narrow and negative concept; Broad and positive concept.
(8) quantitative Qualitative
(9) There is no legitimacy in this there is legitimacy in this

Legitimacy
Legitimacy
• This word originates from the Latin word Legitimus Which means according to the provisions
or lawful or statutory. To maintain order in society and maintain public confidence in the
governance system, legitimacy is needed as a link between power and authority.
• Legitimacy is a psychological element which appears as a value-oriented trust and agreement
between the ruling party and the ruled party.
Max Weber- “The public's belief in the right to rule is called belief in legitimacy.”
Sources of Legitimacy
These are the sources which have been accepted by the public. Which are as follows.
(i) Tradition: According to MaxWeber, tradition is the basis of Legitimacy.
(ii) Ideology: Ideology presents those moral and political values and standards on the basis of
which any governance system gets legitimacy. Like liberal, socialist.
(iii) Miraculous/charismatic qualities: The charismatic qualities of a leader are the main sources
of his legitimacy.
(iv) Constitution and logical law: Constitution and law are the sources of Legitimacy in modern
times which are rational and pragmatism.
Features of Legitimacy:
(i) Legitimacy is the link between power and authority.
(ii) Legitimacy is not subjective but reliable.
(iii) Legitimacy is certification towards a government system.
(iv) Power can be transformed into authority through legitimacy.
(v) Legitimacy is the main characteristic of democracy.
(vi) For legitimacy, public trust and participation in governance is essential.
(vii) For legitimacy, it is necessary to follow the rules and laws.
(viii) It makes governance rational.
Importance/Function of Legitimacy
(i) Social acceptance: When any political system gets the acceptance of the people of the society
living in the state, then that government system becomes effective. The governance system
gets this acceptance through legitimacy.
(ii) Felling of trust: Public can be controlled on the basis of violence, punishment or fear but this
is inappropriate from the moral point of view. Through legitimacy they develop a sense of
moral trust in power.
(iii) Conversion of power into authority: The important function or importance of legitimacy is
that through it power can be converted into authority.
(iv) Confidence in rulers: It creates confidence in the rulers.
(v) Basis of political system: Legitimacy provides stability to the Political system by making the
rule rational.
Relationship of Legitimacy with Power and Authority
Power + Legitimacy = Authority
• Legitimacy acts as a link between power and authority. In a political order one can forcefully
rule by force only by using power but authority cannot be established. Power attains the status
of authority only when it acquires legitimacy in the eyes of the governed.
• When the proximity of power and authority increases then it can become autocratic and when
the harmony between power and legitimacy increases then it becomes rational and popular.
Responsibility
• Responsibility is the obligation of a person to do or not do any work, to do or not to do it in a
particular way. It means the obligation of a person to fulfill his duties. This obligation need not
be punitive in nature.
• According to Theo Hamann – “Responsibility is a restriction on the exercise of one's authority
over a subordinate.”
Characteristics of Responsibility
• There is a close relationship between responsibility and authority.
• Responsibility acts as self-control and balance of authority.
• Responsibility creates a sense of pressure to performance.
• Responsibility is related to the personal and moral qualities of a person.
• Responsibility is a means of duties on the basis of which action can be taken against any
employee for his responsibilities.
• Responsibility is a means of fulfilling the obligation of the personnel.
• Responsibility prevents subordinates from being autocratic.
Difference Between Responsibility And Accountability
Responsibility Accountability
(1) It is personal or moral. There is a legal obligation in this.
This applies only to military
This applies both to personal life and
(2) administration and general
military administration.
administration.
It is related to organizational
(3) It is related to self-consciousness.
consciousness.
(4) It is associated with power. It is related to authority.
Delegation
Transferring tasks by higher authority to subordinates due to excess workload or lack of expertise
is called delegation. Such as - transfer of work by the Secretary to the Joint Secretary, handing over
of work by the Sub-Divisional Officer to the Tehsildar.
Mooney - Handing over certain rights by a higher official to the lower officials but keeping the
right of control with himself.
Features of delegation
(i) There are three elements in delegation.
(a) Work - Assigning work to employees as per their capacity, capability and requirement.
(b) Authority – Handing over authority by superiors to subordinates.
(c) Responsibility – To fix accountability of subordinates towards superiors.
(ii) Delegation has a twofold nature. For example, both officers and subordinates have authority.
(iii) Delegation is generally of temporary nature.
(iv) This is the internal process of the organization.
(v) This is a narrower concept than decentralization.
(vi) It is related to the hierarchical principle of organization.
(vii) In this there are two parties, the delegator (the one who hands over the responsibility) and the
delegate (the one to whom the responsibility is handed over).
(viii)Main objective – to reduce the workload of senior officers and to gain expertise in work.
(ix) Delegation generally occur in every organization.
(x) Delegation can be increased or decreased, that is, it can be changed.
Types of Delegation
(i) Types of delegation on the basis of direction
• Downward delegation: In this, delegation is from a superior to a subordinate.
Senior officer
Subordinate
• Upward delegation: In this, delegation is from subordinate to superior.
Senior officer
Subordinate
• Parallel delegation means mutual delegation between officers of the same level.
• Inter-departmental delegation means delegation between different departments.
(ii) Written and oral delegation
If the transfer of work, responsibilities and duties by a superior to subordinates is done in
writing, then it is called written delegation.
If a superior transfers his/her functions to subordinates verbally, it is called verbal delegation.
(iii) Direct and indirect delegation
If the transfer of work, duty and responsibility is done directly by the superior officer to the
subordinates i.e. there is no mediator between them then it is called direct delegation.
If there is an mediator in the delegation process between superiors and subordinates, then it is
called indirect delegation.
(iv) Formal and informal delegation
If delegation of work, responsibilities and duties is done by superiors to subordinates on the
basis of certain rules, then it is called formal delegation.
If work is transferred to subordinates on the basis of convention, it is called informal
delegation.
(v) Permanent and temporary delegation
If tasks are assigned permanently by higher officials, it is called permanent delegation.
If superiors delegate their works duties to their subordinates for some time, it is called
temporary delegation.
(vi) General and specific delegation
If the entire work is handed over to subordinates by superiors then it is called general
delegation.
If superiors assign specific work activities to subordinates, it is called specific delegation.
(vii) Conditional and unconditional delegation
In conditional delegation, some conditions are imposed and it becomes necessary for the
subordinate to fulfill those conditions. In unconditional delegation, the subordinate has
complete autonomy in taking decisions and working.

Objectives/reasons/needs/benefits of delegation
(i) To reduce the workload of senior officers.
(ii) To acquire expertise in tasks.
(iii) To develop managerial qualities in subordinates.
(iv) For the development of administrative leadership in the organization.
(v) To save the time of the senior officer and the financial resources of the organization.
(vi) To motivate the subordinates.
(vii) To solve the technical problems of the organization.
(viii)Medium of learning for subordinates.
(ix) After delegation, the superior can concentrate on other important activities of the
organization.
(x) This develops team work in the organization and cordial relations develop between superiors
and subordinates.
(xi) Helpful in increasing the area of control of the superior.
Hurdles in Delegation
(i) Small size of the organization.
(ii) Lack of resources (human/economic) in the organization.
(iii) Lack of coordination between superiors and subordinates.
(iv) Lack of proper training system among subordinates before delegation.
(v) If the senior officer is arrogant/egoistic/emotional.
(vi) Lack of self-confidence among subordinates.
(vii) Distrust of superiors towards subordinates.
(viii) Communication difference between superiors and subordinates.
(ix) Failure of past delegation and negative mentality of subordinates.
Ideal situation for Delegation/Features of Ideal Delegation

(i) Delegation should always be in written.
(ii) The reward system should be linked with the delegation process.
(iii) The principle of unity of command should be followed in the delegation process.
(iv) Proper training arrangements for subordinates.
(v) To ensure proper management of resources in organizations.
(vi) There should be clarity of communication in the organization.

Difference Between Delegation and Decentralization
Delegation Decentralization
This is the internal process of the This is the external process of the
(1)
organization. organization.
(2) Accountability of superior, accountability of subordinate.
Objective - To reduce the workload of Objective - To empower the subordinate by

(3) the superior officer and to bring giving him authority and autonomy or
expertise in the work. decentralization of powers.
The power to make rules and laws the power to make rules and laws belongs
(4)
belongs to the superior, to the subordinate.
Transfer of power and functions from Transfer of power and functions from
(5)
individual to individual organization to organization
Delegation is done through both written

(6) Generally, it is done in written.
and verbal methods,
(7) It is of temporary nature It is of permanent nature
It is a broader concept than delegation.

It is narrower than decentralization.
Such as transfer of powers and functions
(8) Such as- handing over of functions to
by the state government to Panchayati Raj
SDM by Collector
institutions.
It happens from top to bottom and

(9) It happens only from top to bottom.
bottom to top,
(10) This is a narrow concept A Broad concept.
(11) Generally from one person to another, from one organization to another.
(12) Public participation is less, public participation is more.
(13) Less autonomy, more autonomy
◼◼◼

Principles of Organization:
8 Hierarchy, Span of Control
And Unity of Command
Organization
• Organization : A group of different people or institutions to achieve a certain objective is called
Organization.
• Organization is a structure of human cooperation and relationships to achieve certain
objectives in which all employees work according to their tasks and responsibilities.
There are Two Types of Organization-

(i) Formal organizations: These are such organizations which operate on the basis of certain laws,
rules and principles. There is a definite hierarchical structure in this organization for which the
principle of proper channel is followed.
(ii) Informal Organizations: Those organizations which give importance to common interests,
human feelings and social values instead of following complex principles are called Informal
Organizations. There is flexibility in hierarchy in these organizations, hence they are also
called open organizations.
Difference Between Formal and Informal Organization

Formal organization Informal organization
(1) In these, decisions are taken after Decisions are taken according to the
careful consideration. situation.
(2) They work on the basis of certain rules They work on the basis of social and
and principles. human circumstances.
(3) They are large in size. These are small in size.
(4) These are permanent. These are temporary.
(5) These are statutory. They are social.
(6) In these the flow of power is from top In these the flow of power is from top to
to bottom. bottom as well as bottom to top.
(7) In these the members have to In these, the members work as per their
discharge their responsibilities as per wish and discretion.
their authorities.
(8) There is rigidity and complexity in this There is flexibility in the rules.
organization.
(9) In these, hierarchy is followed. Hierarchy not necessarily followed
(10) These levels cannot be crossed. These levels can be exceeded.
Basis of Organization
Luther Gullick has given four bases of an organization.
(i) Purpose (ii) Process (ii) Person (iv) Place
Hierarchy
Hierarchy: Hierarchy is the network of superior-subordinate relationships through which the
tasks, responsibilities and duties of employees are determined. This is found in every
organization.
According to Mooney – “Hierarchy is a universal phenomenon.”
DM
ADM
SDO
TDR
NTDR
RI
PATWARI
Hierarchy of revenue department employees in a district

Mooney and Reiley named it a scalar process.
Henry Fayol named it a scalar chain.
Principles of Hierarchy
There are following three principles of Hierarchy-
1. Principle of Proper Channel
According to this principle, level cannot be imposed in the hierarchy, that is, work is
transferred from one hierarchy to another through a proper channel.
2. Principle of Unity of Command
Subordinates in an organization should receive orders from a single superior. Due to which
there is unity of command in these orders.
3. Principle of Correspondence
According to this principle, subordinates should be given authority according to their
responsibility and accountability.
Characteristics of Hierarchy
(i) It is the root/soul of all other principles.
(ii) Through this, the tasks and responsibilities of the employees are ensured.
(iii) Flow of orders is always from top to bottom.
(iv) It is a pyramidal structure.
(v) In this “proper channel” principle is followed.
(vi) The number of employees increases as we move from top to bottom in the hierarchy.
(vii) Power and responsibility decrease as one moves from top to bottom in the hierarchy.
(viii) Through this, information regarding superior-subordinate relationships is obtained.
(ix) In this principle, the employees are co-connected to each other.
(x) This is the chain of responsibility between who give orders and follow them in the
organization.
(xi) In this, command and control is from top to bottom and accountability is from bottom to top.
(xii) It makes the organization multi-level.

Types of Hierarchy
According to Pfiffner and Sherwood
(i) Work based hierarchy
In this, the hierarchy of posts is determined on the basis of tasks and responsibilities of the
employees.
(ii) Pay based hierarchy
In this, hierarchy in posts is determined on the basis of salary/pay-scale.
(iii)Skill based hierarchy
In this, hierarchy is determined on the basis of skills.
(iv) Rank based hierarchy
Hierarchy is determined by ranks. Like- Military administration.
Importance/Advantages/Merits of Hierarchy
(i) Hierarchy establishes relationships among employees in the organization.
(ii) Through this, superior-subordinate relationships are identified in the organization.
(ii) It makes delegation/decentralization possible in the organisation.
(iv) It develops administrative leadership in the organization.
(v) This principle is the soul of other principles. (Dependence of other principles on this
principle)
(vi) Motivates the subordinates in the organisation. (due to delegation/decentralization)
(vii) It is helpful in the promotion of employees in the organization.
(viii)Ensures clarity of communication in the organization.
(ix) Develops uniformity/co-operation/accountability in the organization.
(x) The principle of unity of command is linked to hierarchy.
(xi) It increases the efficiency and effectiveness of the organization.
(xii) It increases departmentalization in the organization.
M.P. Sharma: “Hierarchy is the thread by which all the parts of the organization are beaded
together.”
Disadvantages of Hierarchy
(i) Red tapism (unnecessary delay in works)
(ii) The success/failure of the organization depends on the head or senior officer.
(iii) Disinterest in work among subordinates. (always received orders from superiors)
(iv) This makes the organization conservative/rigorous.
(v) Lack of innovations and reforms in the organization.
(vi) Increased superiority among superiors and inferiority among subordinates.
(vii) There is excessive rigidity and complexity in the organization. Like the Pearl Harbor disaster
of 1945 AD.
(viii)The structure of the organization becomes overextended.
Negro – “Hierarchy in the organization gives importance to formal relationships and ignores
informal relationships.”
Ways to Strengthen Hierarchy
(i) Use of information technology (IT) in the organization. Like- fax, e-mail, networking
(iii) Reduction in the levels of hierarchy.
(iv) Subordinates should also be given importance in the organisation.
(v) Fayol's Gangplank principle is also a logical solution to the shortcomings of hierarchy.
(vi) Davis and Lawrence's matrix organization (all employees have equal duties and
responsibilities).

Fayol's Gangplank Theory
(i) It is a horizontal communication system in which employees can communicate with in the
department or outside if they are on the same rank.
T
Provided that they will have to inform this to the
competent authority. M R
(ii) After the communication, the decisions/ discussion
N S
taken by the subordinates will also have to be B
O
informed to the competent authority.
F U
(ii) This principle prevents unnecessary delays in the
Gangplank
organization.
G C
Davis and Lawrence's Matrix Organization
This organization was first mentioned by Davis and Lawrence in their book Matrix (1977).
• It is also called “umbrella organization”.
• The main feature of this organization is that all the employees have equal powers and
authority.
• This organization revolves around information sharing.
• Superior-subordinate relationships are not found in these organizations.
Unity of Command
Subordinates in an organization should take orders from only one superior, this is called Unity of
Command.
This principle has been taken from military administration.
Fayol – An employee should be given orders only from one superior.
Features of Unity of Command
(i) This is also related to the hierarchy principle.
(ii) This principle is in support of one officer-one subordinate.
(iii) It clarifies the power and leadership in the organization.
(iv) It ensures accountability of subordinates towards superiors.
(v) It is a supporter of the principle of one person, one boss.
(vi) According to this, employees should receive orders from one place.
(vii) This principle has been taken from military administration.
(viii) It prevents multiplicity/complexity of orders in the organisation.
Importance of Unity of Command
(i) It ensures effective control and discipline in the organization.
(ii) It ensures elimination of conflicts in organizations, effective supervision, better
communication.
(iii) It removes doubt, apprehension and confusion among the subordinates.
(iv) It ensures the accountability of subordinates towards superiors.
(v) It ensures effective coordination and cooperation between subordinates and superiors.
(vi) It prevents delay in work and decisions in the organization.
(vii) Reduces disputes, fights and quarrels among the employees of the organization.
(viii) It reduces the contradictions in the organization.
(ix) It makes the organization united.
(x) It clarifies the authority/leadership in the organization.

Factors Affecting Unity of Command
(i) Development Administration: Development Administration emphasizes on multi-
dimensional changes in the society. As, it receives orders from various places.
(ii) Levels of Hierarchy: There are different levels of hierarchy in an organisation. Hence there
can be multiplicity of orders.
(iii) External Factors: The organization is under pressure from many external factors like
environmental factors, economic factors, social factors etc.
(iv) Increasing Importance of Specialization: To increase specialization in the organization, the
number of experts has to be increased. Therefore, orders are received from both generalists
and experts.
(v) Functional Foremanship Principle: This principle renders the principle of unity of command
irrelevant. It emphasizes that orders given by various supervisors or experts in the
organization lead to specialization, effectiveness and efficiency.
(v) The relevance of this principle has also reduced due to subsidiary institutions, private sector
cooperation, PPP etc.
Relevance
(i) Taylor has refuted the theory of unity of command through the theory of functional foremanship.
Functional Foremanship
Implementation of
Policy Making Policies
 
(i) Route clerk (i) Gang Boss
(iii) Time and Cost clerk (ii) Speed Boss
(iii) Instruction letter clerk (iii) Repair Boss
(iv) Disciplinary Officer (iv) Inspector
workers
Workers in a factory receive orders from 8 different places. Hence this principle is impractical in
the factory.
(ii) This principle is impractical even in general administration.
Chief Minister Office
Additional Chief Collector Chief Secretory

Secretory
Divisional Commissioner
Disadvantage/Criticisms/Shortcomings of Unity of Command
(i) Increase in feeling of dictatorship and superiority.
(ii) Leadership skills are not developed among the subordinates.
(iii) According to Taylor, it is military type foremanship.
(iv) Creates excessive rigidity and complexity in the organization.
(v) Makes the organization rigid and conservative.
Herbert Sahman - “This is a false theory.”
Span of Control
Span of control is the limit within which a superior can control subordinates efficiently and
effectively. This is the control area of the higher authority.
Ziauddin Khan – “The span of control is the number of work units which a superior can manage
himself.”
Different Views on Span of Control
(i) Hamilton – 3 - 4
(ii) Fayal/Gracunas – 5 - 6
(iii) Devraj – 8 - 10
(iv) Ramaswami Shekharan - 12
According to Urwik-
High level, 4 - 6
Level of responsibility
Middle level (6 - 8)
Low level (8 - 12)

(v) According to various scholars, the ideal number of subordinates – Urwick-4, Graciunas- 5
Characteristics of Span of Control
(i) It is related to the hierarchical principle of organization.
(ii) Its objective is to complete quality work in the organization.
(iii) This is the sphere of authority of higher officials.
(iv) It is influenced by various formal and informal factors. Like nature of work, place,
personality.
Factors Affecting Span of Control

Formal Factors
(i) Nature of work
If the nature of work of superior and subordinates is similar, then the span of control of the
superior will always be greater.
If the nature of work is uneven, the span of control will be less.
(ii) Place
If the superior and the employee work at the same place, the span of control of the superior
will always be higher.
If there is geographical distance between superiors and subordinates, the span of control will
be less.
(iii) Time or experience
Age of the organization: If the organization is old, the span of control will be greater and if
the organization is new, the span of control will be less.
Experience of the superior: If the superior is experienced, the span of control will be greater
and if the superior is new in the organization, his control will be less.

(iv) Facility of delegation
If there is facility of delegation in the organization, the span of control will always be greater.
If there is no facility of delegation in the organization, the span of control will be less.
(v) Modern Techniques of Supervision
If the superior uses modern supervisory techniques (CCTV fax, e-mail, etc.), then control will
be greater.
If the superior uses traditional methods of supervision (inspection, reporting) then the span of
control will be less.
(vi) Levels of hierarchy
As the levels of hierarchy increase, the span of control will decrease.
If the levels of hierarchy are reduced then the span of control will increase.
Informal Factors
(vii) Personality: If a senior officer is hard-working, efficient and intelligent, his span of control
will be greater.
If a senior officer is idle or lazy, the span of control will be less.
(viii) Family Circumstances: If the family circumstances of a senior official are positive, his span
of control will be greater. If family circumstances are negative, the span of control will be less.
Importance of Span of Control

(i) Effective control over subordinates.
(ii) Establishment of effective discipline in the organization.
(iii) Makes the organization time-oriented.
(iv) Due to this, quality work is accomplished in the organization.
(v) It increases productivity and work performance in the organization.
(vi) This maintains clarity of communication in the organization.
Gracunas' Contribution In The Span of Control

• Gracunas gave his views in the span of control in the article “Relationship in Organization”
(1933).
• According to Gracunas, the area of control is the “area of attention” of the superior.
• The superior has to control the relationships between subordinates rather than the number of
subordinates.
• Three types of relationships are established between subordinates. which are as follows-
(i) Direct relation → n
(ii) Direct group relations → n(n-1)
(iii) Cross relations → n (2(n –1) – 1)
(here n= number of subordinates)
formula of total relations (N) formed between subordinates
2𝑛
N = 𝑛( + 𝑛 − 1)
2
That is, if the number of subordinates is 5 then the number of relationships is 100.
If the number of subordinates is 6 then Number of relationships (222)
Note - While the number of subordinates increases arithmetically, the number of relationships
formed between subordinates increases geometrically.
Reason for Increase in Span of Control

(i) Techniques and methods of modern supervision-
(a) Automated Machines: CCTV, Biometric, Fax, etc.
(b) Various methods: GPS video conference, e-mail etc.
(ii) Presence of experts and professional organizations.
(iii) Influence of staff organizations/think tank. Like- NITI Aayog.
(iv) Reduction in the levels of hierarchy.
(v) Entry of trained employees into the organization.
◼◼◼

Functions of
9 Management
Functions of Management
Planning Organising Staffing Directing Coordination Controllin

g
Planning
• Planning or planning is an important function of management which includes determining
objectives and ensuring the methodology to achieve them.
• For planning, it is necessary that the manager is aware of the environment of his organization
and also has the ability to make predictions.
• The manager being a good decision maker is also a basic requirement of planning.
Many steps are involved in the process of planning-
(i) The manager must clearly define the objectives.
(ii) After this, alternative strategies to achieve the objectives of the plan should be
identified/classified.
(iii) After evaluation they should decide on the selection of the best strategy.
(iv) Keeping in mind the possible circumstances, effective implementation of plan is ensured.
(v) The manager should constantly evaluate the success of his plan.
(vi) In case of deviation from the original plan, corrective measures should be adopted.
Organising
• This is a process which ensures systematic utilization of various resources within the
management.
• It is the process of achieving results by coordinating and combining human, physical,
financial and information resources.
• In planning, management determines what is to be done in the future.
• In Organising, the methods and means which are to be adopted to in order to achieve the
set goals through planning are determined.
• Organising establishes and maintains logical relationships between human, physical,
financial and information resources.
Staffing
Following activities are carried under stuffing.
1. Forecasting the need for Personnels/Human Resources
Management estimates the need for personnel before starting any work. Two things are taken
into account while estimating the workforce. First, is the need of personnel and secondly the
number of personnel required.
2. Recruitment
It is the process of finding potential employees and attracting them to the organization.
3. Selection
The most suitable candidates are selected among candidates who have applied in the
organization for particular post /job role.
4. Appointment and orientation
Under appointment, the selected person is posted at the right place according to his ability
interest and need of the organization.
5. Training and skill development
Training means providing knowledge and skills to employees in a systematic process for a
specific job in an incubated environment.
6. Performance Appraisal
In this stage of staffing, the qualifications of the personnel are evaluated according to the
actual working conditions.
7. Promotion
He is given higher position, higher salary, more responsibility etc.
8. Compensation
Reimbursing the loss caused to an employee during work is called compensation.
9. Layoff
In this stage the employee is removed from his work.
Directing
• Under this, the manager gives orders, guidance and supervision to the performing of the
personnel to achieve the pre-determined goals of the organization. Direction is called the
Centre of the Management process.
• All those activities under management, which are done to encourage the personnel to do
effective and efficient work, come under Direction.
Coordination
• Coordination means - establishing proper relationship and adjustment among the activities
and functions of the organization.
• Coordination is important in any organization in following ways:
(i) Due to coordination, a feeling of cooperation is created among the employees and it
becomes possible to ensure the achievement of common goals among them.
(ii) Possibility of conflict between units and employees via coordination is reduced.
(iii) Coordination is also necessary to prevent duplication in the work of units and employees
of the organization.
(iv) Due to coordination, the aspiration to gain wider authority is limited among officers.
(v) Coordination increases the efficiency of employees so that wastage of their capacity can be
prevented.
Control
• The basic objective of controlling is to ensure that performance remains in accordance with
standards.
Control involves the following three steps:
(i) To determine the standards of performance.
(ii) To compare actual performance with standards.
(iii) Adopting corrective measures when required.
• The managerial function of controlling is related to the organizational work-based activities of
the subordinates. The work of the personnel should be towards achieving the objectives of the
organization. Control does not include controlling the behaviour of the personnel or making
changes in it.
◼◼◼

Corporate
10 Governance
Corporate Governance: The word corporate is derived from the Latin word “corpus” which
means body. Therefore, corporate governance is the sum of those principles, ideals, values which
inspire any corporate sector or private body to remain responsible, accountable, transparent and
impartial. Corporate governance is a code of conduct developed to ensure transparency,
accountability, and responsibility.
• The main objective of corporate governance is to protect the interests of shareholders and
stakeholders.
• The first detailed explanation of this concept was given by Augustus Burley and C. Means
in their book ‘The Modern Corporation and Private Property’ (1932).
• This concept was again popularized by Britain's 'Cadbury Committee' (1992).
Reasons for The Rise of Corporate Governance
(i) Impact of globalization/liberalization/privatization.
(ii) To ensure protection of rights of shareholders and stakeholders.
(iii) To prevent scams and misconducts in the corporate sector.
(iv) Inspiration from the reforms in bureaucracy.
(v) Impact of information technology.
Company or Corporate
Regulatory framework Stakeholders
Regulatory framework Stakeholders

(1) Share holder Employee
(2) Board of directors Supplier
(3) Chief Executive Officer (CEO) Creditor
(4) Management Consumers and Community
Features of Corporate Governance
(i) It emphasizes on transparency, accountability, responsibility, fairness etc. in the corporate
sector.
(ii) The main objective of corporate governance is to ensure protection of the rights of
shareholders and stakeholders.
(iii) Corporate sector is also a medium for public welfare.
(iv) It supports the development of rules of conduct in the private sector.
(v) This concept is relevant for public sector undertakings.
(vi) It emphasizes on the development of ethical values in the private/corporate sector.
(vii) Corporate governance is a multidimensional concept.
(viii)This concept emphasizes environmental protection by the private sector.

Importance of corporate governance
(i) It ensures accountability/responsibility/impartiality etc. in the corporate sector.
(ii) Prevents scams/malpractices in the corporate sector.
(iii) This increases the credibility of the corporate sector.
(iv) It is helpful in increasing investment in corporate.
(v) It increases the flow of international capital.
(vi) It ensures environmental protection by the corporate.
(vii) It is a medium of public welfare and socio-economic change.
(viii) It develops moral values in the private sector.
(ix) It ensures accountability of the corporate sector as well as public sector undertakings.
(x) The public trust in the companies is maintained.
(xi) There is efficiency in the management of companies.
Principles of Corporate Governance
(1) Principle of rights of shareholders'
(i) Participation in decisions making
(ii) Participation in profits
(iii) Information should be shared by the company/corporate to the shareholders.
(2) Principle of equitable treatment of shareholders

Equal treatment in profit distribution
(3) Principle of rights of stakeholder
(i) Role in decisions making.
(ii) Legal rights should be provided by the management.
(4) Principle of responsibility of the board of directors
The board of directors should be accountable to the shareholders.
(5) Principle of disclosure/transparency
According to this principle there should be transparency in the following-
(i) Appointments to the Board of Directors.
(ii) Selection of CEO.
(iii) Appointments to the Audit Board.
(iv) Salary of employees.
(v) Formation of committees.
(vi) Company's profit
(6) Principle of integrity and good character
Rules of conduct should be made to develop integrity/ethical values in the corporate sector.

Indian efforts to develop corporate governance
(i) Formation of various committees

(a) Onkar Goswami Committee (1997)
(b) Kumar Mangalam Birla Committee (1999)
(c) Naresh Chandra Committee (2002))
(d) Narayan Murthy Committee (2003)
(e) Uday Kotak Committee (2017)
(ii) Provision of Corporate Social Responsibility (under Section 135) of the Company Act, 2013.
Through this, the corporate sector is playing an important role in public welfare works.
(iii) Establishment of SEBI - (Statutory status since 1992) It protects the interests of
investors/shareholders.
(iv) Establishment of ICAI (Institute of Chartered accountant of India) It prepares
accounting/auditing standards for companies/corporates.
(v) Establishment of ICSI (Institute of company secretaries of India) It prepares standards for
company/corporate meetings.
(vi) Establishment of National Foundation for Corporate Governance (NFCG). It is chaired by the
Minister of Corporate Affairs.
Challenges of corporate governance
(i) Auditing is not done properly by the company.

(ii) Many times family members hold high positions in the organization and become
stakeholders.
(iii) Lack of consensus in the decision process.
(iv) Manipulating the balance sheet by the company.
(v) Not making all the information public by the company.
(vi) Not making risk management policy.
(vii) Monopoly of big corporate houses.
(viii)Major scams of corporate governance. Like – Harshad Mehta Scam, Ketan Porakh Scam,
PACL Scam, Sharda Chit Fund Scam, Mahadev Betting App Scam.
◼◼◼

Corporate Social
11 Responsibility
Corporate Social responsibility (CSR)
It is the sum of those activities which are carried out by a company/corporate for social welfare in
return for profit earned. Such as Senior Citizen Health Service Campaign of ONGC, Mission
Parivartan (Environmental Development) of Rockman Industries Limited, Dhirubhai Ambani
Scholarship Program of Reliance Industries Limited, Solid Waste Management of Ambuja Cement,
Nanhi Kali of Mahendra Foundation, Project Sakhi of Hindustan Zinc.
In India, this provision has been made in Section 135 of the Company Act, 2013.
Main provisions of the CSR Act
(1) Those companies which are under CSR Act
(i) Turnover → 1000 cr.
Or
(ii) Net worth → 500 cr.
Or
(iii) Profit → 5 cr. (average)
Companies will have to spend 2% of their average total profit of the last 3 years on public
welfare works.
(2) Constitution of CSR Committee - Provision has been made for Constitution of CSR Committee
under the company which provides advice to the management regarding corporate social
activities.
(3) Activities included in the CSR - health, education, environmental protection, drinking water,
promotion of sports, promotion of renewable energy.
Types of CSR
(1) Environment based CSR : Work or efforts for environmental protection by an company or
corporate. Such as conservation of natural resources, promotion of renewable energy sources,
development of environment friendly technologies.
(2) Human Resource Based CSR – Work or efforts by a company or corporate for the welfare of
employees. Such as health insurance to employees, protection of human rights of employees,
high safety standards for employees.
(3) Community based CSR – work or efforts for community welfare by a company or corporate.
Such as health, education, cleanliness, drinking water.
(4) Philanthropic CSR- Direct financial grant by company/corporate. Like- financial grant by
Bill Gates and Melinda Foundation.
Benefits of CSR
(i) CSR is a medium of public welfare and socio-economic change.
(ii) The workload of the government is reduced through the CSR.
(iii) Through this the “brand image” of the company is created.
(iv) The investment and profit of the company/corporate increases.
(v) It also motivates the employees.
(vi) It is helpful in developing cordial relations between employees and management.

(vii) Positive public relations with the company.
(viii) Ensures quality goods to the consumer.
(ix) Beneficial in environmental protection.
(x) It makes the company socially responsible towards the stakeholders and the public.
(xi) The company's image becomes better and more credible in the eyes of regulatory authorities.
Private sector arguments against CSR
(i) This is a tax on tax.
(ii) It affects investment.
(iii) CSR should be a moral responsibility and not a compulsion.
(iv) CSR is a new indirect tax which is being imposed on corporate by the government.
(v) It increases government interference in the private sector.
(vi) The company/corporate has to take permission from the shareholders before spending even a
single penny. Which is a complex task.
(vii) Public welfare is the responsibility of the government and not of the corporate sector.
Shortcomings of CSR Act
(i) CSR related expenditure is being incurred in limited areas. For example, about 40%
expenditure is on education and health.
(ii) Geographical inequality – North-eastern states are untouched by CSR activities.
(iii) CSR activities are not being carried out in rural India.
(iv) Lack of awareness regarding CSR.
(v) Lack of strict provisions of punishment in the case of violation of CSR.
(vi) There is lack of cooperation and coordination between the corporate and the local
administration.
(vii) Various activities under CSR are still untouched. Like- promotion of sports, renewable
energy.
(viii) There is no coordination between the company and the community on many issues at the
regional or grassroots level.
(ix) Underreporting of profits by the company by manipulating the auditing and balance sheets.
Measures to improve CSR Act
(i) The company should effectively constitute the CSR Committee.
(ii) The progress report of CSR compliance of this committee should be regularly reviewed.
(iii) CSR committees should increase contact and coordination with various NGO groups.
(iv) Shareholders of the company should be encouraged to increase CSR activities.
(v) To create awareness about CSR among the general public (through various seminars,
workshops, trainings and conferences).
(vi) There should be a system of survey feedback in the company.
(vii) Stringent provisions should be added to the CSR.
(viii) There should be coordination with the local administration and people.
(ix) CSR activities should be done equally in all areas.
◼◼◼

New dimensions of New Public
12 Management
New public management

New Public Management is the art of implementing private sector management in the public
sector. Therefore it is also called market based public administration, managerialism. Example: 3E,
efficient use of resources, performance appraisal.
Jane Eric Lane - “Applying managerial techniques of private sector in public sector is called New
Public Management.”
• New Public Management word was first used by Christopher Hood in his article ‘A Public
Management for All Seasons’ (1991).
•A detailed explanation of New Public Management was given by Osborn and Gabler in
their book (Reinventing Government) (1992).
Other names of New Public Management-
(1) Thatcherism in Britain
(2) Reaganomics in America
(3) Roseronomics in New Zealand
(4) Third way (3way) → U.A. Gun
(5) Entrepreneurial Administration → Osborn and Gabler.
(6) Post Bureaucratic Model → Barzle.
(7) This is also called neo-Taylorism.
Osborn and Gabler's 10-point program for new public management
Osborn and Gabler in their book 'Reinventing Government' (1992) gave a 10-point program for
New Public Management which are as follows -
(1) Competitive Government: Emphasis on increasing competition among providers of services
and goods providers.
(2) Market-oriented government: Along with public administration, private and market-based
administration should be given priority.
(3) Goal-oriented government: Conducting work in the spirit of achieving goals rather than
following rules and laws.
(4) Result-oriented government: Evaluation of administrative achievements on the basis of
outcomes.
(5) Profit oriented government: Public administrators should pay special attention to profit
making rather than maximum use of their power.
(6) Catalyst Government: Public, private and voluntary organizations should be encouraged.
(7) Client-oriented government: To give greater choice to citizens in services like customers.
(8) Decentralized Government: Government should be decentralized.
(9) Citizen-oriented government: Emphasis on empowering citizens along with public
administration.
(10) Anticipatory Government: Instead of becoming preventive after the problem arises, the
government should act preventive before the problem arises.

New Public Management
Features Implementation in India Impact/importance
Features Implementation in India Impact/importance

(i) Disinvestment program in
(i) Increase in administrative
India.
economy.
Emphasis on 3E culture in (ii) Rise of the concept of
(ii) Increase in administrative
public administration. entrepreneurial administration in
(1) efficiency also.
efficiency, effectiveness, India.
(iii) Increase in healthy competition
economy (iii) Establishment of information
between public administration and
and facility counters in public
private administration.
sector.
(i) Reduction in the workload of
Public administration as a public administration.
Public Administration Private
“facilitator” and (ii) Public administration can focus
Partnership (PPP)
(2) “promoter” instead of on public welfare works.
Minimum Government
“controller” and (iii) Establishment of cordial relations
Maximum Governance
“regulator”. between public administration and
private administration.
(i) Constitutional provisions for
Panchayati Raj institutions and
urban bodies.
(i) Strengthening local governments.
(ii) Recommendation of the 15th
Support of decentralization (ii) Ensuring effective
(3) Finance Commission. Revenue
(localization) implementation of government
Transfer (42 to 41%)
schemes and programmes.
(iii) State Finance Commission in
the States.
(iv) NITI Aayog
(i) Reduction in administrative
(i) e.Governance corruption.
(4) emphasis on transparency (ii) Right to Information 2005 (ii) Increase in public participation.
(iii) Public Service Guarantee Act (iii) Increase in accountability of
public servants.
externalization/contracting (i) Simplification of administrative
(5) (i) Public-Private Partnership
method tasks/process.
Emphasis on performance (i) Annual Confidential Report (i) Reduction in misuse of
(6)
appraisal (ii) 360° feedback system. government resources.
(i) Reduction in the workload of the
(i) 91st Constitutional Amendment government.
(7) Downsizing of government
(2003) (ii) Proper use of government
resources was ensured.
(i) Reduction in red tapism.
(i) e.Governance
(8) Flexibility in hierarchy (ii) Ensures fast decision-making in
(iii) Gang Plank
administration.
(i) Citizen's Charter
(9) Client orientation (i) Efficiency in service delivery.
(ii) Sampark Portal
(i) Golden Hand Shake Scheme (i) Logical size of bureaucracy.
(10) DE bureaucratization (ii) Contract based recruitments. (ii) Proper utilization of government
(iii) Lateral Entry Scheme. resources.
Opposition to political (i) Important role of public
(11) (i) Formulation of effective policies.
administration dichotomy servants in policy making.
Criticism of New Public Management
(1) It gives great emphasis to the market/private sector.
(2) Unemployment in the government sector can increase due to it.
(3) Decline in morale of public servants.
(4) Margetts and Dunleavy have criticized New Public Management through “re-integration”.
(5) Challange to the concept of public welfare state.
Difference between new public administration and new public management
New public Administration New Public Management
(1) Reason for emergence: American Liberalization, Privatization, Globalization
economic-social reasons
(2) This was a movement of youth. This is a movement of youth and experienced
scholars.
(3) NPA It has 4 goals - (i) Value, (ii) It emphasizes on 3E.
Change, (ii) Equity, (iii) Economy, efficiency, effectiveness.
Relevance.
(4) They wants to make public It is a supporter of “managerialism” in public
administration a “progressive administration.
science”.
(5) NPA Main features of - (i) Public Main features of New Public Management - (i)
participation, (ii) Opposition to Debureaucratization, (iii) Externalization, (iii)
politics-administration Localization.
dichotomy, (iii) Client
orientation.
(6) New Public Administration is a New Public Administration supports the limited role
critic of public administration. of public administration.
(7) It was relevant only for Relevant for both developed and developing
developed countries. countries.
(8) Most of the scholars associated The scholars associated with it are related to
with it were from the political sociology, economy and law.
science subject.
Public Private Partnership
When a project/work is jointly completed by both public administration (like
government/bureaucracy) and private administration (corporate sector, private company, etc.), it
is called PPP model.
In this, the principle of minimum government and maximum governance is followed.
Features
(i) In these, a contract is made between the government and private sectors in which all the
conditions are mentioned.
(ii) Time limit, profit-loss, accountability, sharing of resources etc. are decided in this contract.
(iii) There is no similarity between privatization and PPP model, they are two different concepts.
(iv) In this, both public and private sectors have to be risks taking.
(v) The role of the government is to provide support and encourage and the role of the private
sector is to provide services and that of investor.
(vi) It is necessary to complete the PPP project within the stipulated time.
(vii) In these, problems related to land acquisition, environmental problems etc. are resolved at
the government level.

Importance
(i) Incorporation of expertise, efficiency, best practices in projects.
(ii) Excellent work at low cost.
(iii) Excellent service in short time.
(iv) Increase in government revenue.
(v) Growth in the economy.
(vi) Increase in work performance and quality.
(vii) Increase in private investment.
(viii) Infrastructural development.
(ix) By utilizing private resources, government resources can be used in public service.
(x) Projects are better implemented with the expertise of the private sector and the guidance of
the government.
Good governance
A qualitative system which tries to resolve all the public problems. There is less administration
and more management in this.
Freeman: Only that government is good which rules the least.
Features
(i) Better law and order
(ii) Public Welfare Administration
(iii) Transparency and accountability
(iv) Public consent and participation
(v) Equality and inclusivity
(vi) Corruption, red tapism free governance
(vii) Emphasis on human rights
(viii) Decentralization and delegation
(ix) Resolution of complaints
(x) Improvement in the standard of living of the citizens.
(xi) Right to Information
(xii) Client-oriented, goal-oriented, time-oriented administration.
(xiii) Ability to perform work with excellence and skill.
(xiv) Increase in legality of problems
(xv) Free and transparent election system
(xvi) Rule of law
(xvii) Development of ethics in administration

Initiative for good governance
(i) Comprehensive administrative reforms in the 1950-60s
(ii) Citizen's charter
(iii) Establishment of Directorate of Public Grievances
(iv) Use of information technology and technology
(v) Right to Information 2005
(vi) Decentralization (73rd and 74th constitutional amendments).
(vii) Rajasthan Public Service Guarantee Act, 2011.
(viii) Rajasthan Right to Hearing Act, 2012.
Challenges
• Lax and indifferent behavior of civil servants.
• Lack of accountability.
• No strict implementation of laws/rules.
• Criminalization of politics
• Corruption and red tapism
• Judicial delay
• Population growth
• Harmful elements of the culture of violence
• Nexus between politicians and officers
e-Governance
• Incorporating information and technology into the administration and management of
government work in a better and comprehensive manner is called good governance.
Features
(i) It makes governance SMART.
• S → Simple
• M → Moral
• A → Accountable;
• R → Responsible
• T → Transparent
(ii) It enables the government and administration to communicate directly with the public.
(iii) This made administration easy and convenient.
(iv) Remote villages can be linked to urban administration.
(v) Because of computers coordination has improved.
(vi) Corruption and red tapism will reduce.
(vii) Prompt resolution of public problems.
(viii) Government documents can be kept safe and protected.
(ix) Increase in public facilities like- E.Mitra.
(x) Public awareness.
Importance
1. For public administration
(i) Automation: Due to good governance, minimum human intervention will be required in
administrative processes and these processes will be automated through technology.
(ii) Electronic storage of information: With e-governance, paper storage in the
administration will be reduced and all the information can be stored and forwarded
online.
(iii) Qualitative Administration: e-governance will increase the quality of administration. The
administration will be more responsive, active and sensitive towards the citizens.
(iv) Reduction in red tapism: Through internet information can be send to different levels in
the organization. Due to which delay in work can be reduced.
2. For Public
(i) Transparency: The public will get information related to administration and government in
a fair and prompt manner without any hassles.
(ii) Economic Development: Now services will be available at affordable and quality rates. The
beneficiary will get the benefit directly without any middlemen.
(iii) Social development: Citizens can raise voice about their problems.
(iv) Political development: They can investigate government programs, get information etc.
Citizen engagement with the government increases which strengthens democratic values.
(v) Increase in public participation: Public participation increases in planning and decision
making.
3. Importance for the government
(i) Transparency in Government actions
(ii) It makes the government more accountable.
(iii) It reduces corruption. Government procurement and selling is done at fair prices.
(iv) Government services are made available to the citizens in an efficient and effective
manner.
Various e-Governance Projects
(i) e-District
(ii) e-Panchayat
(iii) e-urban bodies
(iv) e-Office
(v) RajSWAN
(vi) SSO
(vi) e-Mitra
(viii) My-Gov Portal
(ix) Digi locker
Challenges/obstacles of e. Governance
(i) Initial cost is high.
(ii) Weak digital infrastructure.
(iii) Lack of digital literacy.
(iv) Lack of trained and skilled government employees.
(v) Lack of finance.
(vi) Providing information and services in local language is also a challenge.
(vii) Security concerns – data theft.
◼◼◼

13 Change Management
Change Management
Change management is introducing changes in a running organization in a planned or systematic
manner. There are 3 types of it-
(i) Structural changes
(ii) Procedural change
(iii) Behavioral change
Like- formation of NITI Aayog in place of Planning Commission.
Forces of Organization
Restraining force Driving force

Restraining force Driving force
Inadequate salary and remuneration to
(1) Sufficient salary to employees.
employees.
Lack of coordination between higher
(2) Positive working conditions.
authority and subordinates.
Cordial and interpersonal
(3) Negative working conditions.
relationships.
(4) Insufficient resources Adequacy of staff/resources
It is the responsibility of the higher authority to try to minimize the restraining force and
maximize the driving force.
Factors of Change Management
External Factors Internal Factor Technical Factors
(1) External Factors

(i) Social customs and traditions
(ii) Economic Factors:
(a) Change in fiscal policy
(b) Change in monetary policy
(c) Change in import-export policy
(iii) Impact of globalization, liberalization and privatization
(iv) Change in administrative policy
(v) Political factors – political pressure, political movements
(vi) Environmental factors
(vii) Global factors – economic recession
(2) Internal Factors
(i) Change in the functions and responsibilities of the organization.
(ii) Employees should be educated and aware.
(iii) To increase the efficiency of the organization.

(3) Technical Factors
To ensure technological innovations/automation machines in the organization.
Like- CCTV, Biometric Attendance System
Steps of change management
• Generalised Phase
(i) To identify the reasons for management of change or to identify organizational problems.
(ii) Identification of restraining and driving forces.
(iii) Formulate Plan with the limited available resources.
(iv) Execute change management in the organization.
(v) Evaluation of the problem in change management.
(vi) To establish the change management permanently in the organization.
According to Kurt Lewin
(1) Unfreezing
(2) Moving
(3) Refreezing
Importance
(i) Increases the survival of the organization.
(ii) Increases the productivity/performance of the organization.
(iii) Helpful in identifying the restraining/driving forces of the organization.
(iv) Increases the efficiency of the organization.
(v) Encourages technological innovations in the organization.
(vi) Development of cordial relations between superiors and subordinates.
(vii) To compete with the market.
(viii) There should be an increase in production and profit.
Reasons for obstacles/resistance in change management
(i) Lack of coordination/communication between superiors and subordinates.
(ii) Failure of past changes.
(iii) Lack of resources.
(iv) Lack of proper training for introducing change management.
(v) The higher officials being egoist.
(vi) Lack of trust between subordinates and superiors.
(vii) Status quoism among senior officials.
(viii) Fear of layoff among the employees of the organization due to technological innovations.
(ix) Organizational inertia, limited scope for change.
Characteristics of ideal situation/ideal management of change
(i) Reward system should be linked with change management.
(ii) The management or higher officials should take the employees' union into confidence about
the change.
(iii) Supply of resources should be ensured.
(iv) Arrangements for proper training should be made for subordinates.
(v) The nature of senior officials should be social.
(vi) Communication system should be maintained in the organization.
(vii) There should be a strong leadership style in the organization.
(viii) Employees should have a positive mindset.
◼◼◼

Attitude And Values of Civil Services:
14 Ethics, Integrity, Impartiality, Non-partisanship,
Dedication to public service
Ethics
Definition of Ethics
Ethics refers to those moral values which play an important role in guiding the behavior of people.
When these moral values are discussed from the perspective of administration then it is called
administrative ethics.
Administrative Ethics
• Administrative ethics is related to the conduct and morality of the administrator. It
emphasizes on the study of ethics, values, norms etc. of administration, that is, the employees
working in administration should work according to administrative norms so that they cannot
misuse their official powers.
Benefits/Importance
(i) Having moral and sensitive approach towards the Dalits, the deprived and the exploited and
poor without breaching administrative rules and laws.
(ii) Curbing the autocracy of civil servants.
(iii) To develop good relations between citizens and administrators.
(iv) To make the administration selfless, integral, accountable and honest.
(v) Increase in efficiency and effectiveness of administration.
(vi) The administration will use ethical standards of quality in its decisions and actions.
(vii) The spirit of Sarvodaya will develop.
(viii) To bring harmony and increase coordination in the relations of public servants and
politicians.
(ix) To inculcate ethics in all levels of hierarchy of public servants.
• P.R Deshmukh has said that "It is very important for the public administration to be efficient
but even more important it is being moral. If a person does not have character, then he has
nothing. Similarly, if an administrator does not have ethics, then Nothing remains in him.”
• Nolan Committee has given 7 basic values of civil servants-
(i) Objectivity: Civil servants should be free from all forms of bias.
(ii) Selflessness: Duties should be performed selflessly.
(iii) Openness: Openness should be brought in government work and decisions; this reduces
corruption and democratic values are strengthened through public participation.
(iv) Honesty: Rights should be exercised with complete honesty. Bribe should not be taken
nor given.
(v) Accountability: Through accountability, a balance is established between duties and
rights.
(vi) Integrity: There should be uniformity in mind, action and words, there should not be
any contradiction in thoughts.
(vii) Leadership: Leaders should be visionary, that is, they can correctly assess the
possibilities and challenges of the future.

Reasons for The Decline of Administrative Ethics in India
(i) Increasing Materialistic Tendencies: Due to increasing materialistic tendencies of
administrative officers like better living, gaining prestige, Veblen goods, expensive clothes
etc., sometimes they also take unethical steps.
(ii) Expansion of administrative services: Due to population growth and use of technology,
there has been immense expansion of public administrative services due to which public
servants often misuse their positions.
(iii) Red tapism and corruption.
(iv) Increasing spread of industrialization
(v) Involvement with politicians.
(vi) Lack of transparency and accountability.
(vii) Favourability of Authority.
(viii) Inequality in salary, allowances and facilities.
According to Gandhiji, for good governance in public administration and increase in morality
among public servants, the following seven social sins should be avoided:
(i) Wealth without work
(ii) Commerce without morality
(iii) Pleasure without conscience
(iv) Knowledge without character
(v) Science without humanity
(vi) Worship without sacrifice
(vii) Politics without principles
Measures to improve administrative ethics
(i) By giving moral training
(ii) Formulation of code of conduct
(iii) Use of digitalization and e-governance
(iv) Reducing interference from politicians
(v) Anti-corruption institutions like Central Vigilance Commission, Public Grievance Courts
(vi) By organizing various motivational seminars and workshops.
(vii) Effective regulation of rules and laws
(viii) By ensuring accountability.
(ix) Unbiased media.
Integrity
• Integrity means the internal consistency of public servants and there is no difference between
the words and actions of an integral public servant. There should be uniformity in mind,
actions and words, there should be no contradiction in thoughts and conduct and it should be
in accordance with thoughts. A person's conduct should not be based on circumstances and
consequences.
• Integrity acts as a protector against corruption and misuse of power.

There are three types of integrity-
(i) Personal integrity: There should not be any contradiction in the thoughts of a person, he
should always behave in accordance with his thoughts, he should have the ability to learn
from the mistakes of others.
(ii) Intellectual integrity: One's own evaluation should be done with the same standards and
rigidity that have been used to evaluate others. The opposite of which is intellectual
hypocrisy.
(iii) Professional integrity: Integrity in the workplace, public services.
Benefits of Integrity
(i) Integrity reduces corruption among public servants and increases the credibility of public
servants.
(ii) This ensures proper utilization of resources.
(iii) This increases the confidence of the general public towards the public servants, which
increases administrative credibility.
(iv) An honest public servant effectively implements government policies.
(v) It also motivates other public servants.
(vi) It is also helpful in increasing administrative efficiency.
Reasons of Lack of Integrity
(i) Inadequate salary and facilities.
(ii) Corruption is a colonial legacy.
(iii) Excessive flexibility of anti-corruption laws.
(iv) Article 311 of the Indian Constitution (according to Santhanam Committee and Second
Administrative Reforms Commission).
(v) Political interference in anti-corruption institutions.
(vi) Discretionary powers available to public servants.
(vii) Lack of public awareness.
(viii) More red tapism and formality in administration.
(ix) Lack of moral education.
(x) Increasing materialism.
(xi) Non-renewal of conduct rules.
Solution
(i) Adequate salary and facilities for public servants.
(ii) Ethics/Civics should be added to the school/university’s curriculum.
(iii) Article 311 should be abolished from the Indian Constitution.
(iv) E-governance should be encouraged in public administration.
(v) The discretionary powers of public servants should be reduced. (Second Administrative
Reforms Commission)
(vi) Strict law should be made to prevent corruption.
(vii) Appointments in anti-corruption institutions should be made on the basis of merit.
(Reduction in political interference)
(viii) According to the Second Administrative Reforms Commission
(a) Appointment of Ethics Commissioner in administrative departments.
(b) Oath of transparency for public servants.
(c) The discretionary powers of public servants should be minimized.

Efforts Made to Increase Integrity
(1) Formation of various Committees and Commissions
(i) Gorwala Commission
(ii) Iyengar Commission
(iii) Santhanam Commission
(iv) First and Second Administrative Reforms Commission of the Government of India
(v) Harishchandra Mathur Commission, G.K. Bhanot Commission, Shivcharan Mathur
Commission of Rajasthan.
(2) Various laws
(i) Anti-Corruption Act, 1947
(ii) Right to Information, 2005
(iii) Public Service Guarantee Act, 2011
(iv) Lokpal and Lokayukta Act, 2013
(v) Whistleblower Protection Act, 2014
(3) Codes of Conduct for Public Servants
Under Article 309 of the Indian Constitution, the President has the right to make rules for
public servants. In our country, various rules and regulations have been made to strengthen
the ethics among public servants, such as:
(i) All India Service Conduct Rules - 1954
(ii) Central Services Conduct Rules - 1955
(iii) Railway Service Conduct Rules - 1956
(iv) Rajasthan State Conduct Rules - 1971
(4) Various institutions
(a) At the central level
(i) Central Bureau of Investigation (CBI)
(ii) Central Vigilance Committee (CVC)
(iii) Enforcement Directorate (ED)
(iv) Lokpal
(b) At the state level
(i) Lokayukta
(ii) State Vigilance Commission
(5) Other efforts
(i) Various portals: - Sampark, Suvidha, Sarathi
(ii) Various helpline numbers – 181, 1064
(iii) Demonetization

Non-partisanship
• A public servant should work free from political ideologies and unaffiliated with political
parties i.e. this is political neutrality.
• It is important for public servants to implement the policies, programs and campaigns made
by the government impartially, no matter which political party is in power.
Benefits of Non-partisanship
(i) Eliminates discrimination on the basis of religion, caste and gender in public services.
(ii) It motivates public servants for impartial implementation of government schemes.
(iii) It protects public servants from political retaliation.
(iv) Ensures proper utilization of resources.
(v) It also ensures increase in the development of the people.
(vi) Motivation to other public servants.
(vii) Increase in public confidence in public servants and public services.
(viii) Increase in public participation.
Why is non-partisanship impossible among public servants?
(i) Voting right of public servants.
(ii) A family member of a public servant is contesting the election.
(iii) Role of public servants in policy-making.
(iv) Existence of “political desire system” in appointment and transfer.
(v) Negative interference of politicians in public services.
Solutions
(i) Appointments should be merit based.
(ii) The “political desire system” in transfers should be abolished.
(iii) Transfer policy should be formulated.
(iv) Ministers should not interfere negatively in the work of public servants.
(v) Conduct rules should be strictly followed by public servants.
(vi) Permanency of tenure of public servants should also be ensured.
Impartiality
• Impartiality among public servants means that they will take decisions on the basis of merit
without biasness and any pressure.
• Impartiality prevents discrimination based on caste, religion, region and gender among
public servants/public services.
Benefits of impartiality
(i) Impartiality prevents discrimination based on caste, religion, region and gender among public
servants.
(ii) Public servants take decisions in the larger public interest.
(iii) Effective implementation of schemes impartially.
(iv) A positive image of public administration is created.
(v) It increases teamwork and coordination.

Dedication
• A public servant should be dedicated to the following.
Dedication
Towards Towards Towards

Constitution Target/Duties Policies/Programme
/Programme /Campaign of government
• To fulfill the goals of public welfare and for better implementation of policies by the public
administration, it is expected from the public servants that they should be completely
dedicated to the satisfaction of the citizens and establish high values of public service.
• APJ Abdul Kalam - You will be successful only when you face the challenge before you with
courage and dedication.
Characteristics of Dedication
(i) Instead of being bound by rules and laws, one should try to help the backward, Dalits and the
deprived.
(ii) Always keep Antyodaya in mind while exercising your rights.
(iii) To work without prejudice and stereotypes.
(iv) To be goal oriented and time oriented.
(v) Keeping the environment around you positive.
Benefits of Dedication
(i) The public servant will be disciplined with dedication and will do various public welfare
works.
(ii) A dedicated public servant will stay away from corrupt practices and immoral activities.
(iii) A dedicated public servant will be proactive, that is, he will try as much as possible to solve
the problems of the public.
(iv) Such a public servant will provide every possible help to the deprived, destitute and helpless
class.
(v) There is high morale among the public servants.
(vi) There will be uniformity in the thoughts and actions of a dedicated public servant. i.e. public
servant has integrity.
◼◼◼

Relationship Between
15 Generalist and Specialist
Generalist:
Those public servants who get general education and after recruitment and training, are
appointed to higher administrative posts and they generally perform POSDCoRB related work.
Such as Additional Chief Secretary, Divisional Commissioner, Collector, Sub-Divisional Officer
and Tehsildar.
Specialist:
Those public servants or government employees who receive professional/technical special
education and after recruitment and training are appointed to middle level administrative posts.
specialist always work as subordinates to generalists. Like- professor, doctor, engineer etc.
• The main root of the dispute between generalists and specialist is the “Northcote
Trevelyan Report 1853”.
Difference Between Generalist And Specialist
Generalist Specialist
Technical, special or professional
1. Having general education,
education
2. POSDCoRB related work, Technical or special work
Appointment to higher administrative
3. Appointment to middle level posts.
posts,
4. Relatively more closeness to politicians Relatively less closeness to politicians
5. Inter-departmental transfers Always work in the same department.
6. Rapid promotion system Comparatively slow.
7. High pay scale and facilities Comparatively less facilities.
8. They are also called “Bureaucrats” They are also called “Technocrats”
9. General advice to ministers, Technical and special advice to ministers.
Primacy in the Secretariat Like
Primacy in the Directorate
10. Divisional Commissioner, District
like Doctor, Professor
Collector
11. More respect and power Comparatively less
12. Making policy Implementing policy
Reasons For Dispute Between Generalists and Specialist
(i) Higher administrative posts are reserved only for generalists. Like- Additional Chief
Secretary, Divisional Commissioner, Collector, Sub-Divisional Officer, etc.
(ii) Dispute due to high salary and facilities received by generalists.
(iii) Illogical policies made by generalists which have to be implemented by specialist.
(iv) Rapid promotion of generalists.
(v) Autocratic behaviour of generalised towards specialist.

(vi) Only generalists have role in policy-making.
(vii) Unnecessary comments by generalists in the annual confidential report of specialist.
(viii) Generalists are closer to politicians.
(ix) The secretariat is dominated only by generalists.
(x) Inter-departmental transfer of generalists.
(xi) Appointment of generalists on posts marked for specialist positions.
(xii) The behavior of generalists sometimes becomes like that of a dictator, due to which there is a
sense of inferiority among the experts.
(xiii) Negative comments made by generalists without any expertise in the annual confidential
report of specialist.
Resolution of Dispute
(i) The government should decide in advance on which posts generalists should be appointed
and on which posts specialist should be appointed.
(ii) New all India services should be created. Like- All India Medical Service and All India
Engineering Service.
(iii) The role of specialist should be ensured in policy making.
(iv) There should be a rapid promotion process for specialists also like generalists. (after
appointment)
(v) Both should be provided training in the same training institute. Therefore, such integrated
training institutes should be established by the government.
(vi) The Secretariat and the Directorate should be integrated.
(vii) Integrated hierarchy should be adopted. (Appointment of generalists and specialist in the
same hierarchy).
(viii) The administrative system should be reorganized by the government.
(ix) Specialist should be encouraged through lateral entry system.
(x) According to the First Administrative Reforms Commission, the services should be divided
into 2 parts.
Services
Non-functional services
Functional services
Both generalists and
These services will be reserved specialists can work in these
for specialist only. services.
Such as personnel
Such as agriculture, finance,
administration
insurance department.
(xi) Specialist should be given the status of secretaries.

Note:-
• It is notable that Britain's Fulton Committee favoured specialist.
• America's second Hoover Commission has supported specialist
• The first and second Reform Commission of India have supported the specialist.

Arguments in Favour of Generalists
(i) Generalists have traditionally enjoyed high status for centuries.
(ii) Generalists have wider experience than specialists. Because they work in different
departments.
(iii) Policy-making is a complex process.
(iv) Specialists receive training only in a particular field.
(v) Decision making is an art which only generalists can do well.
(vi) The generalist is the “intellectual cream” of the society. Therefore, they should get a higher
position in the administration.
(vii) They have experience in administration at regional and district level due to which they have
direct contact with the public.
• Robert Doubin – “Specialist are completely unsuitable for making policy decisions.”
Arguments in Favour of Specialist

(i) At present everyone has right to equality hence specialist have the same rights as generalists.
(ii) Since policy making is a complex process, there is a need for technical expertise.
(iii) Generalists are only trained in regulatory administration whereas they perform various
tasks. Such as election work, disaster management, coordinator, protocol work.
(iv) Increase in technical problems in administration. Like- cyber attack, data leak.
(v) Inspiration from developed countries where specialist play an important role in policy-
making.
(vi) Increasing complexity in policy making after economic reforms.
(vii) Increase in red tapism and formality in administration.
(viii) Need for specialization in certain departments.
(ix) The generalist structure in Indian administration is a building built on the foundation of
colonial legacy and is in need of renovation. Such as agriculture, insurance, health,
education, etc.
• Pandit Jawaharlal Nehru – “It is a misconception that administrative service is superior
among all services.”
• Smt. Indira Gandhi – “How strange it is that our doctors and engineers do not get the
same salary and status as secretaries.”
◼◼◼

Control Over Administration:
16 Legislative, Executive and Judicial-various
Means and Limitations
Means of control over public administration

White – “Control of power is necessary in a democratic society. The greater the power, the greater
is the need for control.”
Terry – “Controlling means determining the tasks, evaluating the tasks and, if necessary,
improving the methods so that the work goes according to the plan.”
Control Over Public Administration
(1) Control by legislature
(i) Parliament
(ii) State Legislature
(2) Control by the executive
• Control by the Council of Ministers
(3) Control by the judiciary
(4) Control by the public
(i) Public Service Guarantee Act
(ii) General Accounting
(iii) RTI Act 2005
(iv) Rajasthan Right to Hearing Act, 2012
(5) Internal control
ACR, Instructions to higher officials
(6) Media
The legislature controls the administration in the following ways:
1. Inaugural Address of the President or Governor
When the House meets for the first time after the elections of the Lok Sabha, the President
addresses the Lok Sabha. In parliamentary governance system, this type of address is prepared
by the Cabinet in which light is thrown about the policies and activities of the government.
Debate is held on the issues mentioned in the President's address. Arguments are made in
favor and against the policies of the government. Reports of all these are published in
newspapers, which influences public opinion.
2. By asking various questions:
Every member of Parliament has the right to ask questions on any subject related to
administration. Advance notice of questions is given to the Parliamentary Secretary. The
Speaker may accept or decline to answer questions as per rules. These questions are related to
the administrative responsibilities of the government. Questions cannot be asked on matters
pending in courts. The questions asked in Parliament can be divided into two parts.
(i) Question hour: Time. 11:00 A.M. 12:00 Noon
Through questions, an attempt is made to know the opinion of the Minister or the Council
of Ministers.

Generally three types of questions are asked-
• Starred question
These are the questions which the Minister answers orally during the question-answer
period and the original questioner and other members can also ask supplementary
questions regarding them.
• Unstarred question
Answers to these questions are not given orally in the House and supplementary
questions are also not asked. Their answers are placed on the table of the House.
• Short notice questions: These questions are given 10 days in advance.
These questions are given to the Assembly General Secretary 14 to 21 days in advance.
The members of the opposition mainly expose the shortcomings of the administration through
the right to ask questions and obtain information related to the administration. Through these
questions, an attempt is made to bring administrative inefficiency and inefficiency before the
House and the general public.
(ii) Zero hour: Time. 12:00 Noon. 01:00 PM
It was started in 1962 by Sarvepalli Radhakrishnan.
In this, those questions are discussed which were not discussed during the Question Hour.
(iii)Half an hour debate:
Matters arising from questions which have been answered in the House can be discussed
in the Lok Sabha on three days a week, in the last half hour of the sitting. These matters
should be of sufficient public importance and information should be given at least three
days in advance. There is no voting on such topics. The member giving notice discusses the
topic briefly and the Minister answers these topics briefly. With the permission of the
Speaker, members can ask questions for clarification.
(iv) Two-hour debate: started in- 1953
Two days of the week have been ensured for this.
This is also called “limited period” debate.
(3) Through various proposals
(i) Calling Attention Motion: Started in 1954
With the prior permission of the Speaker, any member can request the Minister to give a
statement on an important topic of public importance. Generally, such issues are raised on
the day of the incident or at the time of information about the incident. After the statement
of the Minister, members can also ask him questions.
(ii) Adjournment motion:
This proposal requires the consent of 50 members. If any such important incident happens
during the session of Parliament, towards which the government's attention needs to be
drawn immediately, then the members can propose a adjournment motion. Such proposals
are made to postpone the scheduled program of the House and discuss that important
event. If the House allows the adjournment motion, then it is considered that the majority
of the House considers that problem to be serious. Generally, adjournment motion are not
successful, yet it is a medium to attract the attention of the government and the general
public.
(iii) Censure motion:
This motion is brought to condemn or criticize any work of any minister or council of
ministers.
This has been brought in Parliament twice-
• 1979- Chaudhary Charan Singh's government.
• 2000- Atal Bihari Vajpayee government.
(iv) No-confidence motion:
Its purpose is to check the government's majority in the House.
For this also 50 members are required.
It can be brought only in Lok Sabha and Legislative Assembly.
A motion of no confidence can be presented in the House against the Cabinet. The
permission of the House is taken to present the no-confidence motion. The debate on the
no-confidence motion takes place within ten days from the date of receiving the
permission of the House. If the no-confidence motion is passed then the cabinet has to
resign.
Difference Between No-confidence Motion and Censure Motion
No confidence motion Censure motion
(1) No specific reason is required to bring it. A specific reason is required.
(2) This is against the entire Council of This is against the entire Council of
Ministers Ministers or a particular minister.
(3) This is mentioned in the original This is not mentioned in the original
constitution. Constitution.
Article 75 (3)
(4) If it pass it means the fall of the There is no need for the government to
government. resign. But this is a warning to the
government.
(4) Account audit
In India, the work of audit is done by the Comptroller and Auditor General.
From Article 148 to 151 (CAG)
The CAG discloses financial irregularities and corruption through its annual report.
(5) By various committees
The provision of committees in the Constitution has been made in Article 118 (1).
These committees are of two types-
(i) Standing Committee
(ii) Temporary/Ad-hoc Committee
1. Standing Committee
• Estimates Committee of the Lok Sabha
This committee is also called “continuous economic Committee” because it
recommends curbing government wastage. The members of this committee are elected
for a term of one year through the single transferable voting system. The main
functions of the committee are:
(i) To give suggestions for improving the organization, improving administration
and reducing expenses.
(ii) Suggestion of form for submitting estimates.
(iii) Suggestion to provide funds for prescribed policies.
(iv) To give suggestions regarding alternative policies to bring efficiency and economy
in administration.

• Committee related to government undertakings
This committee consists of members of both Lok Sabha and Rajya Sabha. Its main
functions are -
(i) To examine the reports and accounts of public undertakings and the reports of the
Comptroller and Auditor General.
(ii) To investigate the matters referred to it by the House or the Speaker of the House.
• Public Accounts Committee
This committee also has members from both the houses of the Parliament. Its main
functions are-
(i) To examine the audit reports given by the Comptroller and Auditor General of
India.
(ii) To examine the accounts of the amount determined for the expenditure of the
Government of India, that is, to check whether the expenditure has been spent
only in the manner and for the prescribed purpose as authorized by the
Parliament.
(iii) Investigates the propriety of any expenditure made in excess of the funds
allocated by the House.
(iv) It also searches for any evidence of wastage, corruption and lack of functioning in
financial matters.
(v) It checks that expenditure has been incurred only by those officers who have been
authorized for the same.
2. Temporary/Ad hoc Committee
Joint Committees of Parliament - Shankaranand Committee formed on Bofors scam, Ram
Niwas Mirdha on Harshad Mehta scam, PC Chacko Committee formed on 2G scam.
(6) Debate on the budget
A separate session is called in Parliament to pass the budget. After the presentation of the
budget, there is general debate on the budget, debate on the demands of specific ministries
and debate on finance bills etc. During debate on the demands of a particular ministry, the
administrative and financial policies of the ministry and their implementation can be
criticized. During the debate on the Finance Bill, members can generally raise for debate any
issue related to administration, that is, any policy or administrative order of the government
can be discussed.
Limits of legislative control over administration
(i) Illusory control: It appears that the opposition has control over the government.
(ii) The executive has dominance in the legislature.
(iii) There is lack of expertise among the members of the legislature.
(iv) This is one-sided control.
(v) The size of the legislature is large.
(vi) Walk out culture.
(vii) Delegate administration.
(viii) Corruption in the legislature. Like- Operation, Duryodhana 2005
(ix) Excessive use of ordinance.
(x) Fear of termination of membership among members.
(xi) Strict party control.
(xii) Parliament is short of time.
(xiii) Creation of the executive from the legislature itself.
(xiv) Inclination of members towards the Prime Minister or ministers.

Measures to Increase Legislative Control
(i) The dominance of the executive over the legislature should be reduced.
(ii) Ordinances should not be used excessively.
(iii) Corruption in the legislature should be reduced/controlled.
(iv) Control should be made bilateral.
(v) A consensus should be created among political parties to stop the walk-out culture.
(vi) To compensate for the lack of expertise among the members of the legislature, expert staff
should be appointed to them. (to give advice)
(vii) The ruling party should not exert unnecessary pressure and control on its members.
(vii) The number of sessions in Parliament should be increased.
(viii) Members should not be under threat of termination of membership.
Executive Control Over Public Administration
1. Political instructions (policy making)
In a parliamentary democracy, the Cabinet is responsible for formulating policies and getting
them approved by the legislature (Parliament) and the work of implementing the policies is
done by public servants. Because the political executive (cabinet) is also responsible for the
successful implementation of policies. Therefore, for the successful implementation of these
policies, the executive has the power to direct, inspect, supervise, coordinate and control the
public servants.
2. Control through budget process
The executive also exercises control over administration through the budget system. It
prepares the budget and gets it passed by the legislature and allocates necessary funds to the
administrative agencies for their expenditure. The Ministry of Finance (which is the central
financial agency of the Government of India) plays an important role in all these activities. The
Finance Ministry exercises financial control over the administration through the following
methods:
(i) By approving in principle, the policies and programs of the departments /ministries,
(ii) By approving the provisions of the Budget Estimates,
(iii) By sanctioning expenditure under the delegated power,
(iv) Through financial advice,
(v) By re-appropriation of grants,
(vi) Through internal audit system and
(vii) By framing financial codes for the spending authorities.
3. Control over appointment and removal
This is the most effective method of control over administration by the executive. The
executive plays an important role in personnel management and control. The Department of
Personnel and Training, Finance Department and Union Public Service Commission assist the
executive in this work.
4. Delegated legislation
Delegated legislation or executive arrangement has also become an important means of
executive control over administration. Due to increase in the activities of the legislature, lack of
time and lack of technical experts, nowadays the legislature prepares a rough draft of the
policy and gives the right to make laws on the specifics related to it to the executive, this is
called delegated legislation. The executive decides the rules, regulations, service conditions,
jurisdictional duties etc. on the basis of the draft received from the legislature.

5. Control through ordinances
The Constitution of India authorizes the Chief Executive (President at the Center and
Governor in the States) to issue ordinances to meet emergency situations when the legislature
(Parliament/Assembly) is not in session. This ordinance is as official and powerful as the laws
made by the legislature and governs the functioning of the administration.
6. By the Public Service Code of Conduct
The Public Service Code is determined by the executive, which is mandatory for all
administrators to follow while exercising their official powers. These rules of conduct not only
help in maintaining discipline and efficiency in public services, but they also prevent
administrators from misusing their powers. Are also helpful in preventing. In India, such rules
mainly include the following rules:
(i) All India Services (Conduct) Rules, 1954
(ii) Central Civil Services (Conduct) Rules, 1955
(iii) Railway Service (Conduct) Rules, 1956
(iv) Rajasthan State Conduct Rules, 1971
7. By various departments
Public administration is handled by various departments. Such as Administrative Reforms
Department, Personnel Department, General Administration Department, Finance
Department
8. Control through public support
The executive has direct contact with the public. Therefore, the executive keeps pressure on the
administration through the public also.
Limits of Executive Control

(i) Lack of expertise among ministers
(ii) Formation of Council of Ministers on the basis of caste, religion, gender and region.
(iii) Ministers are short of time.
(iv) Unnecessary changes in the portfolios of ministers.
(v) Political criminalization
(vi) Collusion between politicians and administrative officials
(vii)Repeated use of ordinance
Measures to Increase Executive Control
(i) In a parliamentary democracy, if capable, talented, popular and expert leaders are given place
in the formation of the cabinet, then effective control of the executive can be established over
the administration.
(ii) Selection of ministers should be based on qualification and experience.
(iii) Ministers should be given training before or after being assigned the work of the department
so that they can acquire expertise in departmental subjects.
(iv) Ministers should spend most of their time in understanding departmental work (policy
formulation, implementation and evaluation).
(v) In order for the ministers to discharge their parliamentary responsibilities, after assuming
office, an agenda of work of the department should be prepared and accountability for the
work of all the officers should be ensured.
(vi) Ordinances should not be used unnecessarily.
(vii) Political criminalization should be stopped.
(viii) Administrative officers should remain neutral from power.
(ix) There should be no change of portfolio of ministers without any valid reason.

Judiciary's Control Over Public Administration
Reasons/grounds for judicial intervention
When the rights of any person, organization or group are violated, they can approach the court.
The court will forbid that institution, person or government from doing so and takes punitive
action against it. These control opportunities are:
(i) Misuse of position
When an officer uses his position to cause harm to another person for any personal reason, it
will be called misuse of his position and discretion.
(ii) Lack of jurisdiction
When an officer acts beyond his jurisdiction, the affected person can appeal against him in the
court. Every officer gets certain powers in some particular area. If he works outside this, it will
be considered an encroachment on his jurisdiction.
(iii) Error of Law
When an officer is given the power to enforce the law, he imposes responsibilities on citizens
that are actually beyond those limits. Therefore, the court takes action to prevent
misinterpretation of the law.
(iv) Error of Process
The court has the right to see that government officials do all the work while governing. If
office records show that a mistake has been made or something has been omitted in the
process, the judiciary can declare that administrative action illegal.
(v) Error of facts
If a government official, in any of his administrative work, without properly ascertaining the
facts, gives an order causing harm to a citizen, then the citizen can take the help of the court to
protect his rights.
Means of Control Over Public Administration
Simple Treatment Extraordinary treatment

(i) Judicial review writ jurisdiction
(ii) Appeal against the government (i) Habeas Corpus
(iii) Cases against government (ii) Quo warranto
officials/administrative officers.
(iii) Certeorari
(iv) Appeal against taxation
(iv) Mandamus
(v) Exercise of legal powers –
Delegated legislation (v) Prohibition
(vi) Declaring the executive system

unconstitutional.
(vii) Appeals against administrative
decision
(viii) Public Interest Litigation

Simple Treatment
(i) Judicial Review
Laws, executive orders, rules and regulations passed by the legislature can be reviewed by the
judiciary under judicial review.
There is a provision for judicial review in Article 13 of the Indian Constitution.
Exception: Subjects included in Schedule 9 of the Indian Constitution before 1973 cannot be
subject to judicial review.
(ii) Appeal against the government

Freedom and rights are given to citizens by the Constitution. The Constitution itself is
responsible for their protection. To protect them, a case can also be filed against the state in the
court. Article 300 of the Indian Constitution states that an indictment can be presented by or
against the Government of India.
(iii) Cases against government officials/administrative officers.
All government officials are answerable to the court for their actions. Any citizen can take
refuge in the court in case of any complaint against the administration. Action can be taken
against the ministers of the state government and the union government like an ordinary
citizen. But the Indian Constitution provides immunity from judicial proceedings to the
President and Governors. The President cannot be arrested or sentenced to imprisonment
during his tenure.
(iv) Appeal against taxation
The executive has the right to arrange finance through taxes to carry out public works. Only
that tax can be collected which is lawful. According to Article 265 of the Constitution, no tax
should be imposed or collected except under the authority of law. If a government collects
taxes illegally then the court can investigate its legality.
(v) Exercise of legal powers – Delegated legislation
In India, the courts have been given the power to determine in relation to any question of
delegated legislative power whether there was legal authority for the delegation or not or
whether the arrangement made falls within the legal limits or not.
(vi) Declaring the executive system unconstitutional.
In India, the executive also makes some laws under the process of devolved administration.
Articles 123 and 213 of the Constitution have the power to issue ordinances to the President
and the Governor during the lapse of the Parliament and the State Legislatures. If this
arrangement made by the executive is not in accordance with the Constitution, then the
judiciary can declare it illegal.
(vii) Appeals against administrative decision
From time to time, the courts keep hearing appeals against the decisions of the administrative
authority. The method of judicial control is adopted only where there is a right to make such
an appeal by law. This facility of appeal is provided in questions related to legal interpretation.
(viii) Public Interest Litigation
Public interest litigation is the process under which poor and helpless people, who are unable
to approach the court for their rights due to social disability, poverty and ignorance, file a
petition for their rights in the court on their behalf by any public representative or social
worker. is kept. It is not necessary that the PIL be presented before the court through a lawyer
as per the legal procedure. The court can also accept information from ordinary postcards and
newspapers under PIL.
In this way, the judiciary also controls public administration through PIL.

Extraordinary Remedies
Various types of writs are issued by the judiciary to keep control on the administration. According
to Article 32(2) of the Indian Constitution, the Supreme Court has been given the power to issue
necessary orders, instructions and articles to protect the rights and liberties of the citizens.
According to Article 226, similar powers have been given to the High Courts.
A brief mention of these various articles of judicial control over administration is as follows:
(i) Habeas Corpus:
The meaning of habeas corpus is to present the body.
This Latin word means to be physically present. According to this article, permission has to
be given to a person who has kept another person captive. That person has to order that the
arrested person be produced before the court. Its main goal is to free the person who has been
detained illegally. Through this, the arrested person is immediately presented in the court
and the legality of his arrest is examined. The main objective of this article is to stop the
tradition of illegal imprisonment.
(ii) Certiorari:
Its literal meaning is to be certified or to be certain. It is a writ which is transmitted by a High

Court to a lower court of record or other judicial functioning agency or officer. Through writ
of certiorari, a larger court can order all types of records from a smaller court to investigate
whether the subordinate court is acting beyond its jurisdiction. This article is often circulated
against judicial work. On this basis the decision of the smaller court gets stayed or gets
rejected.
(iii) Mandamus:
The literal meaning of this article is to give permission. This is an article that is circulated to
government officials. By this the officer is ordered to perform those duties which he has
forgotten till now. This article is disseminated voluntarily by the Court. Through this article
the court can compel the government officer to act in one way or the other.
(iv) Quo Warranto
Through the writ of quo warranto, if a person exercises any position or authority illegally, the
court can stop him from doing so. This type of article is circulated under special
circumstances to check the legality of any work in respect of which this article is issued that it
should be government, it cannot be circulated against any individual or non-government
office.
(v) Prohibition:
This writ is issued by a higher court to a lower court. Its purpose is to prevent the court below
from performing a function which is not legally assigned to it. This writ is issued by the High
Court to smaller courts when they function outside their jurisdiction. This article prevents
subordinate courts from considering controversial matters.

Limits of Judicial Control
(i) Excess work in the judiciary.
(ii) Extremely expensive judicial process.
(iii) Delay in judicial decisions.
(iv) Nepotism or uncle-judge syndrome in the judiciary.
(v) Vacant posts of judges.
(vi) Judicial corruption.
(vii) Post mortem only
(viii) Lack of autonomy of the judiciary.
(ix) Lack of awareness.
(x) Highly complex working system.
(xi) Judiciary can take action against public servants only in certain circumstances.
(xii) Judges are experts in law and constitution rather than in public administration.
(xiii) The judiciary can take decisions against public administrators only when someone appeals.
(xiv) Judiciary cannot interfere in the internal functioning of Parliament.
Measures to Make Judicial Control Effective
(i) The vacant posts of judges should be filled.
(ii) Judicial corruption should be reduced.
(iii) Nepotism should be eliminated in the judiciary.
(iv) Everyone should get free and speedy justice.
(v) The workload in the judiciary should be reduced.
(vi) Parallel courts, alternative courts and tribunals should be established.
(vii) Judges and judicial officers should be appointed.
(viii) The cases pending in the court should be settled as soon as possible.
(ix) Judiciary should be given autonomy.
(x) The functioning of the judiciary should be simplified.
(xi) Judiciary's scope of action against public servants should be expanded.
(xii) Judges should also have a comprehensive understanding of public administration.
(xiii) Additional courts, village courts and public grievance courts should be established.
◼◼◼

Administrative Setup
17 and Administrative Culture in Rajasthan
• The culture adopted by the executive to run the administration is called administrative culture.
• Under this, traditions, values, principles etc. of administrative officers are included.
Features of Indian Administrative Culture

(i) Indian administration is a colonial legacy.
(ii) Administration is conservative and traditional.
(iii) Huge size of bureaucracy.
(iv) Red tapism
(v) Administrative corruption.
(vi) Important role of generalists in policy-making.
(vii) Strict adherence to the hierarchy.
(viii) Principle of proper medium.
◼◼◼

18 Governor
Governor
State Government
Legislature Executive Judiciary

+ 
Governor Governor (153) + Chief Minister high Court
+ (164) + 
Legislative Council of Ministers (163) (Article 214)
Assembly Permanent Executive (Public 
Servant) Secretariat Subordinate
 Courts
Directorate
Functions And Powers of The Governor

(i) Executive Powers of the Governor
• The Governor is the head of the executive of the state. Article . 154,
• Appointments of Chief Minister and Council of Ministers. (Article 164)
• Appointment of Tribal Welfare Minister. (Article 164 (1)
Example: Madhya Pradesh, Jharkhand, Bihar, Orissa.
• Division of departments among ministers. Article 166 (2)
All administrative work and rules of business in the state are done in the name of the
Governor.
• Appointment of Advocate General, Article 165,
• The Governor can ask for information from the Chief Minister and it is the duty of the
Chief Minister to provide the information to the Governor.
Appointments in Various Commissions
(i) State Election Commissioner in the State Election Commission
(ii) Chairman and Members of Rajasthan Public Service Commission
(iii) Chairman and Members of the State Human Rights Commission
(iv) Commissioner and other Commissioners of the State Information Commission
(v) Lokayukta
• The Governor is also the chairman of various institutions/commissions-
(i) Chairman: Rajasthan Red Cross Society.
(ii) Chairman: State Sainik Welfare Board.
(iii) Chairman: Committee on Welfare of Ex-Servicemen.
(iv) Chairman: Western Region Cultural Center (Udaipur)
(Rajasthan, Maharashtra, Goa, Gujarat)
(v) Patron: Rajasthan Scout Guide Association.
(vi) Chancellor: State University (financed from State funds)

(ii) Legislative powers of the Governor
• The Governor himself is a part of the legislative assembly.
• Summoning the Assembly, proroguing it, dissolving the Assembly(Article - 174)
• Addressing the State Assembly. (Article - 175)
• Special address of the Governor in the Assembly. (Article – 176)
• To appoint the Speaker/Deputy Speaker from among the Assembly members in the
absence of the Speaker/Deputy Speaker. (Article - 180)
• Appointment of Protem Speaker in the Assembly. (Article - 188)
• Taking decisions in cases related to disqualification of assembly members. (On the advice
of the Election Commission of India) (Article – 192)
• On the advice of the Election Commission of India. (Article - 192 (2)
• Nominating 1/6 members in the Legislative Council, (Science, Art, Literature,
Cooperation, Social Service.) (Article – 171)
• Providing permission to bill. (Article – 200)
Governor has options to
Give send for Use of pocket To reserve the bill

consent reconsideration veto for the President
(Private Bill)
• To reserve the bill for the President of-
(i) Bill is unconstitutional.
(ii) Against national interests.
(iii) Against the Directive Principles of State Policy.
(iv) Reduces the powers of the High Court.
(v) It belong to the Union List.
(vi) It’s Belong to subjects of the concurrent list on which laws have been made by the
Parliament.
(viii) Bill related to property rights to property.
• Power to promulgate ordinance (Article 213)
(iii) Financial Powers of the Governor.
(i) To give permission to the Money Bill in the Assembly.
(ii) Control over State Contingency Fund.
(iii) Formation of Finance Commission in the state. (Article 243-I) (Article 243-Y)
(iv) Permission to vote on demands for grants.
(v) To approve the budget. (Article 202)
(vi) To send the Money Bill to the President in case of financial emergency.
(iv) Judicial Powers of the Governor
(i) Pardoning powers - remit, commute, respite, reprieve, pardon – Article - 161
Note: Unlike the President, the Governor does not have the power in matters of death
penalty and court martial.
(ii) Appointment of District Judges. (Article 233)
(iii) The President consults the Governor before appointing the Chief Justice.
(v) Emergency powers of the Governor

If the Governor feels that the constitutional machinery in the state has failed, he can
recommend to the President to impose emergency in the state. (Article-356)
(vi) Power to promulgate ordinances
• If any one House of the State Legislature is not in session, the Governor can issue an
ordinance with the advice of the Council of Ministers and the Chief Minister.
• This ordinance has the same powers as a act passed by the Legislature.
• The Governor can promulgate ordinances only on subjects of state and concurrent list.
• Judicial review of the ordinance can be done.

(vii) Discretionary powers of the Governor –
• The definition of the discretionary powers of the Governor is found in Article 163 (2),
which is as follows -
• Appointment of the Chief Minister and dismissal of the Council of Ministers in case of a
hung government. (Article 164 (1)
• Dissolution of the Assembly. (Article 174)
• To receive various legislative and administrative information from the Chief Minister.
(Article 167)
• Giving assent to bills or sending them for reconsideration or not giving assent to private
bills. Reserve the bills for the President. (Article 200)
• To send the bill to the President. (Article 201)
• To recommend to the President for the imposition of President's rule in the state. (Article
356)
• The Governor can ask the ruling party to conduct a majority test.
• Special powers of the Governor in relation to the following states:
Article State
371 Gujrat and Maharashtra
371(A) Nagaland
371(B) Asam
371(C) Manipur
371(D) Andhra Pradesh + Telangana
371(F) Sikkim
371(G) Mijoram
371(H) Arunachal Pradesh
371(I) Goa
371(J) Karnataka
• Granting permission for FIR against the Chief Minister.

Bihar → By A.R. Kidwai against Lalu Prasad Yadav.
Karnataka → By Hansraj Bhardwaj against Yeddyurappa.

Governor as Representative of The Central Government
• Arguments in Favor
(1) Appointment: By the President on the recommendation of the Central Government
(Article 155)
(2) Tenure: During the pleasure of the President (Article 156)
(3) Unnecessary reservation of bills for the President by the Governor (Article 200)
(4) Article 356 i.e. misuse of emergency power of President's rule.
(5) The Governor will ensure the implementation of the administrative instructions of the
Central Government in the states. (Article. 256/257)
(6) According to the order of 2015, the Governor will provide information to the President
and the Prime Minister's Office before traveling abroad.
(7) Transfer of the Governor by the President.
(8) Governor's Pension from the Consolidated Fund of the Centre.
• Arguments in Opposition
(1) This is a constitutional post. (Article 153)
(2) The source of its powers is the Indian Constitution and not the Central Government.
(3) Permanency of tenure – decision of K.G. Balakrishnan bench in 2010.
(4) The salary and allowances of the Governor are received from the Consolidated Fund of
the State.
Arguments in favor and against the current Governor Appointment Process

Arguments In Favor of The Current Governor Appointment Process
(1) Constitutional inspiration from Canada.
(2) Unnecessary disputes will increase between the Chief Minister and the Governor if the
Governor is also elected.
(3) To reduce expenditure on elections.
(4) The Governor is only the constitutional head and not the actual head.
(5) To effectively implement the orders of the Central Government in the state.
(6) Prevents the feeling of separatism in the states. (via Article 356)
(7) This is a decision taken by the Constituent Assembly.
(8) It is necessary to have a strong center in the federal government system.
(9) The Chief Minister will want to make himself powerful due to which the post of the Governor
will not remain powerful.
Arguments Against the Current Governor Appointment Process
1. The Governor is not a resident of that state, hence he is not connected with the local people.
2. The Governor is appointed by the Central Government. Therefore, he acts as the
representative of the Central Government.
3. Unnecessary reservation of bills by the Governor. (for the President)
4. Due to the current appointment process, the post of Governor is becoming a pasture for big
politicians.
5. Unnecessary expenditure in the election of the Governor.
6. In a federal system of governance, appointment of the Governor by the Center would be an
interference in the autonomy of the state.
7. In a parliamentary democracy, when the President is elected, then why not the Governor?
• Sarojini Naidu: “The Governor is like a bird imprisoned in a golden cage.”
• Vijayalakshmi Pandit: “The attraction of salary”
• Pattabhi Sitaramaiya: “Hospitable one”

Privileges of the Governor –
• The Governor has the following privileges under Article 361-
• No criminal case of any kind can be initiated during the tenure of the Governor.
• Information about civil cases against the Governor will have to be given 2 months in advance.
• The court cannot order the arrest of the Governor while he is in office.
• The Governor is not responsible to the court for any of his actions.
Other Privileges
• The Governor's salary is charged on the Consolidated Fund of the State and his pension is
charged on the Consolidated Fund of the Centre.
• The salary and allowances of the Governor cannot be cut while he is in office.
Difference between President and Governor
President Governor
It is mentioned in (Article 52-78) in Part 5 of
It is mentioned in (Article 153-167) in Part 6
(1)
the Constitution. of the Constitution.
(2) He is the head of the executive of the union.He is the head of the executive of the state.
(3) There is indirect election. He is nominated by the President.
The Chief Justice of the High Court
The oath to the President is administered by
(4) administers the oath to the Governor.
the Chief Justice of the Supreme Court.
There should be 50 proposers and 50

Its appointment is made by the President
(5) seconders in the Lok Sabha for a
on the advice of the Central Government.
Presidential candidate.
The Governor holds office during the
(6) The tenure of the President is 5 years.
pleasure of the President.
The President submits his resignation to the
The Governor submits his resignation to
(7) Vice President.
the President.
The Governor is removed by

(8) The President is removed by impeachment.
impeachment.
The Governor has constitutional discretion.
The President does not have constitutional Such as reserving bills for the President,
(9)
discretion. recommending to the President for
emergency in the state.
The salary and allowances of the President
The salary and allowances of the Governor
are charged on the Consolidated Fund of
(10) are charged on the consolidated fund of the
the Union.
state.
Difference Between Pardoning Powers of President And Governor

President Governor
It is mentioned in Article 72 in Part-5 of the It is mentioned in Article 161 in Part 6 of
(1)
Constitution. the Constitution.
The President can also pardon the death The Governor cannot pardon the death
(2)
penalty. penalty.
The President can also pardon the The Governor cannot pardon the
(3)
punishment of a military court. punishment of a military court.
The President takes decisions in matters of The Governor takes decisions in matters of
(4)
the Union List and the Concurrent List. the State List and Concurrent List.

Recommendations for the Governor
1. Sarkaria Commission, 1983
• One should not be active in politics.
• Must not be a resident of the state.
• People from minority community should be given opportunities.
• The Governor should be eminent in any social/scientific/art/literary field.
• Reasons should be given before removing the Governor.
• If he is in politics then he should be in 'Cooling of Period'.
• Consultation should be taken from the Speaker of the Lok Sabha and the Chairman of the
Rajya Sabha.
• The Governor should not be removed without any solid reason before his tenure (5 years).
• Article 356 should be used as the last option.
2. Poonchi Commission, 2007
• There should be certainty in the tenure of the Governor.
• The Governor should have the power to order action/trial against the Council of
Ministers/Minister.
• To remove the Governor, a process like impeachment should be adopted in the state
legislature.
• A committee should be formed for the appointment of the Governor. In which the
following members should be included – Prime Minister, Home Minister, Lok Sabha
Speaker, Chief Minister.
• The Governor should not appointed as the Chancellor.
• The Governor should appoint a person who has been away from active politics for 2 years.
• The Governor should not delay an ordinary bill for more than 6 months.
◼◼◼

CHIEF MINISTER AND
19 COUNCIL OF MINISTERS
CHIEF MINISTER
Other Qualifications for the Post of Chief Minister
(i) Received party support
(ii) Popular image among the public
(iii) A person of integrity
(iv) Shrewd politician
(v) Choice of high command
Functions and Role of Chief Minister
(1) As the head of the Council of Ministers
• The State Council of Ministers is formed and selected by the Chief Minister.
• The Chief Minister also decides how many ministers should be of cabinet level in the
Council of Ministers and which department will be allotted to which minister.
• In case of coalition governments and lack of clear majority, the person holding the post
of Chief Minister has to face various types of problems continuously.
• The Chief Minister establishes coordination and contentedness in the Council of Ministers.
• The Chief Minister, along with the Cabinet consisting of senior Cabinet level ministers,
takes decisions regarding policy, legislation, budget planning and development of the state.
• In case of various types of controversies, scams and other suspicious situations, the
Chief Minister reshuffles the Council of Ministers or asks for resignation from a
particular minister.
• The Chief Minister calls various meetings of the Council of Ministers.
• The Chief Minister acts as a link between the Council of Ministers and the Governor.
• The entire cabinet is collectively responsible to the Legislative Assembly.
• It is the responsibility of the Chief Minister to provide clarification to the general public
or the press about the disputes, scams or actions of the Council of Ministers.
(2) As the head of the state administration:
(i) The Chief Minister keeps various departments of the state government with himself.
Such as Personnel Department, Administrative Reforms Department, Planning Department.
(ii) The Chief Minister is also the chairman of the authorities, councils and boards in the
state. Like State Disaster Management Authority, State Planning Board, Chief Minister
Advisory Council.
(iii) To determine various policies related to the employees of the State Government. Such
as training policies, pension policies, transfer policies.
(iv) To have direct control over 6.5 lakh employees of the state government.
(v) Direct control over various services. Such as IAS, IPS, IFS, RAS
(vi) The role of the Chief Minister is clearly visible in the appointment of the Chairman and
members of the State Public Service Commission, the Advocate General of the State
and the Vice Chancellors of the Universities.
(3) As a representative of the State Government

The Chief Minister represents the State Government at various forums of the Central
Government. Such as NITI Aayog, Inter-State Council meeting, National Unity Council,
Inter-State Water Commission, GST Council, Cabinet Secretary's meeting.
(4) As coordinator in state administration
(i) Coordination among departments
(ii) Coordination among ministers
(iii) Coordination between services
(iv) Coordination with the employees' union.
(v) Coordination with the Central Government
(5) Constitutional responsibilities of the Chief Minister
It shall be the duty of the Chief Minister of every State - (Article 167)
(i) To communicate to the Governor of the State all decisions of the Council of Ministers
relating to the administration of the affairs of the State and proposals for legislation.
(ii) To furnish such information relating to the administration of the State affairs and
proposals for legislation as the Governor may call for.
(iii) If the Governor requires, he shall submit for the consideration of the Council of
Ministers any matter which has been decided by a Minister but which has not been
considered by the Council of Minister.
(6) As the spokesperson of the state government
It is a normal process for the Chief Minister to announce policies, programs and schemes and
get them implemented accordingly. By calling the Chief Minister among the general public
on various occasions, not only popular announcements are made but also public confidence
in the implementation of those announcements is increased. The Chief Minister presents his
opinion to the media on various international, national and local issues. Such as inflation,
unemployment, international issues (Ukraine)
(7) As advisor to the Governor
The Chief Minister informs the Governor about various decisions of the Cabinet, calling the
Assembly session, proroguing the session, preparing the address to the Governor,
dismissing the Council of Ministers, getting the bills approved by the Governor and
providing any information required by the Governor, etc.
The Chief Minister provides advice to the Governor in various appointments. Such as -
(i) Appointment of ministers
(ii) Advocate General (Article 165)
(iii) Chairman and members of Rajasthan Public Service Commission (RPSC)
(iv) Lokayukta
(v) State Information Commission (SIC)
(vi) State Election Commissioner (SEC)
(vii) Appointment of Vice-Chancellors of State Universities.
(8) As a creator of public opinion

A popular Chief Minister can greatly influence the specific opinion or awareness among
public on any problem and issue in any state. The Chief Minister also has to remain
connected with the people of the state. From time to time one has to address them.
(i) Shri Mohan Lal Sukhadia: Father of Panchayati Raj in Rajasthan.
(ii) Shri B.S. Shekhawat: Antyodaya Yojana.
(iii) Smt. Vasundhara Raje: Women Empowerment.
(iv) Shri Ashok Gehlot: Father of administrative economy and administrative reforms in
Rajasthan.
(9) Legislative work
(i) Summoning and proroguing the Assembly and recommending dissolution of the
Assembly to the Governor.
(ii) All government bills are tabled in the Assembly after the approval of the Chief
Minister.
(iii) To request the Governor to call a special session of the Legislative Assembly.
(iv) Recommending issuance of ordinance to the Governor.
Role/challenges of Chief Minister in coalition governments
(i) To decide the size of the Council of Ministers.
(ii) Selection of ministers in the Council of Ministers.
(iii) Portfolio allocation to ministers.
(iv) Coordination among ministers.
(v) To develop consensus in policy making.
(vi) Control of corruption in state administration.
(vii) To develop cordial relations with the Governor in the coalition government.
Factors/challenges determining the position of the Chief Minister
(i) Party gets clear majority
(ii) Coalition government
(iii) Popular image of the Chief Minister
(iv) Relations with the media
(v) Relations of the Chief Minister with the Central Government
(vi) Relations with the high command
(vii) Coordination with the Prime Minister
(viii) Relationship with the Governor
(ix) Government of the same political party at the centre.

COUNCIL OF MINISTERS
Composition of the Council of State Ministers: Article. 163 (1)
(i) Cabinet Minister (ii) Minister of State (iii) Deputy Minister
(iv) Parliamentary Secretary
Difference between Council of Ministers and Cabinet
Council of ministers Cabinet
(1) All ministers are involved. Only cabinet ministers are included.
(2) All departments are included in this. Only important departments are
included.
(3) Only important departments are included. Is comparatively less.
(4) Constitutional provisions- 163 (1) Not mentioned in the original
Constitution. (Mentioned in the context
of Article 352 by 44 Constitutional
Amendment 1978.)
(5) The size of the Council of Ministers is fixed. The size of the cabinet is not fixed.
(6) Its meetings are held monthly. Its meetings are held weekly.
(7) The Council of Ministers also includes the The Cabinet is a part of the Council of
Cabinet. Ministers.
Functions and powers of the Council of Ministers
(i) To provide advice to the Governor in various appointments. Such as: Lokayukta, State
Election Commissioner, State Public Service Commission members etc.
(ii) Formulation of laws and policies in the state.
(iii) To amend the existing policies.
(iv) To approve the budget.
(v) Recommending issuance of ordinance to the Governor. (Article 213)
(vi) Approval of various policies related to employees. Such as: training and transfer policy.
(vii) Taking decisions in matters of disciplinary proceedings related to employees.
(viii) Providing administrative and legislative information to the Governor.
(ix) To formulate policies and laws.
(x) As political heads of departments.
(xi) Coordinating role among public servants.
(xii) Providing information sought by the MLAs and answering their questions.
Note :
(i) Shadow Council of Ministers in Rajasthan (initiated in the 13th Legislative Assembly, Chief
Minister - Vasundhara Raje Scindia)
(ii) Parliamentary Secretary, started in Rajasthan; (Fourth Legislative Assembly, Chief Minister -
Mohan Lal Sukhadia)
Principles of Council of Ministers
(i) Principle of Collective Responsibility
• The Council of Ministers is collectively responsible to the Legislative Assembly. [Article 164]
• If the no-confidence motion is passed, the entire Council of Ministers has to resign.
(ii) Principle of individual responsibility
• The Council of Ministers is personally responsible to the Governor. [Article 164]
• Ministers work personally as per the pleasure of the Governor.
Note: 91th Constitution Amendment, 2003
• The size of the Council of Ministers was fixed. (15% of the total members of the Legislative
Assembly)
• Membership of a minister is terminated if he is found guilty of defection.
• If he is guilty of defection, he cannot hold office of political gain.
◼◼◼
20 State Secretariat
• Establishment: In 1949 by Rajasthan Administrative Ordinance, 1949.
• The Secretariat is the top most administrative body of Rajasthan.
• The main function of the Secretariat is “Policy Making”.
Structure of the Secretariat
Political Structure Administrative Structure
Chief Secretary (CS)

Chief Minister
Additional Chief Secretary (ACS)
Cabinet Minister
Principle Secretary (PS)
State Minister
Secretary
Deputy Minister
Additional Secretary/Joint Secretary
Parliamentary
Deputy Secretary
Secretary
Under Secretary
Assistant
Secretary
Features of Secretariat
(i) The Chief Minister is the political head of the Secretariat.
(ii) The Cabinet Minister is the political head of the department.
(iii) The Chief Secretary is the administrative head of the Secretariat.
(iv) Additional Chief Secretary/Principal Secretary is the administrative head of the
department.
(v) The secretariat is dominated by generalist officers.
(vi) The Secretariat is called the “brain” of the state administration.
(vii) Inter-departmental transfers of secretaries can take place in the secretariat.
(viii) Secretaries in the secretariat are closer to the politicians.
(ix) About 48-50 departments are working in the Secretariat.
(x) Secretariats are generally located in capitals.
(xi) Most of the designations in the secretariat are “Secretary”.

Need for Secretariat
(i) For effective implementation and evaluation of policies.
(ii) Excessive busyness/lack of concentration of cabinet and other ministers.
(iii) To provide stability to the governance system.
(iv) For collection of information. Such as collection of policies, laws, plans, programmes,
ordinances, circulars etc.
(v) To ensure proper utilization of resources.
(vi) To provide general advice/information to the Ministers.
(vii)To establish effective coordination among departments.
(viii) For effective resolution of public grievances.
Functions and Role of Secretariat

1. Role in general administration
(1) Allotment and distribution of residences and vehicles to ministers and public servants.
(2) To manage the circuit house.
(3) Organizing fairs and festivals.
(4) Organizing the oath ceremony of the Council of Ministers in the state.
(5) Announcing government holidays.
(6) Work related to arrangements and protocol during the visit of President, Vice-President,
Prime Minister, Union Minister, other high officials, representatives of foreign countries, high
level guests in Rajasthan.
All the above-mentioned works are done by the “General Administration Department” of the state
government.
2. Role in policy making
The main function of the Secretariat is policy-making.
(1) The Secretariat provides advice and information to the Chief and ministers in policy
making.
(2) Various amendments are also made in the ongoing policies and schemes by the
Secretariat.
(3) As the center of power, the Secretariat is the source of all powers of the state government.
(4) It is the main policy making body of the state government.
(5) It provides assistance to the Chief Minister and other ministers in formulating policies on
all matters related to state administration.
(6) This is the center of initiation and modification of policies.
All the above mentioned tasks are done by the “Department of personal” of the State
Government.
3. Role in personnel administration

(1) Policies related to recruitment, training, promotion, transfer etc. are made by the
Secretariat.
(2) Taking decisions in disciplinary proceedings against gazetted officers.
(3) To create new public services in the state.
(4) Control over All India Service and RAS.
(5) Work related to service allocation of RAS and subordinate services.
All the above mentioned works are done by the “Personnel Department” of the state
government.

4. Role in administrative reforms
(1) Formulation of various laws and policies for administrative reforms and innovations in
the state. Like Rajasthan Public Service Guarantee Act 2011 and Rajasthan Right to Hearing Act.
2012
(2) To conduct surprise inspection of government offices in the state.
(3) To implement and evaluate administrative reforms related to all the departments and
institutions of the government.
It is noteworthy that “Organization and Management” unit has been established (1955) under
the Administrative Reforms Department.
5. Role in legislative work – The secretariat provides various types of information and
assistance to the legislature.
(1) The work of providing assistance in Summoning the session of the Legislature.
(2) Providing assistance in adjourning the session.
(3) Providing various information to the honorable MLAs in the House.
(4) Preparing drafts of bills for ministers.
(5) To amend the ongoing bills.
(6) To prepare answers to questions raised in Parliament or State Assembly regarding the
administration of the State Government.
(7) Matters related to representation of administration before legislative committees,
formulation of new bills, amendment of old laws etc. come under the jurisdiction of the
Secretariat.
6. Role in coordination work - The Secretariat ensures coordination between the following-
(1) To establish coordination between the Secretariat and the Directorate.
(2) To establish coordination among the departments of the Secretariat.
(3) Coordination among public servants in the Secretariat.
(4) Coordination between Divisional Commissioner and District Collector.
(5) Coordination between state government boards and corporations.
All the above mentioned works are done by “Chief Secretary and Chief Minister Offices”.
7. Role in financial administration

(1) To prepare approval/revision of the financial estimates of the departments for the
coming year.
(2) Financial allocation to government programs and schemes.
(3) To approved new recruitments.
(4) To conduct internal audit of departments.
(5) Issuance of Financial Code (expenditure related guidelines for government employees)
(6) Approval of the budget received by the departments.
(7) Administrative control over Rajasthan Accounts Service also belongs to this department.
All the above mentioned functions are done by the “Finance Department” of the Secretariat.
8. Information collection
(1) It collects data of ongoing government programs and schemes.
(2) Collect information related to old schemes and programs.
(3) Information related to beneficiaries.
(4) Information related to laws, ordinances and circulars.
(5) Making policy, executing and evaluating policy with correct information and data.
(6) The Secretariat is responsible for collecting, classifying and analyzing information on
all aspects of state administration and sending it to various institutions as and when required.
“Finance Department” and “Planning Department” are responsible for the work in the
Secretariat.

9. Disaster Management
It ensures the following for disaster management:
(i) To rehabilitate the affected people.
(ii) Ensuring food and civil supplies.
(iii) Providing medical and health facilities.
(iv) Indemnity and compensation.
All the above mentioned tasks are completed by the Disaster Management Department, State
Disaster Management Authority and High Level Committee on Disaster Management.
10. Relations with Center and States

Contacting the Central Government and other states by the State of Rajasthan comes under the
jurisdiction of various departments of the State Secretariat. Matters regarding assistance, loans,
instructions related to programs etc. received from the Central Government are settled in the
Secretariat itself. The offices of the Chief Minister and Chief Secretary play an important role in
this regard.
Criticism of Secretariat
(i) Illogical “noting system” of the Secretariat (unnecessary delay in actions and decisions)
(ii) More number of employees working in the Secretariat.
(iii) Excessive centralization of powers in the Secretariat.
(iv) Role of generalists only. (Dominance of generalists)
(v) Misuse of resources in the Secretariat.
(vi) In the public servants working in the secretariat, instead of integrity, honesty, non-
partisanship and impartiality, favorability of power is found.
Measures to Empower the secretariat
(i) The noting system should be made logical.
(ii) The powers of the Secretariat should be decentralized to directorates or executive
departments.
(iii) Secretariat and directorates should be merged.
(iv) The code of conduct should be strictly enforced by public servants in the secretariat.
(v) The rules and regulations in the secretariat should be simplified.
(vi) Specialist should be given entry into the secretariat.
It is noteworthy that in Rajasthan, Harishchandra Mathur Commission (1963), Gopal Krishna
Bhanot Commission (1992) and Shivcharan Mathur Commission (1999) etc. have made various
recommendations in the Secretariat.
◼◼◼

21 Directorate
Directorate/Executive Department
The Directorate is a subordinate body of the Secretariat which performs the work related to
“policy implementation”. Directorate system exists in Rajasthan.
1. Features of the Directorate
(1) The Directorate is a subordinate institution of the Secretariat.
(2) The main function of the Directorate is policy implementation.
(3) Directorates are generally established in cities other than the capital. Such as
Directorate of Education - Bikaner, Revenue Board - Ajmer, Excise Directorate -
Udaipur.
(4) Directorate is also called “house of directors”.
(5) Personnel employees and officers of the Directorate work in the same
department/parent department.
(6) The designations of the officers of the Directorate are Director, Chairman,
Commissioner, Inspector General.
(7) The Directorate is the link between the regional offices and the Secretariat.
(8) Directorate is also called the “hands and feet” of the state administration.
Hierarchy of Directorate:
Director

Additional Director/Joint Director

Deputy Director

Assistant Director
Need for directorate system
(i) Special educational and technical knowledge is required to formulate policies and
programs of some departments like Finance, Education, Health, Agriculture and Home
Department etc. This work cannot be carried out by the Secretariat alone but can be
completed with the help of the Directorate.
(ii) The reach of the secretariat to the common people is limited, whereas through the
Directorate, policies and programs can be effectively and easily communicated to the
common people.
(iii) The work of the Secretariat is to formulate effective policies and programs with the
help of politicians and the government, whereas only the Directorate can do the work
of implementing them effectively and providing services to the general public.
(iv) The officers of the Secretariat have general knowledge whereas the employees of the
Directorate are capable of doing technical or specialized work.

(v) Generalists in the Secretariat and specialist officers in the Directorate may be provided
separate gradation chains.
(vi) Due to the inclination towards macro to micro and towards general to specialization,
directorates have been established at present.
(vii) Just as the secretariat system works to assist the Council of Ministers, similarly the
Directorate system works to assist the Secretariat.
2. Functions of the Directorate
(1) To implement the policies, plans and campaigns of the department.
(2) To provide technical or special advice to Ministers.
(3) To do work related to promotion and transfer of employees of the department.
(4) To take disciplinary action against the employees of the department.
(5) To inspect the regional and district level offices of the department.
(6) Research and research related work in the department. Such as the magazine of
Education Department (Shivira) and the magazine of Revenue Board Ajmer (Ravira).
(7) Preparing the budget of the department.
(8) Allocating grants in the department and re-appropriating the budget.
Difference between secretariat and directorate
Secretariat Directorate
Secretariat is the apex body of the state The Directorate is a subordinate
(1)
government. institution of the Secretariat.
The main function of the Secretariat is The main function of the Directorate is
(2)
policy-making. policy implementation.
Dominance of generalists is found in The Directorate is dominated by
(3)
the secretariat. specialist.
The secretariat is generally established Directorates are established in the capital
(4)
in the capital. as well as other cities.
(5) It is called “the house of secretaries”. It is called the “House of Directors”.
To provide general advice to the It provides special/technical advice to
(6)
Ministers. ministers.
It is called the “brain” of the state It is called the “hands and feet” of the
(7)
administration. state administration.
Directors are a little distant in
(8) Secretaries are closer to the ministers.
comparison to ministers.
They may have inter-departmental Their transfers can take place in the same
(9)
transfers. department.
The size of the Secretariat is less The size of the Directorate is larger than
(10)
(smaller) than that of the Directorate. that of the Secretariat.
The head of the secretariat is called The head of the directorate is called
(11)
Chief Secretary. “Director”.
(12) Secretariat is a staff agency. The Directorate is a line agency.

Secretariat-Directorate Relations
Arguments in favor of directorate

Arguments in favor of secretariat system
system
There is often administrative inefficiency
The employees of the secretariat
among the public servants at the
(1) behave autocratically and like a central
directorate level, hence the secretariat
authority.
itself exercises control.
The Secretariat has the responsibility of The officials of the Secretariat do not
formulating policies and programs as per have clear knowledge of the technical
(2)
the wishes of the Ministers and the problem, hence they impose their
Government. policy only on the Directorate.
If even the delegated powers are not
The Directorate does not have
utilized by the employees at the
(3) sufficient powers to ensure simplicity
directorate level, then how will they
and clarity in its functioning.
utilize more powers?
The pay scale and hierarchy of the
Technical officers of the directorate are
(4) Secretariat are high which is unfair to
generally narrow minded.
the Directorate.
There is no biasness towards any cadre,
service or post in the secretariat, hence the The Secretariat makes indefinite delays
(5)
entire department can be controlled in taking important decisions.
impartially.
The programs, policies or plans made by The role of the Directorate in program,
(6) the Directorate are found to be policy, law and planning formulation
incomplete, immature and impractical. is very limited.
◼◼◼

22 CHIEF SECRETARY
The first Chief Secretary of India was George Hillary Warlow appointed by Lord Wellesley (1798).
• First Chief Secretary of Rajasthan - K. Radha Krishnan.
• First Chief Secretary of Rajasthan Cadre - B.S Mehta.
• Present Chief Secretary - Mrs. Usha Sharma
• Maximum tenure - B.S. Mehta.
• Minimum tenure - Rajeev Swaroop.
• First SC Chief Secretary - Shri Nirajan Arya.
• First ST Chief Secretary - O.P. Meena.
• First woman Chief Secretary - Mrs. Kushal Singh.
In Rajasthan since 1973, the Chief Secretary is the senior most public servant of the state.
Qualifications for Chief Secretary
(i) Senior most public servant. having experience as Additional Chief Secretary.
(ii) Excellent service record.
(iii) Trust worthy of the Chief Minister.
(iv) One not accused of corruption, embezzlement or financial irregularities.
Tenure : Till pleasure of Chief Minister
Functions/Role of Chief Secretary

1. As an advisor to the Chief Minister
(1) Advising the Chief Minister in policy-making.
(2) To provide assistance to the Chief Minister in approving policies.
(3) Providing various information, data and facts to the Chief Minister.
(4) Providing assistance to the Chief Minister during the meetings of various commissions
and councils of the Centre.
(5) The Chief Secretary, based on his long administrative experience, helps in striking a
balance between the Chief Minister's decisions, their administrative implementation
and results.
2. As a Cabinet Secretary
(1) Providing information about cabinet meetings to ministers.
(2) To inform the ministers about the purpose of the cabinet meeting.
(3) Providing advice to Chief Ministers and Ministers during the meeting.
(4) Preparing minutes of meetings with cabinet.
(5) To implement the decisions of the Cabinet.
(6) To establish coordination among the sub-committees of the Cabinet.
(7) The Chief Secretary is also the Secretary of the State Cabinet.
(8) Performs the important task of keeping records of the decisions taken by the Cabinet.

3. As an Administrative Officer
(1) As an administrative officer, the Chief Secretary is the head of the public services.
(2) As the head of the civil servants, it is the responsibility of the Chief Secretary to
maintain their high morale.
(3) Hearing various problems related to transfer, promotion and disciplinary action of
public servants.
(4) To establish coordination between various public services of the state.
(5) Reading out the warrant or appointment letter of the Governor, Chief Justice of the
High Court, Lokayukta of the State during the swearing-in ceremony.
(6) Acts as a protector of public servants.
4. As a Co-ordinator
(1) To establish coordination between various departments of the state government.
(2) To establish coordination among the secretaries of the secretariat.
(3) To ensure coordination between the Secretariat and the Directorate.
(4) To ensure coordination between the Divisional Commissioner and the District
Collector.
(5) To ensure coordination between various services. Such as,( IAS, IAS, RAS, etc.)
(6) To ensure coordination between the ministries of the Central Government and the
departments of the State Government.
5. As A Disaster Manager
(1) The Chief Secretary is the chairperson of the high level committee on disaster
management. (in state)
(2) During a disaster, the Chief Secretary ensures-
(i) Rehablitation of affected
(ii) Medical facilities to the affected people.
(iii) To provide monetary compensation to the affected people.
(iv) Providing food and civil supplies to the affected people.
6. Role in Emergency - At the time of national emergency declared due to war, unrest or
financial crisis and declaration of President's rule due to failure of constitutional machinery
in the state, since the cabinet of the state government becomes inactive, hence the Governor
becomes the real power, hence Chief Secretary-
• Acts as advisor to the Governor during emergency.
• Maintains law and order in the state with the help of DGP and IB (Intelligence Bureau)
7. As a Representative of the State Government
The Chief Secretary, as the representative of the State Government, represents the State
Government at various forums of the Centre. Such as NITI Aayog, GST Council, Inter State
Council, Inter State Water Commission, Regional Council, National Unity Council, Cabinet
Secretary's meeting.
8. As Head of Departments
(1) He is the administrative head of the following departments-
• Administrative Reforms Department
• Personnel Department
• Planning Department
• General Administration Department.
(2) He a member of the Central Water Board.
9. Link between the Center and the State - The Chief Secretary works as a link between the
Central Government and the State Government.

Challenges Before the Chief Secretary
(i) Parallel Commissions and Councils. Like- Chief Minister Advisory Council.
(ii) The increasing role of the CMO and the increasing role of the Principal Secretary of the Chief
Minister's Office.
(iii) Politicization of the post of Chief Secretary.
(iv) Uncertainty of office.
(v) Excessive workload.
(vi) Increasing disputes among public services in the state.
(vii) Decreased coordination among departments.
(viiii) Changing scenario and complex policy making process after liberalisation, privatization and
globalization.
Measures to Empower the Chief Secretary
(i) The post of Chief Secretary should be kept away from unnecessary political interference.
(ii) The State Government should make such arrangements legally that the tenure of the Chief
Secretary can be fixed.
(iii) An independent department should be formed which will resolve disputes between services.
(iv) The main task of advising the Chief Minister should be handed over to the Chief Secretary
by clarifying the role of the CMO.
Comparison between Chief Secretary and Cabinet Secretary
Similarities
(i) Both the posts have originated from the Centre.
(ii) Both are senior-most IAS officers.
(iii) Both are the chief advisors to the executive of the state. Like Cabinet Secretary – Prime
Minister, Chief Secretary – Chief Minister
(iv) Both are the administrative heads of the Cabinet Secretariat.
(v) Both implement the decisions of the Cabinet.
(vi) Establish coordination between the sub-committees of both the cabinets.
(vii) Both are the chief coordinators of their respective administrations.
Difference between Chief Secretary and Cabinet Secretary
Chief Secretary Cabinet Secretary
He is the administrative head of the State There is no administrative head of
(1)
Secretariat. the Central Secretariat.
He is the senior most public servant in the He is not the senior most public
(2)
state. servant at the Centre.
The Chief Secretary is the head of some He is not the head of any
departments. department.
(3)
Like-General Administration Department,
Personnel Department
The Chief Secretary exercises “residual He does not have any residual
(4)
powers”. powers.
(5) He is head of the secretaries of state Have the same status as secretaries.
He has a multidimensional role in the state. At center performs functions of
(6) Such as co-ordinator, head of public cabinet secretary only.
services, head of institutions
◼◼◼

DISTRICT ADMINISTRATION :
23 ORGANIZATION, ROLE OF DISTRICT COLLECTOR
AND DISTRICT MAGISTRATE,
SUPERINTENDENT OF POLICE, SUBDIVISION
AND TEHSIL ADMINISTRATION
DISTRICT ADMINISTRATION
The word district is derived from the Latin word Districtus. Districtus refers to an area created for
the purpose of judicial administration, hence the management of public works in a certain
geographical area is called district administration.
Organization of District Administration
Divisional Commissioner (IAS)

District Collector (IAS)

District Police Revenue Development
Level Officer Administration Administration Administration
• Chief Medical Superintendent of Police Additional District Chief Executive Officer
Health Officer (SP) Collector (ADM) (CEO)
(CMHO)   
• District Education Additional Superintendent Sub Divisional Officer Additional Chief
Officer (DEO) of Police (ASP) (SDO/SDM) Executive Officer
  (ACEO)
• District Industries
Deputy Superintendent of Tehsildar (TDR) 
Officer (DIO)
Police (Dy. SP)  Block Development
• District Transport  Deputy Tehsildar Officer (BDO)
Officer (DTO) Circle Inspector (CI) (NTDR) 
  Additional Development
Police Sub-Inspector (SI) Revenue Inspector Officer (ADO)
 (RI) 
Assistant Sub-Inspector of  Assistant Development
Police (ASI) Patwari Officer (Ast. DO)
 
Head Constable (HC) Village Development
 Officer
Constable (VDO)
Features of District Administration

(i) The administrative head of the district administration is the District Collector.
(ii) The main objective of district administration. is ensuring revenue collection and
development works.
(iii) District administration is also called “mini government”. (Approximately at the district
headquarters 48. 50 departments work.)
(iv) Generally a district is the constituency of one MP.
(v) Various units work at the district headquarters, such as Revenue Units → subdivision,
tehsil, sub-tehsil. Development Units → Zilla Parishad, Panchayat Samiti, Gram Panchayat.

(vi) District administration is the link between the state and the villages.
(vii) Every district has a social and cultural identity which definitely influences the district
administration.
(viii) District is an important unit of regional administration in India. It is quite convenient from
geographical point of view.
(ix) District administration in India is the result of historical legacy and has stood the test of time.
(x) The district is the link of cooperation between the citizens and the government and the
backbone of administration.
Functions/Role of District Administration
(i) To Maintain Law and Order
• Imposing curfew in the district (Section 144)
• Providing bail in breach of peace. (Section 151)
• To enforce various laws.
(ii) Revenue Collection – land revenue tax, agricultural tax, irrigation tax, forest tax, etc.
(iii) Revenue work – Hearing of revenue cases, preventing encroachment on government land,
land acquisition.
(iv) Ensuring Developmental Works
• Formulation of developmental programs in the district.
• Implementation and review of development programs. (Through Panchayati Raj
Institutions)
• Enrollment of beneficiaries in the development programs of the Central and State
Government was ensured.
(v) Election work : Organizing various elections. Like- MPs, Assembly members, Panchayati Raj
institutions
• updation of voter lists.
• Implementation of model code of conduct during elections.
• Implementation of voter awareness programs.
• Various works of voters facilitation. Like drinking water, ramp facilities.
(vi) Protocol work : To welcome special and dignitaries in the district. Like- President, Prime
Minister, Chief Minister, Union Minister, Minister of State and Chairman of Constitutional
and Statutory Commissions.
(vii) Ensuring food and civil supplies : Through fair price shops.
(viii) Ensuring the welfare of women, children and the elderly.
(ix) To implement various campaigns in the districts. Like Prashasan Gaon ke Sang, Prashasan
Sahro ke sangh, Nyay apke ke dwar
(x) Readdresal of public grievances: through various committees.
• District Level Public Grievance and Vigilance Committee (Chairman – District Collector)
• Subdivision level Public Grievance and vigilance committee (Chairman – Subdivision
Officer)
(xi) Disaster Management: During various disasters like tsunami, volcano, flood, drought,
locust attack etc. the following roles are played such as rehabilitation of the affected, medical
facilities, supply of food and aid during disaster, and compensation.
Note : The District Collector is the Chairman of the “District Disaster Management Authority”.
(xii) Statistical Work :
• Issuance of various certificates. Such as domicile certificate, marriage, income, birth,
death, expenditure, status certificate.
• Census, Animal Census, and B.P.L. Calculation related work.
(xiii) Personnel administration – Training of employees, annual confidential report, disciplinary
proceedings etc.

DIVISIONAL COMMISSIONER
Divisional Commissioner : A senior IAS officer is appointed to this post.
(i) Direct Control: Ministry of Personnel, Public Grievances and Pensions.
(ii) Transfer : By the Personnel Department of the State Government.
(iii) Tenure : Uncertain
Evolution of Divisional Commissioner system in Rajasthan
1. William Bentinck started the Divisional Commissioner system in India in 1829.
2. This system was started in Rajasthan after independence. In 1949, there were five divisions –
Jaipur, Udaipur, Jodhpur, Kota and Bikaner.
3. In 1962, the Divisional Commissioner system was abolished by Chief Minister Mohanlal
Sukhadia.
4. In 1987, this system was restarted by Chief Minister Haridev Joshi and Ajmer was made a
new division of Rajasthan.
5. On June 4, 2005, Bharatpur became the 7th division of Rajasthan.
6. On August 5, 2023, Banswara, Pali, Sikar became the newest divisions of Rajasthan.
Role of Divisional Commissioner
(1) As a Supervisor and Inspector
(i) Organizing various meetings of District Administration (Central, State, Government)
(ii) Reviewing the work of the departments during the meeting.
(iii) Providing instructions to government officers and employees during review.
(iv) To inspect the government offices located in the division.
(2) As an Administrative Officer
(i) Hearing of public complaints at divisional level.
(ii) Ensuring food and civil supplies in the division.
(iii) To make annual confidential report of subordinate employees. Like- Collector and
Additional Divisional Commissioner.
(iv) Transfer of revenue employees in the division like Revenue Inspector (RI) and Patwari.
(3) As Co-ordinator
(i) To establish coordination among the departmental offices of the district.
(ii) To ensure coordination between the District Collector and subordinate.
(iii) To ensure coordination among district collectors.
(4) As Development Officer
(i) Inspection of development works.
(ii) To identify the obstacles coming in the way of development programs and resolve
them.
(iii) To ensure coordination between the District Collector and subordinate employees.
(iv) To work as advisors to Panchayati Raj institutions.

(5) As a judicial officer - The Divisional Commissioner conducts hearings as a judicial officer
under the following laws -
(i) Rajasthan Excise Act - 1950
(ii) Rajasthan Tenancy Act - 1955
(iii) Rajasthan Land Revenue Act - 1956
(iv) Rajasthan Panchayati Raj Act - 1994
(v) Rajasthan Municipalities Act - 2009
(6) As Patron of Schemes/Projects/Programmes
Division Project
(i) Ajmer Bisalpur Project
(ii) Bikaner Indira Gandhi Canal Project
(iii) Jodhpur Desert Development Program
(iv) Udaipur Tribal Regional Development Program
(v) Kota Chambal Command Area Development Program
(vi) Bharatpur Chambal Command Area Development Program
Arguments in Favour of Divisional Commissioner System
(1) For effective implementation of government schemes.
(2) To ensure coordination between departments, employees, officers and schemes at the
divisional level.
(3) To ensure delegation and decentralization of power in the state.
(4) To reduce the workload of the state government.
(5) Divisional Commissioner is the friend, advisor and guide of the young collector.
(6) To strengthen Panchayati Raj institutions and to provide proper advice.
Arguments Against the Divisional Commissioner System
(1) Since the Divisional Commissioner has only a formal role in administration, it is a financial
burden on the state government.
(2) Unnecessary interference in the work of the Collector (Collector on Collector)
(3) Since the Divisional Commissioner is a senior IAS officer hence he should be appointed in
the secretariat.
(4) The area of the division is very large, hence it is not an effective unit for administration.
(5) This increases level of hierarchy in the organization due to which unnecessary delays in
works occur.
DISTRICT COLLECTOR
Evolution of District Collector Post
• 1772 started by Warren Hastings ( First collector  Rolf Sheldon)
• In 1787, judicial powers were also transferred to the Collector. (Revenue collection + judicial
powers).Hence the collector was also called Little Napoleon.
• In 1793, the judicial powers of the Collector were transferred to the Judiciary.
• After independence in 1947, the post of Collector was re-established in various states. And
Collector is known by the following designations in India-
(i) In Rajasthan  District Collector and District Magistrate
(ii) In Karnataka and Haryana  Deputy Commissioner
(iii) In Uttar Pradesh and West Bengal  District Magistrate
• After providing constitutional basis to Panchayati Raj institutions in 1993, the role of the
Collector in development administration has changed.

• In 2009, Chief Minister Shri Ashok Gehlot started appointing promoted Rajasthan
Administrative Service officers to the post of Collector.
• With the introduction of the Commissioner system in Jaipur and Jodhpur in 2011, the role of
the Collector has also changed in maintaining law and order and as a magistrate.
Collector in Rajasthan
• Transfer/Posting  Personnel Department of Rajasthan Government
• Competent Authority  Divisional Commissioner
• Tenure  Not fixed
Role and Functions of Collector
Being the highest administrative officer at the district level, the District Collector provides
control and supervision to all the departments. At the district level, general works public
administration is carried out by the District Collector as per POSDCoRB belief.
(1) POSDCoRB Related
P : Formulation of integrated development plans in district. (Through District Planning
Committee)
O : To organize human resources (employees) in district.
S : Work related to training of employees, promotion, disciplinary proceedings and
annual confidential report.
D : Providing direction to subordinate employees.
Co : Coordination with employees, employee unions and departments in district.
R : To submit various reports to the State Government.
B : Management of Budgetary resources in the district.
(2) Hearing of public complaints in the district.
(3) Ensuring food and civil supplies in the district.
(4) Management of circuit houses and post bungalows.
(5) To allot government houses.
(6) Management of district treasury.
(7) Animal census and B.P.L. Census in the district.
(8) Issuance of various certificates.
(9) To inspect the government offices of the district.
2. As a Revenue Officer
(1) Revenue collection in the district. Like agricultural tax, irrigation tax, land revenue tax,
stamp tax, registration fee.
(2) Inspection of subordinate revenue employees. Such as Additional District Collector,
Revenue Officer and Sub-Divisional Officer.
(3) Land conversion related work in the district.
(4) Encroaching on government land.
(5) Implementation of revenue campaigns of the state government.
(6) Work related to land acquisition in the district (District Collector is the District Land
Acquisition Officer).
(7) Management of land records in the district. Such as Zamabandi, land map.
(8) To hear revenue cases in the district.
(9) Estimating crops in the district.
(10) To ensure implementation of Rajasthan Tenancy Act, (1955) and Rajasthan Land
Revenue Act, (1956).

(11) Making arrangements for disbursement of agricultural loans.
(12) Consolidation of agricultural holdings, abolition of zamindari, abolition of bonded
labor and implementation of land reforms.
(13) To control court fees, revenue stamps, various types of deals etc.
(14) To control excise duty on liquor, petrol, medicines and other drugs.
3. As an Election Officer
(1) To organize various elections in the district. Like- MPs, MLAs, Panchayati Raj
institutions, urban bodies.
(2) Renewal of voter lists as District Registration Officer.
(3) To ensure implementation of model code of conduct during elections.
(4) Various works for the convenience of voters. Like drinking water, shade facilities.
(5) Organization of voter awareness programs in the district.
(6) Appointment of various personnel in elections.
(7) District Collector is the returning officer in MP/MLA elections.
4. As a Magistrate
(1) To maintain law and peace in the district.
(2) Imposing curfew in the district. (Under section 144 of CrPC)
(3) Providing bail in cases of breach of peace. (Section 151 of CrPC)
(4) Sending the annual confidential report of the District Police Administration to the State
Government.
(5) Issuance of arms licenses in the districts.
(6) Granting permission to rallies and demonstrations in the district.
(7) Allowing post mortem at night.
(8) To inspect the police stations and jails of the district.
(9) Scrutinising passports of foreigners.
(10) Controlling terrorist and smuggling activities in the district.
(11) Implementation of various laws in the districts. Like- Entertainment act, PASA Act,
2006, Rasuka Law-1980.
(12) Observation of “Gunda List” (History Sheeter) in the districts.
(13) To control the district police system through the Superintendent of Police.
(14) To control communal riots, political movements, violent demonstrations, terrorist
activities and caste conflicts etc.
5. As a Co-ordinator – The District Collector, being the administrative head of the district,
ensures coordination between the following –
(1) Coordination between departmental offices of the district administration.
(2) Coordination with military administration.
(3) Coordination with NGO
(4) Coordination with Central Government Ministries.
(5) Coordination with employee unions of the districts.
(6) Coordination between Panchayati Raj institutions and urban bodies.
6. As a Development Officer
(1) Making integrated development program in the district through District Planning
Committee.
(2) Review, examination and guidelines of the development works of the district.
(3) To ensure effective implementation of development works in the district.
(4) To establish coordination between Panchayati Raj institutions and urban bodies in the
district.

7. As a Disaster Management Officer
Apart from normal circumstances, the role of the collector remains important even during
other natural and man-made disasters or crises. The Collector has the following roles during
various disasters like tsunami, volcano, flood, drought, locust attack, hailstorm, epidemic,
war, terrorist incident etc.
• Rehabilitation of the affected
• Medical facilities
• Food and civil supplies during disaster
• Indemnity and compensation
It is noteworthy that the District Collector is the Chairman of the District Disaster
Management Authority. (Under District Disaster Management Act 2005).
8. As Protocol Officer
To welcome dignitaries in the district. Like Prime Minister, Chief Minister, Union Cabinet
Minister.
Challenges Before the Collector
(i) Excessive workload.
(ii) Political pressure or politicization of the post of Collector.
(iii) Indefinite tenure or frequent transfers.
(iv) Increasing law and order related problems.
(v) Lack of human resources in the district.
(vi) Lack of coordination with the police administration in the district.
(vii) Increasing V.I.P culture/protocol work.
(viii) Lack of public participation in government schemes.
Measures to Empower Post of Collector
(1) To empower the Collector, his workload should be reduced slightly.
(2) The increasing unwanted political pressure on the post of Collector should be reduced.
(3) Collectors should not be transferred quickly but they should be given permanent tenure in
the district.
(4) Unnecessary interference by the Divisional Commissioner in the work of the Collector
should be reduced.
(5) The police administration should be given autonomy in law and order related work in the
district.
(6) Availability of adequate human resources should be ensured by the government in the
districts.
(7) Such a system should be made so that proper coordination is established between the police
and the collector.
(8) The protocol functions of the Collector in the districts should be limited.
Changing role of Collector After Independence-Various Factors
(1) Article 50 of the Indian Constitution. (Separation of powers between the executive and the
judiciary)
(2) To provide constitutional basis to Panchayati Raj institutions. (by 73rd constitutional
amendment)
(3) Commissionerate system in police administration.
(4) Various innovations and administrative reforms. (Freedom of Press Act, Citizen Charter).
(5) Political empowerment.
(6) Increasing protocol work or growing VIP culture.

SUPERINTENDENT OF POLICE
• Establishment of the post → 1808 AD.
• Appointment → Indian Police Service officers(IPS) are appointed by the Ministry of Home
Affairs, Government of India.
• Transfer → By the Personnel Department of the State Government.
• Tenure → Uncertain.
Superintendent of Police (SP)
Direct Recruitment (UPSC) By Promotion (RPS)
Functions and Role of Superintendent of Police (SP)

(1) To maintain law and order in the district along with the Collector. (with the help of general
administration)
(2) To maintain high morale of police personnel in the district.
(3) Ensuring traffic management in the district.
(4) To control organized crime in the district.
(5) Work related to personnel administration. Such as recruitment, promotion, training,
disciplinary proceedings, ACR, transfers.
(6) To review the FIR(first information report) and FR(Final Report) in the district.
(7) To ensure the security of police personnel, police vehicles, weapons etc. in the district.
(8) To implement various campaigns in the districts. Like-Operation Milaap, Operation Aag,
Awaaz Campaign.
(9) Ensuring community policing in the district or reducing gap between the common man and
the police.
(10) Conducting decoy operation in the district.
(11) To observe the “Gunda List” in the district.
(12) To establish coordination with other departments in the district.
(13) To inspect police stations and police posts in the district.
Challenges Before the Superintendent of Police(S.P)
(1) Fixed tenure or frequent transfer of Superintendent of Police (SP).
(2) Excessive political pressure.
(3) Excessive workload.
(4) Lack of human resources.
(5) Excessive protocol work.
(6) Lack of modern weapons.
(7) Lack of coordination with general administration.
(8) Increasing law and order related problems.
(9) Increasing cyber crime.
(10) Lack of trained technical staff.
Measures to Empower the Post of Superintendent of Police
(1) The workload of the Superintendent of Police should to be reduced.
(2) The government should ensure a minimum fixed tenure of the Superintendent of Police.
(3) To reduce the unwanted political pressure being created on the post of Superintendent of
Police.
(4) The government should supply police human resources in the districts.
(5) The government should provide modern weapons to the police administration in the
districts.
(6) Coordination should be established with the general administration.
(7) Special technical team should be formed, which should reduce cyber crime.

COMMISSIONERATE SYSTEM
This system was started in Rajasthan from 1 January 2011 in Jaipur and Jodhpur districts.
An officer of I.G. rank is made the commissioner. It has the powers of a magistrate similar to that
of a collector.
Purpose/Need
(1) To reduce the dependence of police administration on general administration.
(2) To provide more autonomy and independence to the police.
(3) To increase the morale of the police administration.
(4) To reduce the workload of the Collector.
(5) To control the increasing crime in the metro city.
(6) Inspiration from states like Delhi, Maharashtra etc.
(7) To provide the work of police and magistrate under one roof to the common man.
Commissioner System Hierarchy
Comm.
Add. Comm.
Deputy Comm. of Police
Additional Comm. of Police
Assistant Comm. of Police (ACP)
(Hierarchy of Police Commissioner System in Rajasthan)

Function of Commissioner
(1) Imposing curfew in urban areas. (Section 144)
(2) Providing bail in cases of breach of peace. (Section 151)
(3) Issuance of arms licenses in the commissionerate area.
(4) Granting permission to rallies and demonstrations in the Commissionerate area.
(5) Implementation of National Security Act (NSA), Gangster Act etc. in urban areas.
(6) To implement various sections of the CrPC. Like- Section 107 to 124, 133, 134, 135, 144, 144A, 151
(7) Control over terrorism and smuggling.
(8) To maintain law and order in the district along with the Collector. (with the help of general
administration)
(9) To maintain high morale of police personnel in the district.
(10) To ensure traffic management in the district.
(11) To control organized crime in the district.
(12) Work related to personnel administration. Such as recruitment, promotion, training,
disciplinary proceedings, ACR, transfers.
(13) To review the FIR(first information report) and FR(First report) in the district.
(14) To ensure the security of police personnel, police vehicles, weapons etc. in the district.
(15) To implement various campaigns in the districts. Like-Operation Milaap, Operation Aag,
Awaaz campaign.
(16) Ensuring community policing in the district or reducing gap between the common man and
the police.
(17) Conducting decoy operation in the district.
(18) To observe the “Gunda list” in the district.
(19) To establish coordination with other departments in the district.
(20) To inspect police stations and police posts in the districts.

SUB-DIVISIONAL OFFICER
An officer of Rajasthan Administrative Service is appointed to this post.
Rajasthan Administrative Service
By direct recruitment (67%) By promotion (33%)

By Rajasthan Public Service (From Tehsildar Service)
Commission
Tenure  uncertain
Training  Harish Chandra Mathur Rajasthan Institute of Public Administration, Jaipur
Transfer and direct control  by Personnel Department of Rajasthan Government
Other Designations of Sub-Divisional Officer
• Tamil Nadu  Sub-Collector
• Rajasthan  Sub Divisional Officer and Executive Magistrate
• Maharashtra  Province Officer
Duties/Role of Sub-Divisional Officer
Sub Divisional Officer
Revenue Magistrate Administrative Election Protocol Coordinator

Officer Officer Officer Officer
1. Revenue work of Sub-Divisional Officer
(1) Revenue collection in the sub-division.
(2) Inspection of subordinate employees (revenue). Like- Tehsildar, Naib Tehsildar,
Girdawar, Patwari
(3) Crops assessement in the sub-division.
(4) Work related to land conversion in the subdivision.
(5) Stopping encroachment on government land in the subdivision.
(6) Land acquisition work on behalf of the Collector in the sub-division.
(7) Hearing revenue cases. Such as succession dispute, pasture land dispute, takashma
dispute
(8) Giving orders for pathargadi.
(9) Implementing revenue reforms. Like Hathbandi,chakbandi
(10) Implementation of revenue campaigns in the subdivision.
(11) To monitor the implementation of the laws related to land revenue in the sub-division.
(12) Gives instructions to the Tehsildar and other subordinate personnel for land revenue
collection.
2. As a Magistrate
(1) Imposing curfew in the subdivision. (Section 144 of CrPC)
(2) To maintain peace and law and order in the sub-division. (Section 151 of CrPC)
(3) Providing bail in case of breach of peace.
(4) To inspect the sub-jail and police stations of the subdivision.
(5) Seeking information about criminal cases from the police.
(6) Sending criminals to judicial custody.

3. As Administrative Officer
(1) To inspect the government departments in the sub-division from time to time.
(2) Issuance of various certificates in sub-section. Such as caste certificate, EWS certificate
(3) Hearing public complaints at sub-division level.
(4) To do work related to census, animal census and BPL census in the sub-division.
(5) Ensuring food and civil supplies at sub-division level.
(6) Filling of annual confidential report of subordinate employees.
4. As a Returning Officer
(1) To conduct various elections at sub-division level. Like- MP, MLA, Panchayati Raj,
urban body. Note: Subdivision Officer works as Assistant Election and Registration
Officer in the elections of MP and MLA. Whereas in Panchayati Raj and urban body
elections, the Sub-Divisional Officer works as the Returning Officer.
(2) Updation of voter lists at sub-division level.
(3) To appoint booth level officer.
(4) To implement model code of conduct in the subdivision during elections.
(5) To implement voter facilitation and awareness programs in the sub-division.
5. As a protocol officer
Work at sub-division level: Welcoming various dignitaries. Like- Prime Minister, Chief
Minister, Central Government Minister, State level Minister.
6. As a coordinator– The Sub-Divisional Officer ensures coordination between the following-
(1) To establish coordination with NGOs at sub-division level.
(2) To establish coordination between government offices and employees at the
subdivision level.
(3) To establish coordination with the police administration in the sub-division.
Challenges before the Sub-Divisional Officer

(ii) Lack of coordination with the police administration.
(iii) Lack of coordination with his subordinate employees.
(iv) Lack of human resources in the sub-division.
(v) Problems related to law and order in the sub-division.
(vi) Increasing protocol functions.
(vii) They are not able to work at one place for a long time because transfers happen quickly.

TEHSILDAR
The appointment and transfer of Tehsildar is done by the Revenue Board, Ajmer.
Tehsildar
Direct Recruitment (66%) By promotion (34%)

By Rajasthan Public Service Commission
• Tenure : uncertain
• Training : Revenue Research and Training Institute, Ajmer.
• Tehsildar works under “Land Revenue and Tehsildar, Naib Tehsildar Duties and Rules
1958”.
Functions/Role of Tehsildar
1. As a Revenue Officer
(1) Revenue collection related work in tehsil.
(2) To carry out land conversion work in the tehsil.
(3) Inspection of subordinate revenue employees. Like- Naib Tehsildar, Girdawar,
Patwari.
(4) Crops assessement in tehsil.
(5) Implementation of revenue campaigns and reforms in the tehsil. Such as Hadbandi and
chakbandi.
(6) To approve mutation.
(7) To execute related to border demarcation and pathargadi.
(8) Hearing of revenue cases in the tehsil.
(9) Management of land records in Tehsil like Jamabandi, land maps.
2. As a Magistrate
(1) Imposing 6 months jail and a fine of Rs 200 or both in cases of land encroachment.
(2) Providing bail in cases of breach of peace.
(1) Issuance of various certificates. Such as domicile, income certificate, status certificate.
(2) Hearing of public complaints in tehsil (revenue matters)
(3) Census, animal census and BPL. Providing assistance to the Sub-Divisional Officer in
calculations.
(4) To ensure distribution of ration at tehsil level.
(5) Role in Election Work
(i) To provide assistance to the Sub-Divisional Officer in the elections of MP and
MLA.
(ii) To work as Assistant Returning Officer in Panchayati Raj/Urban Bodies elections.
(iii) Renewal of voter list in tehsil.
4. As a Sub-Registrar
(1) To ensure purchase and sale of land and agricultural land.
(2) Collection of registration and stamp duty in the tehsil.
(3) To ensure registration of various documents.
5. As Sub-Treasury Officer
The Tehsildar is the custodian of the sub-treasury located in Tehsil area.

6. Other Roles
(1) As Land Acquisition Officer in Public Works Department.
(2) As Assistant Land Management Officer in the Land Management Department.
(3) As Forest Settlement Officer in the Forest Department.
(4) As Tehsildar - Animal Husbandry Department, Devasthan Department.
Challenges before the Tehsildar
(ii) Lack of human resources in the tehsil.
(iii) Excessive political pressure/interference.
(iv) Vacant posts of Patwaris.
PATWARI
• Rules/Bye-laws of Patwari Recruitment → Revenue Board, Ajmer
• Recruitment → Rajasthan Subordinate Staff Selection Board
• Appointing Officer → District Collector
• Transfer :
(i) District : District Collector
(ii) Division : Divisional Commissioner
(iii) State : Revenue Board, Ajmer
It is noteworthy that in Rajasthan, the recommendation to change the designation of Patwari
from Patwari to Lekhpal was made by “Harishchandra Mathur Commission (1963)”.
Function/Role of Patwari
1. Maintenance of Land Records
(1) Zamabandi
(2) Land maps
(3) To maintain the decisions of the court.
(4) To register the Mutation.
(5) Dispute Register (Revenue)
(6) Patwari keeps the records of Girdawari report, Zamabandi, decree, revenue recovery
letter, land map, list of conservation marks, Khasra number etc. of agricultural land of
the village in his Patwar office.
2. Revenue Collection - Patwari has the main responsibility of collecting land revenue in the
village. It is the Patwari who deposits the land revenue collected in the village in the treasury
of the tehsil headquarters. There are 3 conditions in these-
(1) Revenue collection should be done at a fixed rate which is determined by the State
Government.
(2) Revenue collection should be done within a fixed period of time.
(3) The collected revenue should be deposited in the sub-treasury.
3. Implementation of Revenue Campaigns – Patwari plays an important role in the successful
operation of revenue campaigns in villages. Like- Prashashan gaon k sang, Apka Zila Apki
sarkar,Nyay aapke dwar.

4. Implementation of Revenue Reforms – Patwari has the most important role to make land
reforms successful and to implement revenue reforms. Such as hadbandi, chakbandi,
digitization of land records.
5. Role in Developmental Works - Patwari is a revenue employee and development works are
the responsibility of Gram Sevaks, but in reality Patwari has more influence on the public as
compared to Gram Sevaks.
Patwari assists in identification of beneficiaries. Like- National Food Security Act 2013,
Antyodaya.
6. Role in Relief Work
During various disasters, the Patwari submits a report to the Tehsildar and the Patwari also
provides assistance to the district administration in identifying the affected people. In
emergency situations and natural disasters, the Patwari distributes the relief material
provided by the state government to the victims.
7. Direct Relations with the Villagers – Patwari has direct relations with the rural people.
Patwari's constant contact and relationship with every member of the village makes his role
effective. He knows the real situation of all the people of the village. That is why poverty
certificate, caste certificate, assessment of economic condition of village people, B.P.L.
Patwari's guidance and advice is required in determining the families and providing other
financial and other types of assistance to the poor.
8. Other Work
(1) To submit the report related to land encroachment to the Tehsildar.
(2) Border marking and Patthargarhi.
(3) To provide assistance to the Tehsildar in election work.
(4) Presenting the mutation to the Tehsildar.
(5) To provide assistance to the Tehsildar in census and animal census.
◼◼◼

24 DEVELOPMENT ADMINISTRATION:
MEANING, SCOPE AND CHARACTERISTICS
DEVELOPMENT ADMINISTRATION
• Development administration is that part of administration which supports social, economic
and cultural changes. That is, it emphasizes on the over all development of the society. In
fact, it is a multidimensional concept.
• Development administration is “development through administration”.
• Edward Widener – “Development administration is a task-oriented and goal-oriented
system.”
• The term development administration was first used by U. L. Goswami in his article
“Structure of Development Administration in India” (1955).
Father of Development Administration - Gorge Grant
Book : Development Administration-Concept, Goal and Methods (1979)
Reasons for the Emergence of Development Administration
(i) The emergence of newly independent countries after the Second World War.
(ii) Economic and technical assistance to newly independent countries by the United States and
Russia.
(iii) Technical and economic assistance to newly independent countries by the United Nations.
(iv) Failure of the western development model, hence there was need for a local development
model in developing countries.
(v) Contribution of Comparative Administration Group – It was part of the American Society of
Public Administration.
(vi) Traditional administration was highly rule centric.
Features of Development Administration
(i) Multidimensional concept – Development administration is a supporter of the over all
development of the society.
(ii) Goal oriented – Development administration is oriented towards goal to achieve its
objectives.
(iii) Time-oriented – Development administration is a supporter of timely completion of
objectives on time.
(iv) Change oriented – It is a supporter of socio-economic change.
(v) Committed Administration - It is committed towards the backward, poor and exploited
sections of the society.
(vi) Administrative Reforms – Administrative development is necessary to achieve the
objectives of development administration.
(vii) Supporter of client orientation and public participation.
(viii) Emphasis on coordination.
(ix) Its objectives are complex and numerous.
(x) It supports creativity.
Objectives of Development Administration
(i) Identifying socio-economic needs.
(ii) Formulation of development programs and plans within the available resources.
(iii) Implementing development programmes/schemes.
(iv) To review/evaluate development activities and plans.
(v) To ensure public participation in development programmes.
(vi) Administrative reforms and innovations to achieve the objectives of development
administration.
Means of Development Administration
Prime Minister Office
Foreign Grants Central
Government Government Ministries
Means of Central Secretariat
NGO Development State Govt.
Administration NITI Ayog
Media Public Servant Chief Minister's

Constitution
OfficeSecretariat
State
Rural Development and
Panchayati Raj Department
Chief Minister's Advisory Council
Scope of Development Administration

(i) General Administration - General administration includes those institutions and
organizations which have a major role in determining development programs and plans.
Like- Prime Minister's Office, Chief Minister's Office, NITI Aayog, State Planning
Department
(ii) Agencies of Development Administration - This includes those departments and ministries
which have a direct role in policy making, implementation and review. Like-Ministry of
Panchayati Raj and Rural Development, Rural Development Department, Panchayati Raj
Institutions.
(iii) POSDCoRB Technique – This technique of Gullick is important in development
administration, which is as follows –
P → Formulation of development programs and activities.
O → To organize personnel and resources to achieve the goals of development
administration.
S → Recruitment, training, posting, promotion, disciplinary action etc.
D → To provide directions to the personnel engaged in development activities.
Co → Coordination among departments and organizations involved in development
programs.
R → To receive progress details related to development plans from subordinates.
B → To manage financial resources for development schemes.
(iv) Administrative Reforms and Changes
To achieve the objectives of development administration, timely improvement and change in
administration is necessary. Its means are Administrative Reforms Commission, innovation,
self-development.
(v) Training of Public Servants
Before implementing development programs and schemes, various trainings are given to the
public servants involved in them. Like- training given to Block Development Officers in
Rajasthan at “Indira Gandhi Panchayati Raj Institute”.

(vi) Study of Human Values and Traditions
Before implementing development programs and schemes by the government/
administration, its effects on human values are studied.
(vii) Public Participation
It is an important technique of development administration because the success of
development programs and schemes is ensured by public participation.
(viii) Study of Personnel Problems
Under development administration, new schemes and programs have to be implemented
and personnel are recruited accordingly and old personnel are educated and trained in a
new way. Therefore, training personnel according to the present circumstances and the
problems of recruitment, training, selection etc. of public servants are studied.
(ix) Administrative Organization
Administrative organizations are also studied under development administration.
Departmental organizations of the government like Planning Commission, National
Development Council, Panchayati Raj Institutions, Agriculture Department, Education
Department etc. are studied. Efforts are made to make the organization efficient and
maintain coordination with other departments of the government so that administrative
work can be done efficiently.
Importance of Development Administration
(i) Development administration is a medium of socio-economic change.
(ii) It fulfils the needs of the public welfare state.
(iii) It is a medium of administrative development, administrative reforms and innovations.
(iv) It has enriched the literature or subject matter of public administration.
(v) It has encouraged research and development in public administration.
(vi) Development administration helped in maintaining the existence of public administration in
the era of identity crisis.
(vii) Development administration is complementary to the regulatory state. (Revenue collection,
maintaining law and order)
(viii) Ensures the implementation of government programmes, schemes and campaigns.
(ix) Fulfills socio-economic needs.
Difference between Traditional Administration & Development Administration
Traditional Administration Development Administration
It is a supporter of multidimensional
(1) It is a supporter of the status quo.
changes.
(2) Objective – Simple and limited. Objectives – Difficult and Numerous.
(3) Emphasis on centralization of powers. Emphasis on decentralization of powers.
It fulfills the requirements of the regulatory It fulfills the needs of the public welfare
(4)
state. state.
Main functions – Maintaining law and order, Main functions - Conduct of law and order
(5)
revenue collection. and public welfare activities.
(6) Emphasis on strictly following the hierarchy. Advocates flexibility in hierarchy.
(7) More red tapism. Comparatively less.
Administration includes public
(8) Lack of public participation.
participation.
It opposes inventions, improvements, It emphasizes on inventions,
(9)
changes. improvements and changes.
It emphasizes the flexibility of rules and
(10) It places great emphasis on rules and laws.
laws.
(11) Here the work is not completed on time. It is time oriented.
(12) Lack of client orientation. client oriented.
Example: Post-1947 administration in
Example: Pre-1947 administration in India.
India.

Problems in Development Administration
(i) Administrative corruption
(ii) Lack of political will
(iii) Various disputes – Minister versus public servant, generalist versus specialist.
(iv) Lack of public participation in development programs
(v) Period of unstable and coalition governments
(vi) Lack of technological up gradation
(vii) Traditional society
(viii) Red tapism in administration
(ix) Lack of will power among politicians
(x) Lack of resources
(xi) Limited skill development
(xii) Lack of public awareness
Ideal Situation for Development Administration
(i) Red tapism in administration should be reduced.
(ii) Adequacy of resources should be ensured.
(iii) Social awareness should be increased.
(iv) Ensuring public participation in development programmes.
(v) Experts should be included in the administration with an integrated hierarchy.
(vi) Digital technology should be adopted or technological innovations should be emphasized to
reduce administrative corruption.
Difference Between New Public Administration & Development Administration
New Public Administration (1968) Development Administration (1955)
The reason for its emergence was the
Its emergence was the result of
(1) rise of newly independent countries
American socioeconomic discontent.
after the Second World War.
This concept is relevant for
(2) This is relevant for developed countries.
developing countries.
(3) Emphasis on De-bureaucratization. It depends on bureaucracy.
A relatively old concept compared to
(4) New concept
new public administration.
Similarity Between New Public Administration & Development Administration
• Both emphasize flexibility in hierarchy.
• Both emphasize decentralization.
• Both emphasize client orientation.
• Both administrations are value oriented.
• Both administrations emphasize social equality.
• Both the administrations are change oriented.
• Delegation is found in both the administrations.
• In both, public administration is sensitive.

ADMINISTRATIVE DEVELOPMENT
Administrative development is the structural, procedural, behavioral reforms/changes made in
administration to achieve the objectives of administration. In fact it is “development of
administration”.
• Riggs – “Administrative development is the achievement of directed goals. This is a model
of increasing effectiveness in the use of available resources.
Means of Administrative Development
(i) Administrative Reforms - Like Harishchandra Mathur Commission, Gopal Krishna Bhanot
Commission, Shivcharan Mathur Commission in Rajasthan.
(ii) Administrative Innovations – like portal, biometric attendance, CCTV etc.
(iii) Self-Development – Self-improvement by the department or office, through the
environment.
Reasons/Need for Administrative Development
(i) To achieve the objectives of development administration.
(ii) Since Indian administration is a colonial legacy, it requires improvement.
(iii) To solve various administrative problems. Like- red tapism, corruption
(iv) To encourage innovations in administration. Like- FIFO, Single Window System
(v) To increase administrative efficiency.
(vi) Inspiration from developed countries.
(vii) To increase public participation in development programmes.
Problems of Administrative Development
(i) Corruption.
(ii) Red tapism.
(iii) Lack of coordination between higher authority and subordinates.
(iv) Lack of political will.
(v) Lack of human and financial resources.
(vi) Lack of technological innovations in administration.
(vii) Disputes between ministers and public servants.
(viii) Lack of awareness.
(ix) Traditional rules and laws.
(x) Pompous/traditional public servant.
(xi) Lack of coordination.
(xii) Lack of proper motivation and morale among public servants.
(xiii) Tendency to avoid responsibilities among public servants.
Ideal Conditions for Administrative Development
(i) Technological innovation and reforms to eliminate corruption and red tapism in
administration.
(ii) Proper coordination should be established between superiors and subordinates.
(iii) Adequacy of resources should be ensured.
(iv) Technical innovations and required improvements should be made in administration.
(v) Awareness should be promoted.
(vi) New laws should be made in place of traditional rules and laws.

Difference Between Development Administration & Administrative
Development
Development Administration Administrative Development
It emphasizes on administrative reform,
(1) It emphasizes on socio-economic change.
change and innovation.
(2) It is a multidimensional concept. It is one dimensional.
This is “development through
(3) This is “development of administration”.
administration”.
(4) It is a broad concept. This is a narrow concept.
It is a medium of administrative This is the basis of success of
(5)
development. development administration.
It is relevant only for developing It is relevant for both developed and
(6)
countries. developing countries.
◼◼◼

STATE HUMAN RIGHTS
25 COMMISSION
• State Human Rights Commission is a statutory commission.
• It was established in March 2000 under Section 21 of the Human Rights Protection Act 1993.
• Appointment : By the Governor on the recommendation of a committee
Committee Composition
Chief Minister Speaker of Leader of Home

(Chairman) Assembly Oppostion Minister
• If there is a Legislative Council in the state, then (a) the Chairman of the Legislative Council,
(b) the opposition leader of the Legislative Council will also be members of the committee.
• Qualification for Chairman and Members
Chairman : The Chief Justice of the High Court can be appointed as (Serving or Retired)
• Member 1 : Serving or retired judge of High Court or judge of District Court. (Who has 7
years of experience)
Member 2 : Who has special knowledge or expertise in human rights.
• Tenure : 3/70 years (Since 2019)
The Chairman and members are also eligible for reappointment.
• Salary and Allowances : Determined by the state government.
• Annual Report : To the State Government.
• State Human Rights Rules and Regulations in Rajasthan were made in 2001.
• Main Provisions of Human Rights Protection (Amendment) Act, 2019
(i) Chairman – A serving or retired High Court judge can be appointed Chairman of the
Commission.
(ii) Tenure : 3/70 years (whichever is earlier)
(iii) Provisions were made for ex-officio members in the Commission.
• Chairman Scheduled Caste Commission
• Chairman Scheduled Tribe Commission
• Chairman Other Backward Classes Commission
• Chairman State Women Commission
• Chairman Minority Commission
• Chairman State Divyang Board
• Chairman State Child Protection Commission
Process to Remove Chairman and Members
• The Chairman or any member may resign his office by giving hand written notice addressed
to the President.
• The Chairperson or any Member shall be removed from office only by such order of the
President made on the ground of proved misbehavior or incapacity after inquiry by the
Supreme Court.

• The Chairman or any member may be removed directly by the President in the following
circumstances -
(i) Adjudged and insolvent; or
(ii) Engages in any paid employment outside the duties of his post during his term of
office; or
(iii) is unfit to hold his office by reason of mental or physical infirmity; or
(iv) is of unsound mind and there is such declaration of a competent court; or
(v) is convicted and sentenced to imprisonment for an offense which, in the opinion of the
President, involves moral turpitude.
Grievance Procedure
(i) The complaint can be made in Hindi or English language and after the decision of the
Commission, it can also be made in any other language.
(ii) No fee will be paid by the complainant.
(iii) Complaint can be made in person or through post, fax, e-mail.
(iv) The complaint should contain complete details of the complainant.
(v) The complaint must give full details of the violation of human rights or the failure or neglect
to prevent the violation.
(vi) If the complaint related to violation of human rights is found to be true, the Commission will
recommend disciplinary action to the concerned competent authority.
(vii) The Commission can also take suo motu cognizance in cases related to violation of human
rights.
(viii) The headquarters of the Commission is located in Jaipur, but from time to time, the
Commission visits various places and disposes of the cases on the spot.
(ix) The Commission may recommend to the State Government or the competent authority to
provide immediate interim assistance to the victim or his family members, as the
Commission deems necessary.
Measures Taken for Autonomy/Independence of the Commission
(i) Transparent appointment process of Chairman and members
(ii) Stability of tenure (3 or 70 years, whichever is earlier)
(iii) Complex process of removal
(iv) The State Government is required to take action on the advice of the Commission within one
month.
(v) Financial autonomy for the Commission (Section 33)
(vi) Adequate salary and allowances - similar to that of the Chief Justice of the High Court.
(vii) Own investigation team for investigation.
(viii) The Commission is an autonomous and statutory organization as it has been created by an
Act of Parliament.
Functions and Role of State Human Rights Commission
(i) Investigating cases of human rights violations against public servants on suo motu
cognizance/complaint.
(ii) The Commission has the following powers during investigation under the Code of Civil
Procedure, 1908:
• Issuing summons to public servant.
• Calling a public servant for testimony.
• Taking statement on affidavit of public servant.
• Ordering government documents from government office.

(iii) After investigation, the Commission-
• Recommends the state government to take disciplinary action against the public
servant.
• To recommend to the State Government for compensation/compensation to the victim.
• Getting prosecution against a public servant in the court.
(iv) To investigate with the permission of the court in the cases pending in the court.
(v) Organizing seminars and lectures to increase awareness regarding human rights.
(vi) To submit annual report to the State Government.
(vii) To encourage those NGOs. activities which are related to human rights.
(viii) Publication of “Manavdhikar Sandesh” magazine for human rights protection.
(ix) To inspect jails and police stations in the State.
(x) Investigating complaints of human rights violations related to the State List and Concurrent
List.
(xi) To review those laws, constitutional rules and actions which are related to human rights.
(xii) Establishing district human rights units.
(xiii) To promote research and development in the field of human rights.
Those Matters Which are Beyond the Jurisdiction of the Human Rights
Commission-
(i) Events older than 1 year.
(ii) Matters related to the army.
(iii) Cases pending in other commissions.
(iv) Cases pending in various courts.
(v) Personal disputes.
(vi) Vague complaints.
(vii) Industrial disputes.
Limitations of State Human Rights Commission
(i) Vacant posts of Chairman and members.
(ii) No right to investigate cases older than 1 year.
(iii) No right to investigate into matters related to the army.
(iv) Lack of cooperation from the local police.
(v) In various cases the State Government does not gives reply to the Commission on the action
taken on its recommendations.
(vi) Submission of annual report by the Commission is a formal process.
(vii) It is only an advisory commission, hence it is also called a toothless tiger.
(viii) It cannot itself impose punishment but can make recommendations to the concerned
authority/State Government.
(ix) Complaints are not resolved quickly.
Measures to Empower the State Human Rights Commission
(i) Appointment to the posts of Chairman and members should be done on time.
(ii) Right to investigation should be given even in cases older than 1 year.
(iii) The Commission should also be given powers of investigation in military related matters.
(iv) Such arrangements should be made by the state government so that cooperation of the local
police is also obtained.
(v) The State Government should reply to each recommendation of the Commission and the
time period for replying should be limited.

(vi) The annual report of the Commission should be adequately discussed in the Parliament.
(vii) In some cases, the State Human Rights Commission should also be given the power to give
punishment.
(viii) Arrangements for additional members should be made for speedy disposal of complaints.
Need for Human Rights Commission

(i) To fully develop human personality and its dignity.
(ii) To develop attitudes and behavior to promote respect for the rights of others.
(iii) To ensure genuine gender equality and equal opportunities for women in all sectors.
(iv) To promote understanding and tolerance among diverse national, ethnic, religious, linguistic
and other groups.
(v) To empower respect for the rights and fundamental freedoms of human beings.
(vi) To empower people to participate actively in social life.
(vii) To promote democracy, development, social justice and harmony among citizens.
◼◼◼

STATE ELECTION
26 COMMISSION
• Established : July 1994
• State Election Commission is a one-member commission.
• This is a constitutional commission. [Provisions - Article 243 (K) and Article 243 (ZA)]
• This is also mentioned in Section 120 of Rajasthan Panchayati Raj Act, 1994.
Service Conditions of State Election Commissioner
• Appointment : By the Governor on the recommendation of the Chief Minister and the
Council of Ministers.
• Qualification : 5 years experience as Additional Chief Secretary, Principal Secretary.
• Tenure : 5/65 years (Since 2002)
• Annual Report : To the Governor
• Salary and Allowances : Same as Chief Secretary (2017 onwards)
• Process of Removal : The Election Commissioner can be removed from his post only by the
Parliament through the impeachment process similar to the process of removing a High
Court judge. He can be removed through the procedure prescribed in Article 124(4) of the
Constitution on the basis of misconduct and incapacity while holding office. The
impeachment process consists of the following steps-
(i) First of all, a petition signed by 100 members of the Lok Sabha or 50 members of the
Rajya Sabha is presented to the President requesting the removal of the Election
Commissioner from the post.
(ii) After this, the Chairman or the Speaker, as the case may be, may accept or refuse to
accept such resolution on the basis of consultation with appropriate persons and
available material.
(iii) In case the resolution is accepted, an inquiry committee is formed which will have the
following three members:
• Chief Justice or other judge of the Supreme Court.
• One of the Chief Justices of the High Courts.
• An expert or jurist.
(iv) If the Election Commissioner is found guilty of misconduct or incapacity by the above
committee, then the report of the committee along with the resolution of his removal
from the post is presented in the House in which the matter is pending.
(v) By a majority of the total members of that House of Parliament and two-thirds majority
of the members present, this resolution is passed and sent to the other House and there
too, after passing it in the same manner, it is sent to the President.
(vi) The State Election Commissioner is considered to be removed from the post from the
day the President signs that resolution.

• Resignation : To the Governor.
• Service Conditions : Determined by the Governor.
• Oath : By the Governor.
Note : As per Section 120 of the Rajasthan Panchayati Raj Act, 1994, in the absence of the State
Election Commissioner, the Secretary will act as the State Election Commissioner.
Role/Functions of State Election Commission or Commissioner
(i) To organize elections of Panchayati Raj Institutions and Municipal Corporations.
(ii) To advice the State Government in delimitation and reservation of seats.
(iii) To enforce model code of conduct during elections.
(iv) Renewal of voter lists during elections.
(v) Distribution of election symbols in elections.
(vi) Postponing Panchayati Raj and urban body elections.
(vii) To make innovations and improvements in elections. Like- E.V.M. Use of electoral roll with
photo
(viii) Various works for the convenience of voters. Such as drinking water, voter awareness
posters, ramp facilities
(ix) To implement various programs of voter awareness.
(x) To submit the annual report to the Governor.
(xi) To conduct by-elections of Panchayati Raj institutions.
(xii) To provide advice to the State Government in matters relating to the qualifications of
members.
Measures of Autonomy
(i) The State Election Commission is a constitutional commission. (Article 243(K) - 243(ZA)).
(ii) Transparent and fair appointment process – by the Governor.
(iii) Security of tenure – 5 or 65 years.
(iv) Complex process of removal - through impeachment process (Article 124(4))
(v) Salaries and allowances are charged on the State Consolidated Fund.
(vi) Prohibition of unfavorable changes after appointment.
(vii) Prohibition on re-appointment.
(viii) Election Commissioner has the same status as the Chief Secretary.
Shortcomings/Criticism of State Election Commission
(i) Monopoly of the State Government in the appointment of the State Election Commissioner.
(ii) Annual confidential report is a formal process.
(iii) Excessive workload on the State Election Commissioner.
(iv) Unnecessary interference of the State Government in the Commission.
(v) Lack of coordination between the State Election Commissioner and the Chief Electoral
Officer.
(vi) Shortage of employees.
(vii) One-member commission with heavy workload.
(viii) Inability to effectively implement the model code of conduct.

Measures to Empower the State Election Commissioner
(i) Due to the additional workload of the State Election Commissioner, it should be made a
multi-member body from a single-member body on the lines of the Election Commission of
India.
(ii) According to the Second Administrative Reforms Commission, a three-member committee
should be formed for the appointment of the State Election Commissioner. Which should
include the following-
• Chief Minister
• Speaker of Assembly
• Leader of Opposition of Assembly
(iii) Unnecessary interference of the State Government should be reduced so that the impartiality
of the State Election Commission is maintained.
(iv) The State Election Commissioner should work closely with the Chief Electoral Officer.
(v) Permanent employees should be appointed in the Commission.
(vi) A separate secretariat of the State Election Commission should be created.
(vii) Effective implementation of the Model Code of Conduct should be ensured by the
Commission.
◼◼◼

27 LOKAYUKTA
Establishment : February 1973 (through Rajasthan Lokayukta and Upalokayukta Act 1973)
Nature of Commission : Statutory Commission.
Appointment : By the Governor on the recommendation of the committee
Committee
Chief Minister Chief Justice of a High Court Leader of Opposition
Qualification : Justice of the Supreme Court/Chief Justice of a High Court or equivalent.

Salary : Same as that of the Chief Justice of the State High Court.
Tenure : 5 years (no reappointment)
Resignation : To the Governor.
Grounds for Removal
• Malpractice/misbehavior
• Incapacity
Removal Process
• The Governor will constitute a committee headed by a judge of the Supreme Court or the
Chief Justice of a High Court. This committee will investigate the allegations.
• After investigation by the committee, Rajasthan legislative Assembly will pass a resolution
with special majority to expel the Lokayukta.
• Thereafter he can be removed with the consent of the Governor.
Annual Report : To the Governor
Jurisdiction of Lokayukta
(i) Minister
(ii) Secretary/Head of Department/Public Servant
(iii) District Council – Zila pramukh, Deputy Zila pramukh
(iv) Panchayat Committee – Pradhan,Deputy Pradhan
(v) Chairman of the standing committees of the Zilla Parishad and Panchayat Samiti
(vi) Municipal Corporation - Mayor, Deputy Mayor
(vii) Municipal Council – Chairman, vice Chairman
(viii) Municipality - Chairman, Vice Chairman
(ix) Chairman of Standing Committees of Urban Bodies
(x) Chairman of Urban Improvement Trust (UIT)
(xi) Chairman and Directors of Boards, Corporations of Rajasthan Government
(xii) Employees of a company registered under the Rajasthan Company Act which is under the
State Government.

Lokayukta Cannot Investigate Against-
(i) Governor
(ii) Chief Minister
(iii) MLA
(iv) Sarpanch, Deputy Sarpanch, Panch
(v) Chairman and members of Rajasthan Public Service Commission
(vi) Chief Electoral Officer, State Election Officer, Regional Commissioner, Election
Commissioner
(viii) Accountant General, Government of Rajasthan
(ix) Judges of Rajasthan High Court and Subordinate Courts.
(x) Officers or public servants of any court in India
(xi) Any member of the staff of Secretariat of the legislative assembly of Rajasthan
(xii) Cases older than 5 years
(xiii) Retired public servant
Functions and Powers of Lokayukta
(i) Receiving complaints against public servants - corruption, abuse of office, lack of integrity,
causing undue harm or distress to any person;
(ii) To investigate complaints received against public servants.
(iii) Under Civil Procedure Code, 1908, Lokayukta has the following powers:
• Issuance of summons/notice to public servant/employee.
• Obtaining documents from any government office.
• Taking statements of public servants on affidavit.
• Calling a public servant for testimony.
(iv) To write to the competent authority or department concerned for disciplinary action against
the public servant.
(v) Imposing imprisonment of up to 3 years or fine on the complainant on a false complaint.
(vi) To hear cases of corruption through suo motu cognizance.
(vii) Submitting the annual report to the Governor.
Grievance Procedure
(i) Complaint can be submitted in person or by post/fax/e-mail.
(ii) There should be complete information of the complainant like name, address and complaint
etc.
(iii) The name and position of the public servant against whom the complaint is made should
also be mentioned.
(iv) The complaint must be accompanied by an affidavit on non-judicial stamp of Rs.10 attested
by a Magistrate or Notary Public.
(v) Lokayukt secretariate follows principle of 'punishment of the guilty public servant and
protection of the innocent', therefore every complaint is thoroughly investigated and an
effort is made to reach the truth of the allegation and after necessary investigation and
research, appropriate action is taken against the complaint. If the allegations are proved, it is
recommended to the chief minister and competent authority to take appropriate action
against the concerned minister, and other public servants respectively.
(vi) Complaint can be made only against public servants of Rajasthan state.
(vii) The complainant himself should not be a public servant.

Measures For Autonomy/Impartiality of Lokayukta
(i) Transparent appointment process.
(ii) Stability of tenure.
(iii) Less Government interference is because it is an independent body.
(iv) Complicated process of removing Lokayukta.
(v) Salary and allowances similar to those of a High Court judge.
(vi) This is a statutory commission.
Limitations
of Lokayukta
(i) Vacant post of Lokayukta and limited staff.
(ii) It is only an advisory body.
(iii) Its Annual report is a formality because there is no discussion on it in the Assembly.
(iv) Various posts and institutions have been kept out of its jurisdiction. Like-Chief Minister,
Sarpanch, Deputy Sarpanch, Wardpanch.
(v) Excessive pending complaints.
(vi) It has no right to investigate in cases older than 5 years.
(vii) The state government does not take the recommendations made by the Lokayukta seriously.
(viii) Lokayukta cannot himself impose punishment but can only make recommendations to the
competent authority.
(ix) Absence of an investigation team like the State Human Rights Commission.
(x) Excessive workload.
Measures to Empower Lokayukta
(i) Continuous appointments should be made by the state government to the posts of
Lokayukta and Upalokayukta in the state.
(ii) The recommendations of the Lokayukta should be binding in certain cases.
(iii) The annual report should be adequately discussed in the legislature.
(iv) When the Prime Minister has been included under the jurisdication of Lokpal at the Centre,
then on the lines of that, the Chief Minister of the state should also be included in its
jurisdiction.
(v) The right to investigation should be given even in cases older than 5 years.
(vi) An investigation team of experts should be formed like the State Human Rights
Commission.
(vii) The Commission should be made empowered.
(viii) State governments should seriously consider the recommendations of the Lokayukta.
It is noteworthy that for improving the Lokayukta institution, Shri Harishankar Bhabhada
Committee in 1997 and Shri B.D. Kalla Committee in 2000 and Shri Narpatmal Lodha Committee
were formed in 2014 were formed by rajasthan government.
According to Section 2 of Rajasthan Lokayukta/Upalokayukta Act-1973 -
Minister means a member of the Council of Ministers of the State of Rajasthan (other than the
Chief Minister), by whatever name known, i.e. Minister, Minister of State or Deputy Minister.
Secretary means the Secretary of the Government of Rajasthan and includes the Special Secretary,
Additional Secretary and Joint Committee.

Officer means persons appointed to any public service or public post in connection with the
affairs of the State of Rajasthan.
Public Servant means the following:
• Minister
• Secretaries and officers
• Heads of Zilla Parishad/Panchayat Samiti/Standing Committees
• Heads of Municipal Corporation/Municipality/Municipal Council/Standing Committees
• Employee of any local authority of Rajasthan
• Employee of a company controlled by Rajasthan Government
Upalokayukta
(i) Appointment : By the Governor after consultation with the Lokayukta.
(ii) The first and last Uplokayukta of Rajasthan : K.P.U. Menon.
(iii) Salary and allowances of Uplokayukta : Equal to that of a judge in the State High Court.
(iv) Power of removal : By a committee constituted by a Judge of the High Court.
(v) Tenure : 6/62 years.
◼◼◼

RAJASTHAN PUBLIC SERVICE
28 COMMISSION
• Rajasthan Public Service Commission is a constitutional commission which was established
on December 22, 1949. (Provision-Article 315-323)
• Structure → Presently provision of 1 Chairman + 7 members (Since 2011)
Note – Number of members were increased 5 to 7 → Decided by Rajasthan Public Service
Commission Regulations (Service Conditions) 1974.
• Qualification → 50% members who have 10 years of experience in Union or State
Government and 50% members who are educationists, lawyers, journalists, social workers
etc. can be appointed.
Note - The Constitution does not mention the qualification of the Chairman of the Public
Service Commission, rather it has been a tradition in Rajasthan that only a senior public
servant can be appointed as the Chairman of the Commission.
• Appointment → by the Governor on the advice of the Chief Minister and the Council of
Ministers.
Note – The acting Chairman is appointed by the Governor from among the members.
• Tenure → 6/62 years (By 41st Constitutional Amendment, 1976)
• Annual Report → To the Governor.
• Resignation → To the Governor.
• Process of Removal → Following is the process of removal of the Chairman and members of
the State Public Service Commission.
• Grounds for Removal
Misconduct and incapacity - after investigation by the Supreme Court
• Direct Removal by the President.
(i) Mental disorder
(ii) Incapacity
(iii) Bankruptcy
(iv) Allegations of corruption
(v) If the Chairman and members hold office of profit.
Can be removed directly by the President under the above circumstances.
• Suspension- The Chairman and members can be suspended by the Governor during the
investigation of the Supreme Court but cannot be removed. Article 317(2)
Measures taken for the Independence and Autonomy of Rajasthan Public
Service Commission
(i) Transparent appointment process (by the Governor on the advice of chief minister)
(ii) Stability of tenure (6/62 years)
(iii) It has been made a Constitutional Commission.
(iv) Complicated process of removing the Chairman and members (by the President) Article-317
(v) Prohibition of unfavorable changes in service conditions after appointment.
(vi) No re-appointment on the same post.
(vii) All the expenses and allowances of the Commission are charged on the Consolidated Fund
of the State.
(viii) Rules regarding the service conditions of the Commission are made by the Governor.
[Article-318]
(ix) Cannot hold any office of profit after retirement.

Functions and role of Rajasthan Public Service Commission (Article 320)
(1) Organizing various recruitments and interviews – RAS, SI, ACF etc.
(2) To provide advice to the State Government in the following matters-
(i) Regarding recruitment, training, promotion and transfer policy.
(ii) In case of relaxation related to experience in matters of promotion.
(iii) In matters related to disciplinary action against employees.
(iv) In pension related matters.
(v) In matters related to compensation.
(vi) In case of merger of services.
(3) To submit annual report to the Governor. (Article 323 (2))
(4) Any additional work assigned by the State Legislature.
(5) Organizing meetings of departmental promotion committees. (Article 320(3))
(6) To dispose of the applications and appeals received under the Right to Information Act.
(7) To administer the administration of the Secretariat of the Commission.
Matters on which the State Government does not consult the Commission-
(i) General method of recruitment.
(ii) To create a new public service.
(iii) Classification of posts in recruitment.
(iv) Allocation of services.
(v) Duration of probation period.
(vi) Salary after first appointment.
(vii) Salary after promotion.
Shortcomings of the Commission
(i) Continuous vacant post of Chairman and members.
(ii) Delay in recruitment process.
(iii) Intervention of the court.
(iv) Annual confidential report is just a formal process.
(v) Controversial scalling process.
(vi) Allegations of corruption.
(vii) The advice and recommendations of the Commission are not binding on the State
Government.
(viii) Appointment of members on the basis of regionality.
(ix) Financial deficiency.
(x) Errors in question paper and answer key.
Measures to Improve the Commission
(i) Time bound appointments should be made to the post of Chairman and members by the
State Government.
(ii) To maintain the credibility of the Commission, all recruitments should be done on time.
(iii) Appointment of members of the Commission should be based on merit and not caste.
(iv) To prevent interference of the court in the work of the Commission, a “Fast Track” court
should be formed so that recruitment related disputes can be resolved quickly.
(v) There should be discussion in the Assembly on the annual confidential report.

(vi) The advice of the Commission should be binding on the State Government in certain
matters.
(vii) The number of personnel and secretaries in the Commission should be increased so that the
workload can be reduced.
(viii) State government interference in the Commission should be reduced.
(ix) Efforts should be made to increase the transparency, credibility and effectiveness of the
Commission.
Innovations and Reforms Made by the Commission
Transparency in recruitment, changes/amendments in syllabus, "On Screen Marking System"
(OMS), OTR (One time Registration) my exam my review (Memory), tracking of examination
centres, release of annual calendar, formation of Pre Litigation Committee. reducing litigation,
grievance redressal portal, publication of a magazine named 'Spandan' related to the history, role,
innovation, functioning and future perspective of the Commission, formation of M.L. Kumawat
Committee by the Government of Rajasthan for the reform of the Commission.
Joint Public Service Commission
(i) Mention : Article 315(2)
(ii) Constitution : By an Act of Parliament (on the request of the concerned States). After its
constitution it is a statutory commission.
(iii) Appointments : By the President.
(iv) Suspension/Removal : By the President.
(v) Resignation : To the President.
(vi) Annual Report : To the Governor of the respective states.
(vii) Tenure : 6/62 years
◼◼◼

29 RAJ. PUBLIC SERVICE GUARANTEE ACT 2011
AND RAJ. RIGHT TO HEARING ACT 2012
Rajasthan Public Service Guarantee Act 2011

Definition : Providing service within a fixed time limit by a government institution / body
/servant in a state is called public service. In order to provide timely service to the citizens, fix
accountability of public servants and punish negligent personnel, the Public Service Guarantee
Act was implemented in the entire Rajasthan state on 14 November 2011, which is known as
Rajasthan Public Service Guarantee Act 2011.
This is an extension of the Citizen's Charter because there are provision for complaint as well as
punishments.
Implementation : November 14, 2011
Importance
(i) Legal rights are being provided by the government through the implementation of such acts.
(ii) It increases awareness among the citizens.
(iii) It increases transparency in administrative processes.
(iv) There is reduction in corruption in administrative services.
(v) The credibility of administration increases.
(vi) It also ensures effective resolution of public grievances.
(vii) It also increases the accountability of administrative officers.
(viii) Strengthens the concept of good governance.
(ix) Makes public administration simple, customer oriented, citizen oriented and sensitive.
(x) It reduce red tepism and delay in administrative service.
(xi) Citizens get time bound services.
Provisions/Features
(i) The Public Service Guarantee Act 2011 is an extension of the Citizen's Charter.
(ii) 108 services of 15 departments have been included under this law. (Currently 287 services of
27 departments).
(iii) Under this act, all the services of all departments and offices will have to be written on the
notice board outside the office.
(iv) Process – The applicant will submit all the documents related to his work in the office. The
concerned officer or the person authorized by the officer will give the applicant an
acknowledgement/receipt on which the prescribed period of work will be written.
(v) First Appeal - If the departmental officer rejects the applicant's application or does not
provide the service within the prescribed limit period, then the applicant will complain to
the “First Appeal Officer” within 30 days. No fee will be payable for complaint. The appeal
should contain the full name and address of the complainant. There should be complete
information about the complaint.

(vi) The first appeal officer will have to dispose of the complaint within 21 days.
(vii) Second Appeal - If the applicant is not satisfied with the decision of the “First Appeal
Officer” or the First Appeal Officer rejects the complaint, then within 60 days he will appeal
to the Second Appeal Officer.
(viii) Punishment related provisions/proceedings - The Second Appeal Officer can impose the
following punishment if the officer of the concerned department or the First Appeal Officer
is found guilty.
• For not providing service within the prescribed time limit → Rs. 250 -5000 Fine
• On rejection of application → Rs.500-5000 Fine
(ix) The penalty amount will be recovered from the salary of the concerned officer.
(x) The penalty amount can be transfer as compensation to the applicant.
(xi) If the complaint against the concerned officer is found true, then the Appeal Officer can
recommend to the competent authority to take disciplinary or punitive action against him.
(xii) The first and second appeal officers have powers under the CrPC 1908 -
• Can ask for any official document.
• Taking statement on affidavit of the officer against whom the appeal was made.
• Calling witnesses from the concerned department.
(xiii) The first appeal officer or public servant can appeal against the second appeal officer to the
authority or appeal officer authorised by the State Government.
(xiv) Under the Act, interference by the court is prohibited.
Shortcomings
(i) The first and second appeal officers are from the same hierarchy.
(ii) Prohibition of interference by the court.
(iii) The provisions for fines are very simple.
(iv) Vacant posts of first and second appeal officer.
(v) Lack of awareness among the common man.
(vi) Extremely complex terminology of act.
(vii) Disposal of appeal by the first appeal officer in 21 days is a symbol of delay in this digital
age.
(viii) Complaints are not resolved immediately.
(ix) Only 287 services of 27 departments are included.
(x) The recommendations made by the appeal authorities are not taken seriously.
Measures to Strengthen the Act
(i) Limited intervention of the Court should be made mandatory.
(ii) The amount of fine should be increased.
(iii) Appointment of first and second appeal officer should be done in time.
(iv) This act should be publicized up to the rural level by the state government.
(v) The terminology of the act should be disseminated in the local language.
(vi) It should be made mandatory for the first appeal officer to deliver the verdict within 7 days.
(vii) An independent department/panel or tribunal should be formed to hear appeals.
(viii) The number of departments and institutions related to them should be increased in this act.
(ix) The recommendations made by the appellate authorities should be taken seriously.

Rajasthan Right to Hearing Act -2012
Definition : The right to hear any complaint made against any government policy or program,
public service or public servant is called Rajasthan Right to Hearing Act-2012.
• This act was implemented in Rajasthan on 1 August 2012.
• Rajasthan is the first state in the country to implement this act.
• This is an extension of the Citizen's Charter because there is a provision for complaint as well
as punishment.
Implementation : 01 August, 2012
Nodal Agency : Administrative Reforms Department, Government of Rajasthan.
Importance
(i) Legal rights are being provided by the government through the implementation of such acts.
(ii) It increases awareness among the citizens.
(iii) It increases transparency in administrative processes.
(iv) It reduces corruption in administrative services.
(v) The credibility of administration increases.
(vi) It also ensures effective resolution of public grievances.
(vii) It also increases the accountability of administrative officers.
(viii) Strengthens the concept of good governance.
(ix) Makes public administration simple, customer oriented, citizen oriented and sensitive.
(x) It reduces red tepism and delay in administrative service.
(xi) Citizens get time bound services.
Provisions/Features:
(i) This is a supplementary law to the Public Service Guarantee Act.
(ii) In this, appeal can be made on plain paper.
(iii) No fee will be payable by the applicant.
(vi) Provisions have been made for the formation of help desk, citizen information center and
convenience center for the promotion of this law.
(iv) Provision of Public Hearing Officer has been made in every office who will dispose of the
appeal within 15 days. For example, at Gram Panchayat level - Village Development Officer,
at Panchayat Samiti level - Block Development Officer, at Tehsil level - Tehsildar, at
subdivision level - Subdivision Officer.
(v) First Appeal – An appeal should be made within 30 days to first appeal officer.
(vi) Second appeal – An appeal can be made against the first appeal officer to the second appeal
officer within 30 days.
(vii) Punitive action – Provision for fine up to Rs 500-5000 against a public servant.
(viii) The penalty amount will be recovered from the salary of the concerned officer.
(ix) The penalty amount can be transfer as compensation to the applicant.
(x) If the complaint against the concerned officer is found true, then the appeal officer can
recommend to the competent authority to take disciplinary or punitive action against him.

(xi) The first and second appeal officers have powers under the CrPC 1908 -
• Can ask for any official document.
• Taking statement on affidavit of the officer against whom the appeal was made.
• Calling witnesses from the concerned department.
(xii) The first appeal officer or public servant can appeal against the second appeal officer to the
authority or appeal officer authorised by the State Government.
(xiii) Court intervention has been prohibited.
(xiv) Various committees have been formed under this act. Like- Subdivision level - Subdivision
level Public Grievance and Vigilance Committee, District level - District level Public
Grievance and Vigilance Committee
Shortcomings
(i) Public Hearing Officer, First and Second Appeal Officer are from the same Hierarchy.
(ii) Prohibition of interference by the court.
(iii) Provisions for extremely moderate fines.
(iv) Vacant posts of first and second appeal officer.
(v) Lack of awareness among the common man.
(vi) Extremely complex terminology of act.
(vii) Disposal of appeal by the First Appellate Authority in 30 days is a symbol of delay in this
digital age.
(viii) Recommendations made by appeal authorities are not taken seriously.
Measures to Strengthen the Act
(i) Limited intervention of the court should be made mandatory.

(ii) The amount of fine should be increased.
(iii) The State Government should appoint the first and second appeal officers in a timely
manner.
(iv) This law should be publicized in the local language by the state government.
(v) It should be made mandatory for the first appeal officer to deliver the verdict within 7 days.
(vi) An independent department/panel or tribunal should be formed to hear appeals.
(vii) The recommendations made by the appeal authorities should be taken seriously.
◼◼◼

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INDEX

1. Administration : Meaning, Nature & Significance ______________________ 3-15

Public Administration [2]

Legislature Executive Judiciary

Public Administration [3]

Public Administration [4]

As a branch of social science

Different View of Administration

Difference between Administration and Public administration

Public Administration [5]

Public and Private Administration: Similarities and Differences

Public Administration Private Administration

Public Administration [6]

SCOPE OF PUBLIC ADMINISTRATION

Public Administration [7]

Public Administration [8]

Public Administration [9]

NATURE OF PUBLIC ADMINISTRATION

The nature of public administration is understood on the two basis

1. Nature of Public Administration on the basis of discipline

Public Administration [10]

Public Administration [11]

Public Administration [12]

6. Medium of socio-economic justice

7. To meet the needs of the regulatory state

Public Administration [13]

9. To maintain stability and coordination in the state

10. In the interest of students

11. Consultative role in policy making

12. Administration a tool of government

13. Means of scientific, technological and infrastructural development

Public Administration [14]

Limitation of public administration

Public Administration [15]

Public Administration [16]

Supporters: J.P. Daniels, James Lundy

According to this, management and administration are synonyms of each other.

1. Management is a human action and activity.

2. Management is related to human organization.

3. This is a creative activity.

4. This is a universal process.

5. Management is based on well-established universal principles.

6. Management creates a dynamic organization that can adjust to changing circumstances.

7. There is both artistry and scientificity in management.

8. Management is a procedural activity.

9. Management is a means of livelihood.

11. Management is a social, economic, cultural responsibility.

12. The nature of management is goal oriented.

13. Resources are used appropriately for management.

14. Definite objectives are achieved in management.

15. Management helps in achieving organizational goals.

16. Management increases efficiency.

17. Helps in social development.

Public Administration [17]

Public Administration [18]

FEATURES OF ADMINISTRATION IN DEVELOPED SOCIETIES

(i) Decentralized Administration

Challenges before public administration in developed societies