12th Report-Citizen Centric Administration - 2nd Administrative

188 Pages·2009·3.77 MB·English

GOVERNMENT OF INDIA
SECOND ADMINISTRATIVE REFORMS COMMISSION
TWELFTH REPORT
CITIZEN CENTRIC ADMINISTRATION
Th e Heart of Governance
FEBRUARY 2009
PREFACE
The American theologian Reinhold Niebuhr wrote, “Man’s capacity for justice
makes democracy possible, but man’s inclination to injustice makes democracy necessary”.
It has also been said that “democracy is the worst form of government except all those other
forms that have been tried from time to time” (Sir Winston Churchill). But even those
cynical about conventional representative democracy with its periodic elections and
cycles of widespread popular disillusionment, often described as anti-incumbency;
will acknowledge that the average citizen is concerned less with the convolutions
of governance and politics, or the myriad structures and levels of government
departments; than with obtaining rapid and equitable access to government services,
whether regulatory or developmental or welfare oriented, preferably at his doorstep.
That is why, stability, transparency, efficency and continuity in the governance systems
that the citizens are most immediately concerned with, is so necessary. That is why,
our priority in India must be to place the citizen at the centre of a modern public
administration. This is my idea of Inclusive Government.
India has an elaborate legal framework and institutional structures underpinned
by the Constitution which articulate the vision of a welfare state and by implication,
provide for creation of a citizen centric governance structure. But popular perception as
well as the reality belies that vision. In that background, the ARC has tried to address
the need for inclusive, transparent and citizen centric administration in all of its Reports
submitted so far but especially so in the current Report, which looks specifically at
its terms of reference relating to promotion of citizen centric administration. The
Commission has in this Report examined in detail the processes, mechanisms, strategies
and best practices that can help us attain this objective.
The concepts of good governance and citizen centric administration are
intimately connected. Citizen centricity with the aim of ensuring citizens’ welfare and
citizens’ satisfaction, is critical for any government, local, state or national; which aims
to provide good governance. As has been pointed out in the Report, the following are
the pre-requisites of citizen centric governance:
i
PREFACE
The American theologian Reinhold Niebuhr wrote, “Man’s capacity for justice
makes democracy possible, but man’s inclination to injustice makes democracy necessary”.
It has also been said that “democracy is the worst form of government except all those other
forms that have been tried from time to time” (Sir Winston Churchill). But even those
cynical about conventional representative democracy with its periodic elections and
cycles of widespread popular disillusionment, often described as anti-incumbency;
will acknowledge that the average citizen is concerned less with the convolutions
of governance and politics, or the myriad structures and levels of government
departments; than with obtaining rapid and equitable access to government services,
whether regulatory or developmental or welfare oriented, preferably at his doorstep.
That is why, stability, transparency, efficency and continuity in the governance systems
that the citizens are most immediately concerned with, is so necessary. That is why,
our priority in India must be to place the citizen at the centre of a modern public
administration. This is my idea of Inclusive Government.
India has an elaborate legal framework and institutional structures underpinned
by the Constitution which articulate the vision of a welfare state and by implication,
provide for creation of a citizen centric governance structure. But popular perception as
well as the reality belies that vision. In that background, the ARC has tried to address
the need for inclusive, transparent and citizen centric administration in all of its Reports
submitted so far but especially so in the current Report, which looks specifically at
its terms of reference relating to promotion of citizen centric administration. The
Commission has in this Report examined in detail the processes, mechanisms, strategies
and best practices that can help us attain this objective.
The concepts of good governance and citizen centric administration are
intimately connected. Citizen centricity with the aim of ensuring citizens’ welfare and
citizens’ satisfaction, is critical for any government, local, state or national; which aims
to provide good governance. As has been pointed out in the Report, the following are
the pre-requisites of citizen centric governance:
i
a) Sound legal framework. f) Grievance redressal mechanisms.
b) Robust institutional mechanism for proper implementation of laws and g) Active citizens’ participation – Public-private partnerships.
their effective functioning.
Some of the mechanisms mentioned above have already been examined by the
c) Competent personnel staffing these institutions; and sound personnel Commission in detail in its earlier Reports. Thus, the Commission in its first Report
management policies. on ‘Right to Information’ has made detailed recommendations on further changes
required to ensure greater transparency in governance and better implementation of
d) Right policies for decentralization, delegation and accountability.
the Right to Information Act. Similarly, the Commission’s Report on e-Governance
has made detailed recommendations on how adoption of modern technology preceded
Going beyond these necessary conditions, the Commission has outlined the
by re-engineering of processes can make governance more responsive, transparent and
following core principles for making governance citizen centric:
efficient.
• Rule of Law - Zero tolerance strategy.
In that context, the Commission has, in the present Report, examined the concept
of citizen centric administration in a more specific manner, in relation to various
• Making institutions vibrant, responsive and accountable.
functions of the government, the role of special institutional mechanisms such as the
• Decentralization. national and state commissions set up to safeguard the rights of vulnerable sections
of the society, other mechanisms such as citizen charters as a means of improving
• Transparency.
performance and accountability of government departments, how simplification of
procedures and decentralization and delegation can improve efficiency and bring
• Civil Services Reforms.
Government services to the doorstep of citizens and finally how citizens’ participation
in administration can make government departments more responsive, accountable
• Ethics in Governance.
and transparent. As governance is primarily a series of service operations with the
• Process Reforms. ultimate objective of maximizing citizens’ welfare, use of management principles such
as the Six Sigma concepts (data, focus on clients/citizens, quality) combined with
• Periodic and independent evaluation of the quality of Governance.
Lean thinking (process flow, minimizing the costs of unnecessary complexity) can
help to transform government service organizations into more efficient and citizen
Finally, taking matters further beyond principles and pre-conditions, the
friendly agencies.
Commission has tried to examine the finer details of how governance can be made
more citizen centric, with reference to the strategies and processes, the tools and
It is ultimately my hope that governance in India can be simplified so as to bring
mechanisms, which can be usefully employed to make the administration citizen
to its citizen a multi-channel single window delivery structure for channelising all
centric. These are:
types of government services at the local level in the most efficient manner possible
using modern IT technology so that the citizen can access these services easily and
a) Re-engineering processes to make governance ‘citizen centric’.
conveniently at his doorstep and even on the run through the use of mobile telephony.
It is hoped that this Report will give certain pointers towards making that vision a
b) Adoption of Appropriate Modern Technology.
reality.
c) Right to Information.
d) Citizens’ Charters. New Delhi (M. Veerappa Moily)
February 17, 2009 Chairman
e) Independent evaluation of services.
ii iii
a) Sound legal framework. f) Grievance redressal mechanisms.
b) Robust institutional mechanism for proper implementation of laws and g) Active citizens’ participation – Public-private partnerships.
their effective functioning.
Some of the mechanisms mentioned above have already been examined by the
c) Competent personnel staffing these institutions; and sound personnel Commission in detail in its earlier Reports. Thus, the Commission in its first Report
management policies. on ‘Right to Information’ has made detailed recommendations on further changes
required to ensure greater transparency in governance and better implementation of
d) Right policies for decentralization, delegation and accountability.
the Right to Information Act. Similarly, the Commission’s Report on e-Governance
has made detailed recommendations on how adoption of modern technology preceded
Going beyond these necessary conditions, the Commission has outlined the
by re-engineering of processes can make governance more responsive, transparent and
following core principles for making governance citizen centric:
efficient.
• Rule of Law - Zero tolerance strategy.
In that context, the Commission has, in the present Report, examined the concept
of citizen centric administration in a more specific manner, in relation to various
• Making institutions vibrant, responsive and accountable.
functions of the government, the role of special institutional mechanisms such as the
• Decentralization. national and state commissions set up to safeguard the rights of vulnerable sections
of the society, other mechanisms such as citizen charters as a means of improving
• Transparency.
performance and accountability of government departments, how simplification of
procedures and decentralization and delegation can improve efficiency and bring
• Civil Services Reforms.
Government services to the doorstep of citizens and finally how citizens’ participation
in administration can make government departments more responsive, accountable
• Ethics in Governance.
and transparent. As governance is primarily a series of service operations with the
• Process Reforms. ultimate objective of maximizing citizens’ welfare, use of management principles such
as the Six Sigma concepts (data, focus on clients/citizens, quality) combined with
• Periodic and independent evaluation of the quality of Governance.
Lean thinking (process flow, minimizing the costs of unnecessary complexity) can
help to transform government service organizations into more efficient and citizen
Finally, taking matters further beyond principles and pre-conditions, the
friendly agencies.
Commission has tried to examine the finer details of how governance can be made
more citizen centric, with reference to the strategies and processes, the tools and
It is ultimately my hope that governance in India can be simplified so as to bring
mechanisms, which can be usefully employed to make the administration citizen
to its citizen a multi-channel single window delivery structure for channelising all
centric. These are:
types of government services at the local level in the most efficient manner possible
using modern IT technology so that the citizen can access these services easily and
a) Re-engineering processes to make governance ‘citizen centric’.
conveniently at his doorstep and even on the run through the use of mobile telephony.
It is hoped that this Report will give certain pointers towards making that vision a
b) Adoption of Appropriate Modern Technology.
reality.
c) Right to Information.
d) Citizens’ Charters. New Delhi (M. Veerappa Moily)
February 17, 2009 Chairman
e) Independent evaluation of services.
ii iii
Government of India Some of the issues to be examined under each head are given in the Terms of Reference
Ministry of Personnel, Public Grievances & Pensions attached as a Schedule to this Resolution.
Department of Administrative Reforms and Public Grievances
4. Th e Commission may exclude from its purview the detailed examination of administration
Resolution of Defence, Railways, External Aff airs, Security and Intelligence, as also subjects such as
New Delhi, the 31st August, 2005 Centre-State relations, judicial reforms etc. which are already being examined by other
bodies. Th e Commission will, however, be free to take the problems of these sectors into
No. K-11022/9/2004-RC. — Th e President is pleased to set up a Commission of Inquiry account in recommending re-organisation of the machinery of the Government or of any
to be called the Second Administrative Reforms Commission (ARC) to prepare a detailed of its service agencies.
blueprint for revamping the public administration system.
5. Th e Commission will give due consideration to the need for consultation with the State
2. Th e Commission will consist of the following : Governments.
(i) Shri Veerappa Moily - Chairperson
(ii) Shri V. Ramachandran - Member 6. Th e Commission will devise its own procedures (including for consultations with the
(iii) Dr. A.P. Mukherjee - Member State Government as may be considered appropriate by the Commission), and may appoint
(iv) Dr. A.H. Kalro - Member committees, consultants/advisers to assist it. Th e Commission may take into account the
(v) Dr. Jayaprakash Narayan - Member* existing material and reports available on the subject and consider building upon the same
(vi) Smt. Vineeta Rai - Member-Secretary rather than attempting to address all the issues ab initio.
3. The Commission will suggest measures to achieve a proactive, responsive, 7. Th e Ministries and Departments of the Government of India will furnish such information
accountable, sustainable and effi cient administration for the country at all levels of the and documents and provide other assistance as may be required by the Commission. Th e
government. Government of India trusts that the State Governments and all others concerned will extend
their fullest cooperation and assistance to the Commission.
Th e Commission will, inter alia, consider the following :
(i) Organisational structure of the Government of India 8. Th e Commission will furnish its report(s) to the Ministry of Personnel, Public Grievances
(ii) Ethics in governance & Pensions, Government of India, within one year of its constitution.
(iii) Refurbishing of Personnel Administration
(iv) Strengthening of Financial Management Systems
(v) Steps to ensure eff ective administration at the State level Sd/-
(vi) Steps to ensure eff ective District Administration (P.I. Suvrathan)
(vii) Local Self-Government/Panchayati Raj Institutions Additional Secretary to Government of India
(viii) Social Capital, Trust and Participative public service delivery
(ix) Citizen-centric administration *Dr. Jayaprakash Narayan – Member, resigned with eff ect from 1st September, 2007
(x) Promoting e-governance (Resolution No. K.11022/26/207-AR, dated 17th August, 2007).
(xi) Issues of Federal Polity
(xii) Crisis Management
(xiii) Public Order
iv v
Government of India Some of the issues to be examined under each head are given in the Terms of Reference
Ministry of Personnel, Public Grievances & Pensions attached as a Schedule to this Resolution.
Department of Administrative Reforms and Public Grievances
4. Th e Commission may exclude from its purview the detailed examination of administration
Resolution of Defence, Railways, External Aff airs, Security and Intelligence, as also subjects such as
New Delhi, the 31st August, 2005 Centre-State relations, judicial reforms etc. which are already being examined by other
bodies. Th e Commission will, however, be free to take the problems of these sectors into
No. K-11022/9/2004-RC. — Th e President is pleased to set up a Commission of Inquiry account in recommending re-organisation of the machinery of the Government or of any
to be called the Second Administrative Reforms Commission (ARC) to prepare a detailed of its service agencies.
blueprint for revamping the public administration system.
5. Th e Commission will give due consideration to the need for consultation with the State
2. Th e Commission will consist of the following : Governments.
(i) Shri Veerappa Moily - Chairperson
(ii) Shri V. Ramachandran - Member 6. Th e Commission will devise its own procedures (including for consultations with the
(iii) Dr. A.P. Mukherjee - Member State Government as may be considered appropriate by the Commission), and may appoint
(iv) Dr. A.H. Kalro - Member committees, consultants/advisers to assist it. Th e Commission may take into account the
(v) Dr. Jayaprakash Narayan - Member* existing material and reports available on the subject and consider building upon the same
(vi) Smt. Vineeta Rai - Member-Secretary rather than attempting to address all the issues ab initio.
3. The Commission will suggest measures to achieve a proactive, responsive, 7. Th e Ministries and Departments of the Government of India will furnish such information
accountable, sustainable and effi cient administration for the country at all levels of the and documents and provide other assistance as may be required by the Commission. Th e
government. Government of India trusts that the State Governments and all others concerned will extend
their fullest cooperation and assistance to the Commission.
Th e Commission will, inter alia, consider the following :
(i) Organisational structure of the Government of India 8. Th e Commission will furnish its report(s) to the Ministry of Personnel, Public Grievances
(ii) Ethics in governance & Pensions, Government of India, within one year of its constitution.
(iii) Refurbishing of Personnel Administration
(iv) Strengthening of Financial Management Systems
(v) Steps to ensure eff ective administration at the State level Sd/-
(vi) Steps to ensure eff ective District Administration (P.I. Suvrathan)
(vii) Local Self-Government/Panchayati Raj Institutions Additional Secretary to Government of India
(viii) Social Capital, Trust and Participative public service delivery
(ix) Citizen-centric administration *Dr. Jayaprakash Narayan – Member, resigned with eff ect from 1st September, 2007
(x) Promoting e-governance (Resolution No. K.11022/26/207-AR, dated 17th August, 2007).
(xi) Issues of Federal Polity
(xii) Crisis Management
(xiii) Public Order
iv v
Government of India Government of India
Ministry of Personnel, Public Grievances & Pensions Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances Department of Administrative Reforms and Public Grievances
RESOLUTION RESOLUTION
New Delhi, the 24th July, 2006 New Delhi, the 14th February, 2008
No. K-11022/9/2004-RC (Vol.II) – Th e President is pleased to extend the term of the
second Administrative Reforms Commission by one year upto 31.8.2007 for submission No.K-11022/26/2007-AR – Th e President is pleased to extend the term of the second
of its Reports to the Government. Administrative Reforms Commission (ARC) by six months upto 30.9.2008 for submission
of its Reports to the Government.
Sd/-
(Rahul Sarin) Sd/-
Additional Secretary to the Government of India (Dhruv Vijai Singh)
Additional Secretary to the Government of India
Government of India
Ministry of Personnel, Public Grievances & Pensions Government of India
Department of Administrative Reforms and Public Grievances Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances
RESOLUTION
RESOLUTION
New Delhi, the 17th July, 2007
New Delhi, the 5th September, 2008
No.K-11022/26/2007-AR – Th e President is pleased to extend the term of the second
Administrative Reforms Commission (ARC) by seven months upto 31.3.2008 for No.K-11022/26/2007-AR – Th e President is pleased to extend the term of the second
submission of its Reports to the Government. Administrative Reforms Commission (ARC) by six months upto 31.3.2009 for submission
of its Reports to the Government.
Sd/-
(Shashi Kant Sharma) Sd/-
Additional Secretary to the Government of India (P.K. Jha)
Joint Secretary to the Government of India
vi vii
Government of India Government of India
Ministry of Personnel, Public Grievances & Pensions Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances Department of Administrative Reforms and Public Grievances
RESOLUTION RESOLUTION
New Delhi, the 24th July, 2006 New Delhi, the 14th February, 2008
No. K-11022/9/2004-RC (Vol.II) – Th e President is pleased to extend the term of the
second Administrative Reforms Commission by one year upto 31.8.2007 for submission No.K-11022/26/2007-AR – Th e President is pleased to extend the term of the second
of its Reports to the Government. Administrative Reforms Commission (ARC) by six months upto 30.9.2008 for submission
of its Reports to the Government.
Sd/-
(Rahul Sarin) Sd/-
Additional Secretary to the Government of India (Dhruv Vijai Singh)
Additional Secretary to the Government of India
Government of India
Ministry of Personnel, Public Grievances & Pensions Government of India
Department of Administrative Reforms and Public Grievances Ministry of Personnel, Public Grievances & Pensions
Department of Administrative Reforms and Public Grievances
RESOLUTION
RESOLUTION
New Delhi, the 17th July, 2007
New Delhi, the 5th September, 2008
No.K-11022/26/2007-AR – Th e President is pleased to extend the term of the second
Administrative Reforms Commission (ARC) by seven months upto 31.3.2008 for No.K-11022/26/2007-AR – Th e President is pleased to extend the term of the second
submission of its Reports to the Government. Administrative Reforms Commission (ARC) by six months upto 31.3.2009 for submission
of its Reports to the Government.
Sd/-
(Shashi Kant Sharma) Sd/-
Additional Secretary to the Government of India (P.K. Jha)
Joint Secretary to the Government of India
vi vii
ORGANISATION
Second Administrative Reforms Commission
1. Dr. M. Veerappa Moily, Chairman
2. Shri V. Ramachandran, Member
3. Dr. A.P. Mukherjee, Member
4. Dr. A.H. Kalro, Member
5. Smt. Vineeta Rai, Member-Secretary
Offi cers of the Commission
1. Shri A.B. Prasad, Additional Secretary
2. Shri P.S. Kharola, Joint Secretary
3. Shri R.K. Singh, PS to Chairman
4. Shri Sanjeev Kumar, Director
5. Shri Shahi Sanjay Kumar, Deputy Secretary
viii ix