The Civil Services Board . . . . an ineffective institution in governance

                    I would not have written this piece  but for a news item  that   there is a proposal to  change the procedure to be followed by the CSB(Civil Services Board) .The CSB was created  on the direction in 2013   by the Supreme Court  to protect civil servants from  premature transfers.

  In Indian Administrative service (cadre) Rules ,1954, a new schedule was added on January 28,2014.This schedule provided for the composition of CSB as follows:
1.Chief Secretary  .. .Chairman
2.Senior most Additional Chief Secretary,or Chairman ,Board of Revenue or Financial Commissioner
or officer of equivalent rank and status . . .Member
3.Principal Secretary , department of Personnel in the state government . . .Member Secretary
Procedure followed by the CSB  is to be as follows:The CSB
 (1)shall consider the report of administrative department along with any  other inputs it may have from other reliable sources.
(11).Obtain the comments or views of the officer proposed to be transferred based on the circumstances presented to it in the justification of the proposal
(111)Not make recommendation of the transfer of the  cadre officers  unless it has been  satisfied itself of the reasons of such premature  transfer.
 The Rules of 2014 provide that  minimum tenure of  civil servants is two years , but a civil servant can be shifted before two years from a post  if the CSB   recommends  the proposal.  

                In the first week of August ,2015, the Central government circulated a proposal  to change the existing  rules of procedure  followed by CSB, that make it mandatory  for the CSB to  get a report from the  department concerned and hear out the officer  before clearing  a premature transfer.The new  proposal  says that in such cases ,the CSB  may"obtain  such information  from the relevant  sources" as it desires.In other words,there is a proposal to delete  first part of  clause (1) and  full clause  (11) above. The Centre's  communication to the states  makes it clear that  the changes were proposed by the Government of Uttar Pradesh.The U.P. Government had given the suggestion at a conference of states earlier this year(2015).

                  The constitution of a CSB  headed by  the Chief secretary and having other senior   officers serving under the state government  makes it totally vulnerable to the dictates of the political executive.Such a CSB  " recommends" all premature transfers  which are  decided beforehand  by the Chief Minister ,in case of all India services(IAS,IPS , IFS).I do not know what the supreme court had in mind when they directed the clearance by such a CSB.A pliable , subservient and vulnerable CSB  is completely ineffective in  stopping the premature transfers done  on the grounds of  political expediency or the "dictates of the sovereign".It  forces the chief secretary and his colleagues to take the responsibility for recommending proposals which  they may not find reasonable or feel satisfied about ,but which they are forced to recommend because they want to continue in the senior key posts like chief secretary  and other equivalent posts, for  the reasons of their own .Let us face it .What is the value addition of such a CSB to good  governance? Practically none.I agree that there is a hypocrisy  in  most of the  areas of public  life in India , but when such a hypocrisy has the indirect sanction from the highest offices , the search of the people of India for good governance is just a cry in wilderness.

          The step of trying to change the procedure  to be followed by the CSB is just an indication that we want to drive the last nail in the coffin of the CSB(which is dead ,in any  case.).The fact that this nail has reportedly  come from my own state of  Uttar Pradesh makes me  feel concerned.I also wonder if this was the intention of the supreme court.  What good governance do we expect from civil servants who are not sure how long they will remain in their present post, and which next morning , they will read in the newspapers ( along with million with others) that they have been transferred prematurely to a new post in a new place.

Servant Leadership : A Journey into the Nature of Legitimate Power and Greatness

I just finished reading  the 25th Anniversary Edition of this book(368 pages) by Robert K.Greenleaf , with a Foreword by Stephen R. Covey and Afterword by Peter M. Senge.Servant Leadership is difficult to be established as a scientific theory.It is reasonable to see it as an emerging leadership philosophy.
                    In fact,the book is  a collection of 12  essays  written by Greenleaf in sixties and early seventies  about  Servant Leadership  .The book was originally published in 1978.The core of servant leadership is  moral authority.The essence of moral authority is  subordinating one's ego to a higher purpose.It also implies that means as well as ends must be good.
                    The idea of the servant as leader came out of reading  Herman Hesse's Journey to the East.The servant  Leo in this book is a servant leader.MacMurphy ,the tough ,gutter-bred patient  in   One Flew over the Cuckoo's Nest by Ken Kessy , is another example of servant leader.The best test of servant leader is what needs of other persons are being served by him.Do those served grow as persons?Do they  become healthier,wiser ,freer,more autonomous,more likely themselves to become servants?Do the less privileged in society benefit or at least not be further  deprived?(page 27)
                  Our educational structure devotes very little care to nurturing leaders.Greenleaf says that the goal of education should be to prepare students to serve and be served by the present society.
                           Also ,one needs a lifestyle that keeps one in touch with"the unsearchable and secret aims of nature(page 312).Make a motto on your wall;"Lord,grant that I may seek not so much to be understood as to understand"(Prayer of Saint Francis)
 The last chapter entitled An Inward journey is devoted to explain the  profound meaning of the poem  Directive by Robert Frost."Directive offers a promise to those who do aspire:When we have gone back out of all this now too much for us,when we are lost enough to find ourselves and have pulled in our ladder road behind us ,then we shall have the opportunity to drink of the waters of wholeness"(Page 338).This is a hopeful hypothesis at a time when hope is dim.
                         Servant leaders are those who care for both persons and institutions , and who are determined to make their caring count.
                      Though somewhat repetitive, this book is  full of  a new way of looking at leaders and leadership .I recommend you to read it .
    .

Should schools run as Not for Profit enterprises only?

                                     The Uttar Pradesh Right of Children to Free and Compulsory education  Rules , 2011, Rule 11 requires fulfilment of  the condition(among other conditions) that the school is not run for profit to any individual,group or association of individuals or any other persons. A school has to be  Not for Profit.In other words , profit is a dirty word as far as school  education  is concerned.The Model Rules  circulated by Government of India  under the Right of Children to free and compulsory Education Act ,2009  in Rule 11 carries the same provision .This has been carried as such in the RTE Rules of the states   Uttarakhand,,Orissa,Karnataka,Maharashtra,Kerala ,Delhi ,Punjab,West Bengal and Chattisgarh.The three states Gujrat,Haryana and Himachal Pradesh  have  not included this provision in their State RTE Rules , indicating that in  these states for-profit schools can legally operate.

                      One issue which is likely to  dominate the education debate for some time to come  is whether schools should be run for profit.Should profit making firms be allowed to run failing schools?Introduction of for profit schools has the great potential of bringing new investors into education , thereby increasing the much needed capacity.Permitting profits can promote competition between schools, provides extra incentive to improve results.It can also encourage schools to seek efficiencies,There are philosophical objections to for profit companies to make profit from education , which is publicly funded.Education is regarded as a public good , rather than an industry, to be used to earn profit.Many people think that for-profit schools will channel money from students into private pockets.

                For profit schools are being run int USA,Sweden , the UK and many other countries but with mixed results. In these countries , private schools are generally set up in one of two ways:As for profit entities, or not for profit entities.The for profit version is used  by either a corporation  or a private individual  in order to make a profit  but they will not be eligible for contributions  which are permitted by law to be tax-deductible.Not for profit schools can make money but also receive contributions  which the law permits to be tax-deductible.They are also exempted from federal . state and local taxes  . It is not that they are not allowed to generate surplus or that they cannot hire salaried staff.It is that they  cannot permit their surplus to be distributed as dividends to the owners or promoters .This means that the promoters of schools have to be persons  whose predominant needs are the needs of esteem , respect, recognition and self-actualisation(to quote Maslow's hierarchy of needs.)Both types of schools , for-profit and not for profit , are legally permitted in these countries . It is not possible to say which type of schools gives better  education.It depends how well the school is managed  educationally , financially and strategically.

                    But what is surprising is that  many state  governments in India   ,through  their RTE  Rules  , have made for -profit schools  illegal.This is not  in the interest of attracting new investment in education sector.A review of this policy is needed in the context of  ever expanding but deteriorating school education in  these states of India.                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                             

Short term lateral exit for civil service

It is really intriguing to know that despite the falling standards of governance in India, more and more young men and women aspire to become civil servants  by joining IAS and other  civil services.In 2014,9.45  lacs candidates applied for the examination,6.80 lacs downloaded their admit cards for appearing in the test,4.51 lac candidates took the preliminary  examination in 2137 centres in 59 cities of India.(This was 1.27 lacs more than 2013 when 3.24 had appeared in the civil services preliminary examination)(Indian Express, New Delhi , August 24,2014).Only 0.15% got finally selected.This  makes India's Civil services Examination as  the most competitive in the world.

                                           After serving my  full term in  the IAS , I have  the opportunity to work outside the civil service.It has struck me  more than once that the civil servants  need to  be  given incentive to  move out and work for different sectors, outside the civil service , on a short term basis.Why?

           Civil servants at policy making levels  do  not have exposure to the ground realities of all the  sectors of governance.For example,  if a law  or a rule is proposed to be drafted for education, it is helpful if the education secretary and education director have a first hand experience of running a big educational  institution  in private sector for at least  two to three years.Such a lateral exposure  is likely to  give them an insight into the real life difficulties which an entrepreneur  running a private enterprise  may face.Similar is the situation for a secretary or director in the industrial development department .Different regulatory departments of the government frame rules or issue government orders , which are difficult to implement , and discourage entrepreneurs from making investments.Such a lateral tenure in the private sector can  train or prepare such civil servants for  a better understanding of the ground realities  and develop a positive attitude before formulating or proposing a policy related to  a particular sector.This can even renew their spirit  and make them aware of the inherent efficiencies of the private sector.

                          This is however not a panacea for all the ills of governance .The whole idea of lateral exit into the private sector has the risk of shifting loyalties of civil servants to the employer in the private sector , who may use the civil servants  to create policies suiting him, once the civil servants complete the period of lateral exit and return to the government .

                           The security offered to civil servants  by the constitution of India,along withe fact that promotions and postings  are not  linked to  competence and merit, except  in a very limited way.This makes them complacent and unwilling to go out of their comfort zone.That is why it is important to  encourage them to go out on lateral exit  for  a short tenure.If sufficient incentives are not given , this  valuable idea will remain only on paper.
                In 2007,guidelines were issued permitting civil servants to take up assignments for up to seven years with permitted organisations. The organisations included constitutional bodies, statutory bodies,international agencies  such as the United Nations and the World bank,NGOs,societies and autonomous bodies not controlled by the government. Further,  before 2007, an officer who went on deputation with an Indian body was not allowed to draw more than what the government paid him.But the 2007 guidelines say,"While serving in  constitutional , statutory,multilateral,or bilateral organisations,or international financial organisations,the officer shall be eligible to draw pay and allowances as per the scheme of the borrowing organisation"But such  a policy has only resulted in civil servants trying   for posts only in international bodies like the UNO,the World Bank,etc.The civil servants do not get experience of the ground realities faced by the private sector, especially the difficulties being faced by the small or middle level entrepreneurs.There is a need to introduce some qualifying service in such enterprises for promotions at different levels.

                                       


             

Amsterdam by Ian McEwan

Ian McEwan  won the Booker Prize for Amsterdam in 1998.I presumed that it was his best work .But it is not so .Atonement,Saturday and On Chesil Beach  are his three novels , which are far superior to Amsterdam .I really wonder what   made the jury of Booker Prize   to select this book for  the Award.

                         A 108 page novel  reads like a  long story of betrayals.Two friends  Clive and Vernon  poison each other in the end in Amsterdam in the most theatrical way .Garmony , the Foreign Secretary ,  finally loses his post.These three were the ex-lovers of  a woman   named  Molly .

                         I found the book shallow  and a waste of time . .It lowered my esteem for Ian McEwan and also for the jury of  Booker Prize .

                      

Ceremony by Leslie Silko

Tayo , the protagonist  suffers from estrangement and alienation , on his return from captivity to his native land Laguna Pueblo reservation in  America .He was released from the mental ward at the Veterans' Hospital in Los Angeles, having been a prisoner of the Japanese during the World War II.The search  for comfort and resolution of alienation  takes him to the past ,traditions and beliefs  of  Native  Indians in  America.He questions those beliefs and witchcraft and ancient stories and folklore.This search  itself becomes a ceremony which cures him of his despair.

              This is the first book  by Leslie Marmon Silko  , read by me .She took me into her world Laguna Pueblo Reservation , a world full of stories.

                        "  He was tired of fighting .If there was no one left to trust, then he had no more reason to live.(page 122).Nothing was ever lost as long as the love remained(page 220)."

    Ceremonies have always been changing."At one time , the ceremonies  as they had been performed were enough for the way the world was then .But after the white people came,elements in this world began to shift; and it became necessary to create new ceremonies.I have made changes in the rituals.The people mistrust this greatly , but only this growth keeps the ceremonies strong."(page126).But ceremonies need to be completed .                Was there some way to stop?It all depends how far you are willing to go.(page 230).Without friends , he didn't have a chance of completing the ceremony.(page 241).In an alien place , you doubt the ceremony.Ceremonies and stories are related.All stories fit together.The world as it always was , has no boundaries.(page 246).

."You don't have anything if you don't have the stories".The story behind each word must be told , and this demanded great patience and love.A world  is made of stories.We should feel stories happening to us.Some part of a story we have together, and some part we have alone.

 It takes a long time to tell  people the story.They ask questions about the location and the time of the day,the direction she had come from and the color of her eyes.

                   I enjoyed  reading this beautiful book.

Changing a system while being a part of it

Can a person change the "system" from within, being a part of the "system"? Many idealistic young men and women  attempt to do it.They join  the civil services with a view to change the "system" which includes not only the civil services but also the political system as also the lager society.My answer is that they cannot change the system while being a part of the very system .Why?

                 The reason is that civil servants are required to obey the  service conduct rules.These conduct rules  put several   severe  restrictions on what they can say or do in public  , and what  they cannot.Any violation of conduct rules can be punished , with suspension .These conduct rules and their alleged violations  make the civil servants quite vulnerable , and drastically reduces their capacity to  take up  fights with vested interests.

                      Further , it also raises several ethical issues including the accountability of civil servants to the government of the day.Many decisions of the government may be morally indefensible but may not be illegal.Such decisions have to be implemented by the civil servants.Under the existing scheme of things , the government is accountable to the legislature, and not the civil servants per se.

                   The moral is that if someone wants to change the  "system",he or she  needs to do it by coming out of the government .And then   he or she may  try to change the mindset of the public which  accepts and creates this 'system'.Otherwise , such attempts at change  are likely to fail.

The Joy of Books :Confessions of a Llifelong Reader by Eric Burns

Any book ,which inspires me to read  more  books, is a book worth reading .The Joy of Books :Confessions of a Lifelong Reader by Eric Burns is one such book.Eric Burns  is a former TV journalist  with NBC  News.This book was published in 1995  when there were no e-books and no Kindle.But still , it makes a strong plea for printed , literary books.

               The Joy of Books is about history of books as well as a history of reading .It makes a case in favour of  printed books  over TV or Movies.It gives an insight that books" raise possibilities",It also narrates many instances of book burning and censorship,and the psychology of people behind such attitudes.

            The author points out  the relationship between a writer and reader as also between a reader and another reader.We read books for the pure joy of reading .The author also compares how our experience is different when we  read a book for the second or third time.It is a short book of 182 pages , and is worthy of your time .

The Guide by R K Narayan

The Guide is a 1958 classic by  Indian author( late) Padma Vibhushan  R K Narayan. I read this 247 pages long novel recently  , after a gap of nearly 20 years ,after the first reading .The Bollywood  movie Guide continues to be my favourite  movie.

                   Like all of us , it is about search for identity  by Raju.What is the true identity of Raju?He finds it near the end of his life .It is the identity of a spiritual adviser.How does he find it? By  self-abnegation, by  doing  something sincerely for others, Raju finds spiritual peace, and arrives at his true identity.He starts as a tourist guide , then becomes a guide to Rosie , the dancer, then  a forgerer , then a model prisoner  and finally a spiritual adviser , who sacrifices for others.In fact , having got spiritual peace on the eleventh day of fasting , he dies on the twelfth day.
                  The real issue between Rosie and her husband Marco was  about dancing.Rosie had a natural flair and passion for dance but Marco was completely against her dancing .She wanted to be a faithful wife but dance was her identity.Ultimately  she left both."Neither Marco nor I had any place in her life,which had its own sustaining vitality and which she herself had underestimated all along."(Page223).Once she  realised her true identity , she set about to live  accordingly , brooking no relationship or obstacle in the way.

Are there any signs of evidence -based policy formulation in the states of India ? A Case of Uttar Pradesh

The article " Case for Evidence- based  policy formulation(June ,2015) "by Prof Geeta Gandhi Kingdon , in Education World magazine, set me thinking about   the  actual system  of policy making prevailing  in a state  like Uttar Pradesh in India.There is no doubt that  there is a case for  evidence-based policy formulation , both in the state governments  as well as in the  government of India.         As Prof Kingdon says :"In good education  systems defined by real learning outcomes,education policy is not made on hunches, ideology or political expediency,but on the basis of evidence of what works"
                        I worked in Uttar Pradesh as an IAS officer for 35 years,  spent about  14 years in different field postings and about 21 years in the  State Secretariat . In the Secretariat , I spent about 11 years in various departments  as Secretary to the State Government and about  10 years as Principal Secretary to the State government .I also served as Staff Officer and Special Secretary  to  three Chief secretaries of U.P. , for a total period of 3 years,where  I had the benefit of  having access to all the proposals of all the departments which were  put up before the State Cabinet from time to time .This , I believe, makes me eligible to write about this important subject , with a view to give it  a real- life  perspective.I do not intend to criticise any government in particular  , but to explain and shed light on the  system as it prevails.
                   Do the state governments make policies , based on the evidence?My answer is a big No.Do the  civil servants have the adequate training , competence and expertise  to look for the right kind of evidence  and to sift and analyse that evidence , so as to  put forward  the right kind of policy options? Do they have the capability to separate good evidence from the bad? My answer is again "Not really" , though some civil servants are exception to this  general observation.
               If our policies are not based on evidence , then  how are these  formulated and decided?  It is a bit tricky question , and I have no  evidence(except my experience)to answer it .But still , I can say that most policies are made on the impressions , ideology,political expediency or prompted by some interest groups. For example , if the government thinks that it is politically expedient to  make all para teachers into  regular teachers, it will take this decision in the cabinet .The role of the Secretary in the Education  Department will be merely  to draft a cabinet note(proposal) which "justifies" this policy  , rather than looking for evidence and data  whether  para teachers deliver better quality of teaching than the regular teachers.And whether the decision to make them into regular teachers  will impact the quality of education adversely .What does the published research say on this kind of issues  ? Are there similar instances  in other states or countries where different decisions were taken , with success and positive outcomes?
                  In the state governments in India ,there is  no scope for any civil servant (Education Secretary , Chief Secretary , Planning Secretary , Finance Secretary , Law Secretary) to offer a different opinion .There are many reasons for this.:
1.Political decision makers(Normally , the Chief Minister and other political leaders)  take a decision  beforehand on political grounds.No civil servant is given any space to differ.
2.Once the political decision has been taken , there is a pressure on the concerned civil servants  to issue the government order  containing the policy at the earliest.It could be yesterday(expostfacto approval of the Cabinet is taken) , today or tomorrow.In such a situation , there is hardly any time for any Head of the Department or the Secretary of the Department to look for the "evidence" to put across the alternative options .The expectation  and pressure is to  prepare a  note for the Cabinet , recommending the option already decided politically .
3.The mandatory inter departmental consultation  requires the opinion of the Law , Finance  , Personnel  and Planning Departments.Law department looks at the legality of the proposal .There is nothing illegal in making para teachers into regular teachers .So , the law department agrees.Finance Department may object (If Finance Secretary has the guts to say so), but he or she can be" persuaded "by the Chief Secretary or the Minister   , and I have seen that finally , the finance secretary gets persuaded, for he cannot go against the wishes of the political establishment .In any case , his opinion  can be over-ruled .Personnel polices are generally pro employees.So , the Personnel Department also   agrees.Planning Department hardly  differs .So normally  the planning department agrees.
4.The culture of making policies and decisions based on evidence , and not on whims and fancies of political establishment , simply does not exist in a state like Uttar Pradesh .This also suits all the powerful stakeholders  who have any say in the decision making .The interest of the common citizens  or public interest , generally  gets ignored in the process.
5.The civil servants  do not have the motivation  to  acquire needed skills or competence to search  for the evidence and to analyse the evidence, to distinguish good evidence from the bad,to appreciate the difference between co-relation and causation. .They  remain in their comfort zone of having  "contributed" to the policy without evidence , as per the process laid down in the Rules of Business.
      The above is the general pattern of policy making in a state like Uttar Pradesh, irrespective of the party in power.In many cases , powerful industrialists  "convince" the political leadership of the need for a policy decision, to enhance their business or financial interests, and we have chrony capitalism in its most obvious form.
               What is the way out?I  know that in other countries also, policy making is   controlled by the political leadership , but to some extent , it is evidence based.Perhaps , this is because there is a healthy culture,a  lively debate in the legislature, the civil society is vigilant and media is  impartial  and  alert.Perhaps , there is more space for the civil servants to advise.Perhaps , the civil servants there are better trained and equipped to source , locate and analyse the evidence.Perhaps , the political leadership is more receptive to ask for evidence.
 I hope,  a day will come when  our political leaders rise above their need to remain in power for ever, our civil servants will have the motivation  , courage, skills and competence to formulate  , present , get approved and implement  Evidence based policies in public interest.Into that heaven of freedom  , let my country awake
(I wait without hope)   .